SAXBE V. BUSTOS
Citation | 419 U. S. 65 |
Decision Date | 25 November 1974 |
Court | United States Supreme Court |
CERTIORARI TO THE UNITED STATES COURT OF APPEALS
FOR THE DISTRICT OF COLUMBIA CIRCUIT
Some aliens who live in Mexico and Canada commute to work in the United States. The Immigration and Naturalization Service has approved this practice with respect to both daily and seasonal commuters, and has classified such aliens as immigrants "lawfully admitted for permanent residence" who are "returning from a temporary visit abroad," a category of "special immigrant" defined by the Immigration and Nationality Act, 8 U.S.C. § 1101(a) (27)(b). Those with that classification have freedom from usual documentation and numerical requirements and from the labor certification requirements of 8 U.S.C. § 1182(a)(14). Certain farmworkers and a collective bargaining agent for farmworkers brought this suit for declaratory and injunctive relief against the practice of thus classifying such alien commuters. The District Court dismissed the action. The Court of Appeals upheld the classification as to daily commuters but rejected it as to seasonal commuters.
Held: Alien commuters are immigrants who are "lawfully admitted for permanent residence," and are "returning from a temporary visit abroad" when they enter the United States, and this "special immigrant" classification is applicable to both daily and seasonal commuters. This has long been the administrative construction of the statute in the context of alien commuters, a factor which must be accorded great weight when, as here, Congress has considered the subject and has not seen fit to alter the administrative practice. P P. 69-80.
156 U.S.App.D.C. 304, 481 F.2d 479, affirmed in part and reversed in part.
Some aliens who have their homes in Canada or Mexico commute daily to places of employment in this country and others do so on a seasonal basis, a practice permitted by the Immigration and Naturalization Service. The question is whether the practice on the facts of these cases conforms with the Immigration and Nationality Act. It turns on the meaning of § 101(a)(27)(B), 66 Stat. 169, as amended, 79 Stat. 916. 8 U.S.C. § 1101(a)(27)(B), which defines as one variety of "special immigrant" an immigrant "lawfully admitted for permanent residence, who is returning from a temporary visit abroad."
Those who qualify under § 1101(a)(27)(B) may be permitted entry without the usual documentation requirements. 8 U.S.C. § 1181(b). The regulations [Footnote 1] implement § 1181(b) by allowing such an immigrant to use an alien registration receipt card, normally called a "green card," in lieu of an immigrant visa and without
regard to numerical limitations [Footnote 2] if he is "returning to an unrelinquished lawful permanent residence in the United States after a temporary absence abroad not exceeding 1 year."
An alien achieves that status in the first instance by complying with any applicable numerical limitations and with the Act's other requirements for admission, details not important here. After his initial admission on that basis, he is free to leave this country temporarily and to reenter without regard to numerical limitations. The Act authorizes the Attorney General to re-admit such an alien without a visa or other formal documentation. § 1181(b). He has exercised that authority, allowing such an immigrant to return with what was called in the briefs and oral argument the "green card."
This suit was brought by the United Farm Workers Organizing Committee [Footnote 11] for declaratory and injunctive
relief against the practice of giving alien commuters the documentation and labor certification benefits of classification as immigrants "lawfully admitted for permanent residence" who are "returning from a temporary visit abroad." [Footnote 12] The District Court dismissed the action without opinion. The Court of Appeals held that the admission of daily commuters was proper, but that the admission of seasonal commuters was not, 156 U.S.App.D.C. 304, 481 F.2d 479 (1973). We granted the petition and cross-petition in light of a conflict between the decision below and that of the Court of Appeals for the Ninth Circuit in Gooch v. Clark, 433 F.2d 74 (1970).
Our conclusions are that commuters are immigrants, that they are "lawfully admitted for permanent residence," and that they are "returning from a temporary visit abroad" when they enter the United States. Moreover, the wording and legislative history of the statute and the long administrative construction indicate that the same treatment is appropriate for both daily and seasonal commuters. Commuters are thus different from those groups of aliens who can be admitted only on certification by the Secretary of Labor that unemployed persons cannot be found in this country and that the employment of the aliens "will not adversely affect the wages and working conditions of the workers in the United States." 8 U.S.C. § 1182(a)(14). We thus agree with the conclusion
of the Ninth Circuit in Gooch. Accordingly, we affirm the judgment now before us as respects daily commuters and reverse it as respects seasonal commuters.
Before an alien can be classified as a nonimmigrant under subsection (15)(H)(ii), his prospective employer must submit a petition on his behalf under 8 U.S.C. § 1184(c), and, after the INS approves the petition, the alien must apply for nonimmigrant status and demonstrate that he, in fact, qualifies for that status. [Footnote 17]
We conclude that commuters are not nonimmigrants under subsection (15)(H)(ii). None of the other categories of nonimmigrants are applicable, and thus under § 1184(b) the commuters are immigrants.
The fact that an alien commuter who has not shown he must be classified as a nonimmigrant must be classified as an immigrant is not the end of our problem. The question remains whether he may properly be treated as one who is in the group defined as "special immigrants" under subsection (27)(B), [Footnote 18] that is, whether commuters are "lawfully admitted for permanent residence" when they...
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