A key part of the Fifth Circuit’s decision to keep the freeze on
President Obama’s amnesty programs was the 25-page dissenting opinion
written by the panel’s lone Obama appointee. Not only does it point to
how the bloc-voting liberal justices of the Supreme Court will
ultimately treat the case, it almost wholly focuses on the threshold
issue of “prosecutorial discretion”: an executive-branch power that, if
expanded to include mass grants of amnesty, would remove the last
vestige of authority that Congress and the courts have in preventing
immigration anarchy at our nation’s southern border.
The “essential point of disagreement” that Judge Stephen Higginson had
with Judge Hanen’s lower-court opinion has to do with the
characterization of the president’s amnesty programs. How DAPA and DACA
are categorized is crucial for both sides. Obama’s attorneys contend
that the programs are mere exercises of “prosecutorial discretion” on
the part of the president.
The core case that “forecloses plaintiffs’ arguments” against the
administration’s use of DAPA and DACA, wrote Judge Higginson, is Heckler
v. Chaney, where the Supreme Court held that “an agency’s decision not
to prosecute or enforce . . . is a decision generally committed to an
agency’s absolute discretion.” Finding that these programs were
something bigger than mere decisions not to prosecute, Judge Hanen
determined that the Heckler ruling couldn’t apply to the president’s
amnesty. Higginson quotes Hanen’s characterization of DACA and DAPA,
emphasizing that he called them “announced programs of non-enforcement
of the law that contradicts Congress’s statutory goals” and an
“abdication of [the government’s] statutory responsibilities.”
The descriptor “announced” is essential here, and Higginson is right to
focus on Hanen’s characterization so intently. “Prosecutorial
discretion” refers to the priorities prosecutors sometimes must adopt
(almost always in the context of criminal prosecutions) given the
operational limits they face. The Department of Homeland Security has
appropriated this concept, asserting that by being able to prosecute
illegal aliens according to its own discretion, rather than the
guidelines set forth in our immigration laws, it can save its “limited
resources” and better “prioritize” cases that deserve the most attention
— e.g., convicted felons, illegal aliens who are threats to national
security, and so on.
But such priorities are not usually “announced” by prosecutors. As
liberal law professor (and immigration attorney) Peter Margulies writes,
the decision to exercise discretion in dealing with wrongdoers
necessarily must be done “in the dark,” not out in the open (as in a
nationwide memo). To announce such an intention is to create “moral
hazard,” the concept most commonly used to describe the unintended
consequences of insurance. As Margulies says, “moral hazard arises
because individuals who know they will be held harmless for wrongdoing
tend to do more of it” (emphasis added). Letting wrongdoers, such as
illegal aliens, apply in advance for a “fixed period of forbearance”
(deferred action) would lead to more of the bad behavior in question,
such as overstaying a visa or crossing the border without appropriate
documents.
Take the case of burglary, says Margulies. If a person charged with
burglary is young and his theft was small, a judge may favor a plea
bargain instead of sentencing him to prison. But “it would be difficult
to imagine,” writes Margulies, “prosecutors would solicit applications
from known burglars for a ‘burglars’ holiday’ that would guarantee a
specific period of immunity.”
The Immigration Nationality Act (INA) is a deterring statute. Since its
original enactment in 1952, it has been continually amended to better
deter illegal immigration. By announcing an “illegal aliens’ holiday,”
the president created the moral hazard of giving a reprieve to illegal
aliens, which has the result of suspending the deterring power of the
INA. In a word, then, DAPA and DACA are an “abdication,” and Judge Hanen
is absolutely right.
Any discretion a president may have had in prosecuting illegal aliens
and deferring deportations was taken away by the INA’s IIRIRA (Illegal
Immigration Reform and Immigrant Responsibility Act) amendments of 1996.
Even open-borders pushers like the ACLU agree that the INA as written
leads to “mass deportations”: That is the mandate given to DHS. Even
Noam Chomsky agrees with this characterization. President Clinton, he
says, “militarized” the border in the mid-Nineties in anticipation of
the implementation of NAFTA. According to Chomsky, because independent
Mexican farmers had no way to compete with subsidized U.S. agribusiness,
the “likely consequence would be flight to the United States, joined by
those fleeing the countries of Central America.” To say, as Higginson
does, that the INA could possibly forgo its deterrence factor and
authorize DAPA and DACA takes some serious mental gymnastics.
The Bogus Legal Case for Obama’s Amnesty
Any discretion that Congress allows for must have a “limiting principle”
that narrowly confines the transfer of authority in question, lest it
simply become a runaway power grab. There is no such limitation in DAPA
and DACA. Oddly, Judge Higginson inadvertently supports this argument
when he claims throughout his dissent that the “Family Fairness”
deferred-action program of 1990 provides legal precedent for the
president’s amnesty. That program makes DAPA and DACA “neither new nor
uncommon,” he says. Higginson, however, fails to discuss the limited
applicability of that program.
Family Fairness grew out of the legislative amnesty of 1986, when a
small number of the beneficiaries’ dependents (mostly children) were
left out because of an oversight. Importantly, those children were able
to be sponsored after the beneficiaries became lawful permanent
residents. Congress sought to correct this mistake by making provision
for this class in the Immigration Act of 1990; in the interim (which
lasted several months), members of this class, despite being illegal
aliens, had their deportation proceedings stayed. As law professor Josh
Blackman says, the program served as a “temporary bridge from one status
to another,” with Congress granting the children legal status almost
immediately after it was put in place.
When another Obama-appointed judge, Beryl
Howell of the D.C. District Court, raised Family Fairness as
“precedent” in her dismissal of Arizona sheriff Joe Arpaio’s DACA
challenge, Margulies said she “failed to acknowledge the distinction
between discretion that acted as a bridge to legal status and discretion
unmoored to status” (emphasis added). Deferring prosecution for a
narrowly defined group of people whose change in status is all but
inevitable is the kind of temporary and limited discretion that Congress
arguably can give to the president. But deferring prosecution for large
groups of people is what makes Obama’s amnesty completely unhinged and a
reviewable abdication of duty.
— Ian Smith is an attorney in Washington, D.C., and works for the
Immigration Reform Law Institute.