~
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. 

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U.S. Department of Justice

. . 

Office o f the Inspector General

The "Law Enforcement Sensitive" markings on this document were removed as a result of a
sensitivity review and determination by the U.S. Department of Horneland Security, Immigration
and Customs Enforcement.

'jAW ENFORCEMENT SENSITp.lE

May 3 1, 2016 [Re-posted to oigjustice.gov on September 23, 2016, due to a corrected entry in the Appendix,
see page 12.]
MEMORANDUM FOR KAROL V. MASON
ASS ISTANT ATTORNEY GENERAL
~HE OFFICE OF JUSTICE PROGRAMS

FROM:  

MICHAEL E. HOROWI
INSPECTOR GENE RAL

SUBJECT:  

Departm ent of Ju stice Referral of Allegatio ns of Pote ntial
Violation s of 8 U.S.C. § 1373 by Grant Rec ipients

Thi s is in res po nse to you r e- m ail dated April 8, 20 16, wherein you
advised the Office of the In spector Ge n eral (OIG ) t hat th e Office of Justice
Program s (OJP) h ad "received information th a t indicates that several
jurisd ictions [receivin g Q,JP and Office of Viol en ce Against Wo man (OVW) gra nt
funds] may be in violation of 8 U.S.C. § 1373 ." With th e e-mail , you provided
the OIG a spreadsheet detailing Depa rtm ent grants received by ove r 140 state
and local jurisdictions a nd requested that th e 01G "investigate th e a llegatio n s
that th e jurisdic tions re fl ected in th e attac hed s pread s heet, who are recipients
of funding from th e De partment of Jus tice, are in violation o f 8 U.S.C. Section
1373 ." In a d dition to the spreadsheet, you provided the OIG with a le tter,
dated Fe brua ry 26, 20 16, to Attorn ey General Loretta E . Lyn ch from
Congressman John Culberso n , C ha irman of the House Appropriations
Su bcommittee on Co mm erce, Justice, Scien ce, a nd Re lated Agen c ies, regarding
whether Departme n t gran t recipie n ts were com plying with fed eral law,
particularly 8 U.S.C. § 1373 (Section 1373). Attached to C h airman Culberson's
letter to the Attorney Ge neral was a study co nducted by th e Center for
Immigration S tudies (C IS) in January 2016, which concluded tha t there are
ove r 300 "sanctuary" ju risdic t ions th at refuse to comply w ith U.S. Immigration
and Customs E nfo rcement (ICE) detaine rs o r otherwise impede in fo rmatio n
sharing with fed e ra l immigration offic ia ls . l
! Your e-mail also re ferenced a nd attached the 0I0's Jan uary 2007 report, Cooperation
oj SCAAP 1State Criminal A/ien Assista nce Program) Recipients in the Removal of Criminal Aliel1s
Jrom the Uniled States. In that Congressionally-mandated report, the 0 10 was asked , among
other things, to assess whether entities receiving SCAA P funds were "full y cooperating" with
the Depart ment of Homeland Secu ri ty's efforts to remove undoc umented criminal aliens from
the United S tate s, and whether SCAA P recipie n ts had in effect policies that violated Section

In\W ENFOROEMENT SENSITIVE

 LAW ENFORCEMENT SENSITIVE 


The purpose of this memorandum is to update you on the steps we have
undertaken to address your question and to provide you with the information
we have developed regarding your request. Given our understanding that the
Department's grant process is ongoing, we are available to discuss with you
what, if any, further information you and the Department's leadership believe
would be useful in addressing the concerns reflected in your e-mail.

