Flores v. Rosen

984 F.3d 720

Jenny Lisette FLORES, Plaintiff-Appellee,

v.Jeffrey A. ROSEN, Acting Attorney General; Chad F. Wolf; U.S. Department of Homeland Security; U.S. Immigration and Customs Enforcement; U.S. Customs and Border Protection, Defendants-Appellants.

No. 19-56326

United States Court of Appeals, Ninth Circuit.

Argued and Submitted May 19, 2020 San Francisco, California

Filed December 29, 2020

August E. Flentje (argued), Special Counsel to the Assistant Attorney General; Sarah B. Fabian, Senior Litigation Counsel; William C. Silvis, Assistant Director; Jeffrey Robins, Deputy Director; William C. Peachey, Director; Joseph Hunt, Assistant Attorney General; Office of Immigration Litigation, Civil Division, United States Department of Justice, Washington, D.C.; for Defendants-Appellants.

Carlos R. Holguin (argued) and Peter A. Schey, Center for Human Rights & Constitutional Law, Los Angeles, California; Holly S. Cooper, Co-Director, Immigration Law Clinic, University of California Davis School of Law, Davis, California; Leecia Welch, Neha Desai, Poonam Juneja, and Freya Pitts, National Center for Youth Law, Oakland, California; Kevin Askew, Orrick Herrington & Sutcliffe LLP, Los Angeles, California; for Plaintiff-Appellee.

Elizabeth B. Wydra, Brianne J. Gorod, and Dayna J. Zolle, Constitutional Accountability Center, Washington, D.C., for Amici Curiae Members of Congress.

James H. Hulme, Arent Fox LLP, Washington, D.C.; David L. Dubrow and Melissa Trenk, Arent Fox LLP, New York, New York; Justin A. Goldberg, Arent Fox LLP, Los Angeles, California; for Amici Curiae American Pediatric Association, American Pediatric Society, American Academy of Child and Adolescent Psychiatry, American Academy of Pediatrics, American Academy of Pediatrics California Chapter, American Academy of Pediatrics Pennsylvania Chapter, American Academy of Pediatrics Texas Chapter, American Association for Psychoanalysis in Clinical Social Work, American Medical Association, American Professional Society on the Abuse of Children, American Psychiatric Association, American Psychoanalytic Association, Association of Medical School Pediatric Department Chairs, California Medical Association, California Psychiatric Association, Center for Law and Social Policy, Center for Youth Wellness, Children's Defense Fund, Doctors for America, Lutheran Immigration and Refugee Service, March of Dimes, National Association of Pediatric Nurse Practitioners, National Association of Social Workers, National Education Association, Society for Pediatric Research, Women's Refugee Commission, First Focus On Children, Save The Children Action Network Inc., Save The Children US, United States Fund for UNICEF, and Zero To Three.

Amanda Aikman, Jennifer K. Brown, and Natasha Greer Menell, Morrison & Foerster LLP, New York, New York, for Amici Curiae Interfaith Group of 40 Religious and Interreligious Organizations.

Alexis Coll-Very, Redwood City, California; Molly L. Leiwant, New York, New York; Wendy Wylegala, Kids in Need of Defense, New York, New York; for Amici Curiae Kids in Need of Defense, Capital Area Immigrants' Rights Coalition, Catholic Legal Immigration Network Inc., Florence Immigrant and Refugee Rights Project, Immigrant Children Advocates' Relief Efforts, International Rescue Committee, Legal Services for Children, National Immigrant Justice Center, Northwest Immigrant Rights Project, Public Counsel, and Young Center for Immigrant Children's Rights.

Sarah P. Alexander, Constantine Cannon LLP, San Francisco, California, for Amici Curiae Human Rights Watch and Amnesty International USA.

Aaron X. Fellmeth, Arizona State University, Sandra Day O'Connor College of Law, Phoenix, Arizona; W. Warren H. Binford, Willamette University College of Law, Salem, Oregon; Blaine I. Green and Erica Turcios Yader, Pillsbury Winthrop Shaw Pittman LLP, San Francisco, California; Michael Garcia Bochenek, New York, New York; Stella Burch Elias, University of Iowa College of Law, Iowa City, Iowa; Ian M. Kysel, Cornell Law School, Ithaca, New York; for Amici Curiae Legal Scholars and Nongovernmental Organizations.

Joseph P. Lombardo, Sara T. Ghadiri, and Eric S. Silvestri, Chapman and Cutler LLP, Chicago, Illinois, for Amici Curiae Children's Advocacy Organizations.