010 Methodology
At the outset, we determined it would be impractical for the OIG to
promptly assess compliance with Section 1373 by the more than 140
jurisdictions that were listed on the spreadsheet accompanying your referral.
Accordingly, we judgmentally selected a sample of state and local jurisdictions
from the information you provided for further review. We started by comparing
the specific Jurisdictions cited in the CIS report you provided to us with the
jurisdictions identified by ICE in its draft Declined Detainer Outcome Report,
dated December 2, 2014.2 Additionally, we compared these lists with a draft
report prepared by ICE that identified 155 jurisdictions and stated that "all
jurisdictions on this list contain policies that limit or restrict cooperation with
ICE and, as of Q3 FY 2015, have declined detainers."3 From this narrowed list
of jurisdictions, we determined, using the spreadsheet provided with your
e-mail, which jurisdictions had active OJP and OVW awards as of March 17,
2016, the date through which you provided award information, and received
fiscal year (FY) 2015 State Criminal Alien Assistance Program (SCAAP)
payments. Lastly, we considered, based on the spreadsheet, the total dollars
awarded and the number of active grants and payments made as of March 17,

1373. As we describe later in this memorandum, the information we have learned to date
during our recent work about the present matter differs significantly from what OIG personnel
found nearly 10 years ago during the earlier audit. Specifically, during the 2007 audit, ICE
officials commented favorably to the OIG with respect to cooperation and information flow they
received from the seven selected jurisdictions, except for the City and County of San Francisco.
As noted in this memorandum, we heard a very different report from ICE officials about the
cooperation it is currently receiving. Additionally, our 2007 report found that the SCAAP
recipients we reviewed were notifying ICE in a timely manner of aliens in custody, accepting
detainers from ICE, and promptly notifying ICE of impending releases from local custody. By
contrast, as described in this memorandum, all of the jurisdictions we reviewed had ordinances
or policies that placed limits on cooperation with ICE in connection with at least one of the
three areas assessed in 2007.
2 At the time of our sample selection we only had a draft version of this report. We
later obtained an updated copy which was provided to Congress on April 16, 2016. Although it
was provided to Congress, this report was also marked "Draft." The updated draft version of
the report did not require us to alter our sample selection.

3 This version of the declined detainer report covered declined detainers from
January 1, 2014 through June 30,2015.

2


 LAW ENFORCEMENT SENSITIVE 


2016, and sought to ensure that our list contained a mix of state and local
jurisdictions.
Using this process, we judgmentally selected 10 state and local
jurisdictions for further review: the States of Connecticut and California; City
of Chicago, Illinois; Clark County, Nevada; Cook County, Illinois; Miami-Dade
County, Florida; Milwaukee County, Wisconsin; Orleans Parish, Louisiana;
New York, New York; and Philadelphia, Pennsylvania. These 10 jurisdictions
.represent 63 percent of the total value of the active OJP and OVW awards listed
on the spreadsheet as of March 17,2016, and FY 2015 SCAAP payments made
by the Department.
Section 1373 states in relevant part:'
(a) In General. Notwithstanding any other provision of Federal, State, or
local law, a Federal, State, or local government entity or official may
not prohibit, or in any way restrict, any' government entity or official
from sending to, or receiving from, the Immigration and Naturalization
Service information regarding the citizenship or immigration status,
lawful or unlawful, of any individual.
(b) Additional authority of government entities. Notwithstanding any
other provision of Federal, State, or local law, no person or agency
may prohibit, or in any way restrict, a Federal, State, or local
government entity from doing any of the following with respect to
information regarding the immigration status, lawful or unlawful, of
any individual:
(1) Sending such information to, or requesting or receiving such
information from, the Immigration and Naturalization Service.
(2) Maintaining such information.
(3) Exchanging such information with any other Federal, State, or
local government entity.
According to the legislative history contained in the House of
Representatives Report, Section 1373 was intended "to give State and local
officials the authority to communicate with the Immigration and Naturalization
Service (INS) regarding the presence, whereabouts, and activities of illegal
aliens. This section is designed to prevent any State or local law, ordinance,
executive order, policy, constitutional provision, or decision of any Federal or
State court that prohibits or in any way restricts any communication between
State and local officials and the INS."4
4
House of Representatives Report, Immigration in the National Interest Act of 1995,
(H.R. 2202), 1996, H. Rept. 104-469, https:/ /www.congress.gov/l04/crpt/hrpt469/CRPT­

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 LAW ENFORCEMENT SENSITIVE 


For the 10 selected jurisdictions, we researched the local laws and
policies that govern their interactions with ICE - particularly those governing
the ability of the jurisdictions' officers to receive or share information with
federal immigration officials. We then compared these local laws and policies
to Section 1373 in order to try to determine whether they were in compliance
with the federal statute. We also spoke with ICE officials in Washington, D.C.,
to gain their perspective on ICE's relationship with the selected jurisdictions
and their views on whether the application of these laws and policies was
inconsistent with Section 1373 or any other federal immigration laws.
The sections that follow include our analysis of the selected state and
local laws and policies.

State and Local Cooperation with ICE
A primary and frequently cited indicator of limitations placed on
cooperation by state and local jurisdictions with ICE is how the particular state
or local jurisdiction handles immigration detainer requests issued by ICE,
although Section 1373 does not specifically address restrictions by state or
local entities on cooperation with ICE regarding detainers. 5
A legal
determination has been made by the Department of Homeland Security (DHS)
that civil immigration detainers are voluntary requests. 6 The ICE officials with
whom we spoke stated that since the detainers are considered to be voluntary,
they are not enforceable against jurisdictions which do not comply, and these
ICE officials stated further that state and local jurisdictions throughout the
United States vary significantly on how they handle such requests.
In our selected sample of state and local jurisdictions, as detailed in the
Appendix, each of the 10 jurisdictions had laws or policies directly related to
how those jurisdictions could respond to ICE detainers, and each limited in
some way the authority of the jurisdiction to take action with regard to ICE
detainers. We found that while some honor a civil immigration detainer
request when the subject meets certain conditions, such as prior felony
104hrpt469-ptl.pdf (accessed May 24,2016).
5 A civil immigration detainer request serves to advise a law enforcement agency that
ICE seeks custody of an alien presently in the custody of that agency, for the purpose of
arresting and removing the alien. 8 C.F.R. § 287.7(a)
6 Several courts have reached a similar conclusion about the voluntary nature of ICE
detainers. See Galarza v, Szalczyk et al, 745 F.3d 634 (3 rd Cir. 2014) (noting that all Courts of
Appeals to have considered the character of ICE detainers refer to them as "requests,» and
citing numerous such decisions); and Miranda-Olivares v. Clackamas County, 2014 1414305
(D. Or. 2014).

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 LAW ENFORCEMENT SENSITIVE 


convictions, gang membership, or presence on a terrorist watch list, others will
not honor a civil immigration detainer request, standing alone, under any
circumstances. ICE officials told us that because the requests are voluntary,
local officials may also consider budgetary and other considerations that would
otherwise be moot if cooperation was required under federal law.
We also found that the laws and policies in several of the 10 jurisdictions
go beyond regulating responses to ICE detainers and also address, in some
way, the sharing of information with federal immigration authorities. For
example, a local ordinance for the City of Chicago, which is entitled "Disclosing
Information Prohibited," states as follows:
Except as otherwise provided under applicable federal law, no agent or
agency shall disclose information regarding the citizenship or
immigration status of any person unless required to do so by legal
process or such disclosure has been authorized in writing by the
individual to whom such information pertains, or if such individual is a
minor or is otherwise not legally competent, by such individual's parent
or guardian. Chicago Code, Disclosing Infonnation Prohibited § 2-173­
030.

The ordinance's prohibition on a city employee providing immigration status
information "unless required to do so by legal process" is inconsistent with the
plain language of Section 1373 prohibiting a local government from restricting
a local official from sending immigration status information to ICE. The
"except as otherwise provided under applicable federal law" provision, often
referred to as a "savings clause," creates a potential ambiguity as to the proper
construction of the Chicago ordinance and others like it because to be effective,
this "savings clause" would render the ordinance null and void whenever ICE
officials requested immigration status information from city employees. Given
that the very purpose of the Chicago ordinance, based on our review of its
history, was to restrict and largely prohibit the cooperation of city employees
with ICE, we have significant questions regarding any actual effect of this
"savings clause" and whether city officials consider the ordinance to be null
and void in that circumstance. 7
7 The New Orleans Police Department's (NOPD) policy dated February 28, 2016, and
entitled "Immigration Status" also seemingly has a "savings clause" provision, but its language
likewise presents concerns. In your April 8 e-mail to me, you attached questions sent to the
Attorney General by Sen. Vitter regarding whether the NOPD's recent immigration policy was in
compliance with Section 1373. Paragraph 12 of the NOPD policy is labeled "Disclosing
Immigration Information" and provides that "Members shall not disclose information regarding
. the citizenship or immigration status of any person unless:
(a) Required to do so by federal or state law; or
(b) Such disclosure has been authorized in writing by the person who is the subject
of the request for information; or