Xavier Becerra, Attorney General; Michael L. Newman, Senior Assistant Attorney General; Sarah E. Belton, Supervising Deputy Attorney General; Virginia Corrigan, Rebekah A. Fretz, Vilma Palma Solana, and Julia Harumi Mass, Deputy Attorneys General; California Department of Justice, Oakland, California; William Tong, Attorney General, Hartford, Connecticut; Kathleen Jennings, Attorney General, Wilmington, Delaware; Kwame Raoul, Attorney General, Chicago, Illinois; Aaron M. Frey, Attorney General, Augusta, Maine; Brian E. Frosh, Attorney General, Baltimore, Maryland; Maura Healey, Attorney General, Boston, Massachusetts; Dana Nessel, Attorney General, Lansing, Michigan; Keith Ellison, Attorney General, St. Paul, Minnesota; Aaron D. Ford, Attorney General, Carson City, Nevada; Gurbir S. Grewal, Attorney General, Trenton, New Jersey, Hector Balderas, Attorney General, Santa Fe, New Mexico; Letitia James, Attorney General, New York, New York; Ellen F. Rosenblum, Attorney General, Salem, Oregon; Josh Shapiro, Attorney General, Harrisburg, Pennsylvania; Peter F. Neronha, Attorney General, Providence, Rhode Island; Thomas J. Donovan Jr., Attorney General, Montpelier, Vermont; Mark R. Herring, Attorney General, Richmond, Virginia; Robert W. Ferguson, Attorney General, Olympia, Washington; Karl A. Racine, Attorney General, Washington, D.C.; for Amici Curiae States of California, Connecticut, Delaware, Illinois, Maine, Maryland, Massachusetts, Michigan, Minnesota, Nevada, New Jersey, New Mexico, New York, Oregon, Pennsylvania, Rhode Island, Vermont, Virginia, Washington, and the District of Columbia.

Michael N. Feuer, City Attorney; Kathleen Kenealy, Valerie L. Flores, Michael Dundas, and Danielle L. Goldstein, Attorneys; Office of the City Attorney, Los Angeles, California; Donna R. Ziegler, County Counsel, Oakland, California; Craig Labadie, City Attorney, Albany, California; Esteban A. Aguilar Jr., City Attorney, Albuquerque, New Mexico; Joanna C. Anderson, City Attorney, Alexandria, Virginia; Nina R. Hickson, City Attorney, Atlanta, Georgia; Anne L. Morgan, City Attorney, Austin, Texas; Andre M. Davis, City Solicitor, Baltimore, Maryland; Farimah F. Brown, City Attorney, Berkeley, California; Eugene O'Flaherty, Corporation Counsel, Boston, Massachusetts; Nancy E. Glowa, City Solicitor, Cambridge, Massachusetts; Mark A. Flessner, Corporation Counsel, and Benna Ruth Solomon, Deputy Corporation Counsel, Chicago, Illinois; William R. Hanna, Director of Law, Cleveland Heights, Ohio; Zach Klein, City Attorney, Columbus, Ohio; Sharon L. Anderson, County Counsel, Martinez, California; Jessica M. Scheller, Assistant State's Attorney, Chicago, Illinois; Heather M. Minner, City Attorney, Cupertino, California; Ronald C. Lewis, City Attorney, Houston, Texas; Charles Parkin, City Attorney, Long Beach California; Margaret L. Carter, O'Melveny & Myers LLP, Los Angeles, California; Michael P. May, City Attorney, Madison, Wisconsin; Leslie J. Girard, County Counsel, Salinas, California; James E. Johnson, Corporation Counsel, New York, New York; Barbara J. Parker, City Attorney, Oakland, California; Marcel S. Pratt, City Solicitor, Philadelphia, Pennsylvania; Cris Meyer, City Attorney, Phoenix, Arizona; Yvonne S. Hilton, City Solicitor, Pittsburgh, Pennsylvania; Tracy P. Reeve, City Attorney, Portland, Oregon; Jeffrey Dana, City Solicitor, Providence, Rhode Island; Susan Alcala Wood, City Attorney, Sacramento, California; Dennis J. Herrera, City Attorney, San Francisco, California; Richard Doyle, City Attorney, San Jose, California; James R. Williams, County Counsel, San Jose, California; Dana McRae, County Counsel, Santa Cruz, California; Peter S. Holmes, City Attorney, Seattle, Washington; Francis X. Wright Jr., City Solicitor, Somerville, Massachusetts; Michael Jenkins, City Attorney, Best Best & Krieger LLP, Manhattan Beach, California; for Amici Curiae 37 Cities and Counties.

Before: William A. Fletcher, Marsha S. Berzon, and Milan D. Smith, Jr.,^* Circuit Judges.

OPINION

BERZON, Circuit Judge:

We consider again the consent decree incorporating the Flores Agreement, a 1997 settlement agreement between the United States and a class of all minors subject to immigration detention ("the Agreement"). The Agreement established nationwide standards for the "detention, release, and treatment of minors" by U.S. immigration authorities. Agreement ¶ 9. By the Agreement's own terms, it terminates after the government's "publication of final regulations implementing this Agreement." Id . ¶ 40 (as modified by Stipulation, Dec. 7, 2001).

In 2019, the government issued final regulations represented as implementing, and thus terminating, the Agreement. The new regulations largely mirror the Agreement's protections for unaccompanied minors, but they significantly reduce the limits on detention for minors taken into custody with a family member or guardian ("accompanied minors"). The district court concluded that the new regulations, on the whole, were inconsistent with the Agreement. It enjoined the regulations from taking effect and denied the government's motion to terminate the Agreement.

We hold that the provisions of the new regulations relating to unaccompanied minors are generally consistent with the Agreement and may take effect, with two exceptions. Additionally, some of the regulations regarding initial detention and custody of both unaccompanied and accompanied minors are consistent with the Agreement and may take effect.

The remaining new regulations relating to accompanied minors depart from the Agreement in several important ways. We therefore affirm the district court's order enjoining those regulations. Additionally, the district court correctly...