5


 LAW ENFORCEMENT SENSITIVE 


In addition, whatever the technical implication of the clause generally
referencing federal law, we have concerns that unless city employees were
made explicitly aware that the local ordinance did not limit their legal authority
to respond to such ICE requests, employees likely would be unaware of their
legal authority to act inconsistently with the local ordinance. We noted that in
connection with the introduction of this local ordinance the Mayor of Chicago
stated, "[w]e're not going to turn people over to ICE and we're not going to
check their immigration status, we'11 check for criminal background, but not
for immigration status."s We believe this stated reason for the ordinance, and
its message to city employees, has the potential to affect the understanding of
(c) The person is a minor or otherwise not legally competent, and disclosure is
authorized in writing by the person's parent or guardian.
Sub-section (a) applies only when an NOPD employee has an affirmative obligation, i.e., is
"required" by federal law, to disclose information regarding citizenship or immigration status.
Section 1373, however, does not "require" the disclosure of immigration status information;
rather, it provides that state and local entities shall not prohibit or restrict the sharing of
immigration status information with ICE. Accordingly, in our view, sub-section (a) of the NOPD
policy would not serve as a "savings clause" in addressing Section 1373. Thus, unless the
understanding of NOPD's employees is that they are not prohibited or restricted from sharing
immigration status information with ICE, the policy would be inconsistent with Section 1373.
We did not consider selecting the City of New Orleans to evaluate in this memorandum because
it was not listed as a grant recipient on the spreadsheet you provided.
Similarly, the City and County of San Francisco, CA administrative code, Section 12H.2, is
entitled "Immigration Status" and provides, "No department, agency, commission, officer or
employee of the City and County of San Francisco shall use any City funds or resources to
assist in the enforcement of federal immigration law or to gather or disseminate information
regarding the immigration status of individuals in the City and County of San Francisco unless
such assistance is required by federal or State statute, regulation or court decision." As with
the NOPD policy, a "savings clause" that only applies when a city employee is "required" by
federal law to take some action would not seem to be effective in precluding the law from
running afoul of Section 1373, which "requires" nothing, but instead mandates that state and
local entities not prohibit, or in any way restrict, the sharing of immigration status information
with ICE. Thus, as with the NOPD policy, unless the understanding of San Francisco
employees is that they are permitted to share immigration status information with ICE, the
policy would be inconsistent with Section 1373. According to news reports, last week the San
Francisco Board of Supervisors reaffirmed its policy restricting local law enforcement's
authority to assist ICE, except in limited circumstances. Curtis Skinner, "San Francisco
Lawmakers Vote to Uphold Sanctuary City Policy," Reuters, May 24, 2016,
http://www.reuters.com/article/ us-sanfrancisco-immigration-idUSKCNOYG065 (accessed May
26,2016). We did not consider selecting the City and County of San Francisco to evaluate in
this memorandum because it was -not listed as a grant recipient on the spreadsheet you
provided.
8
Kristen Mack, "Emanuel Proposes Putting Nondetainer Policy On Books," Chicago
Tribune, July 11, 2012, http://articles.chicagotribune.com/2012-07-11/news/ct-met-rahm­

emanuel-immigrants-0711-2012 (accessed May 24,2017).

6


 LAW ENFORCEMENT SENSITIVE 


local officials regarding the performance of their duties, including the
applicability of any restrictions on their interactions and cooperation with ICE.
Similarly, we have concerns that other local laws and policies, that by
their terms apply to the handling of ICE detainer requests, may have a broader
practical impact on the level of cooperation afforded to ICE by these
jurisdictions and may, therefore, be inconsistent with at least the intent of
Section 1373. 9 Specifically, local policies and ordinances that purport to be
focused on civil immigration detainer requests, yet do not explicitly restrict the
sharing of immigration status information with ICE, may nevertheless be
affecting ICE's interactions with the local officials regarding ICE immigration
status requests.
We identified several jurisdictions with policies and
ordinances that raised such concerns, including Cook County, Orleans Parish,
Philadelphia, and New York City.
For example, the Cook County, Illinois, detainer policy states, "unless
ICE agents have a criminal warrant, or County officials have a legitimate law
enforcement purpose that is not related to the enforcement of immigration
laws, ICE agents shall not be given access to individuals or allowed to use
County facilities for investigative interviews or other purposes, and County
personnel shall not expend their time responding to ICE inquiries or
communicating with ICE regarding individuals' incarceration status or release
dates while on duty." Although this policy falls under the heading "Section 46­
37 - Policy for responding to ICE Detainers" and does not explicitly proscribe
sharing immigration status information with ICE, the portion of the prohibition
relating to personnel expending their time responding to ICE inquiries could
easily be read by Cook County officials and officers as more broadly prohibiting
them from expending time responding to ICE requests relating to immigration
status. This possibility was corroborated by ICE officials who told us that Cook
County officials "won't even talk to us [ICE]."
In Orleans Parish, Louisiana, Orleans Parish Sheriffs Office (OPSO)
policy on "ICE Procedures" states that, "OPSO officials shall not initiate any
immigration status investigation into individuals in their custody or
affirmatively provide information on an inmate's release date or address to
ICE." While the latter limitation applies by its terms to information related to
release date or address, taken in conjunction with the prior ban on initiating
immigration status investigations, the policy raises a similar concern as to the

9 A reasonable reading of Section 1373, based on its "in any way restrict" language,
would be that it applies not only to the situation where a local law or policy specifically
prohibits or restricts an employee from providing citizenship or immigration status information
to ICE, but also where the actions of local officials result in prohibitions or restrictions on
employees providing such information to ICE.

7


 LAW ENFORCEMENT SENSITIVE 


limits it places on the authority of OPSO officials to share information on that
topic with ICE.
In Philadelphia, Pennsylvania, the Mayor, on January 4, 2016, issued an
executive order that states, in part, that notice of the pending release of the
subject of an ICE immigration detainer shall not be provided to ICE "unless
such person is being released after conviction for a first or second degree felony
involving violence and the detainer is supported by a judicial warrant."
According to news reports, the purpose of the order was to bar almost all
cooperation between city law enforcement and ICE.I0
In New York City (NYC), a law enacted in November 2014 restricts NYC
Department of Corrections personnel from communicating with ICE regarding
an inmate's release date, incarceration status, or upcoming court dates unless
the inmate is the subject of a detainer request supported by a judicial warrant,
in which case personnel may honor the request. The law resulted in ICE
closing its office on Riker's Island and ceasing operations on any other NYC
Department of Corrections property.
Although the Cook County, Orleans Parish, Philadelphia, and New York
City local policies and ordinances purport to be focused on civil immigration
detainer request~, and none explicitly restricts the sharing of immigration
status with ICE, based on our discussions with ICE officials about the impact
these laws and policies were having on their ability to interact with local
officials, as well as the information we have reviewed to date, we believe these
policies and others like them may be causing local officials to believe and apply
the policies in a manner that prohibits or restricts cooperation with ICE in all
respects. 11 That, of course, would be inconsistent with and prohibited by
Section 1373. 12
10
Michael Matza, "Kenney restores 'sanctuary city' status," Philadelphia Inquirer,
January
6,
2016,
http://articles.philly.com/2016-01-06/news/69541175_1_south­
philadelphia-secure-communities-ice (accessed May 24,2016) and "Kenney rejects U.S. request
to
reverse
'sanctuary
city'
status,"
Philadelphia
Inquirer,
May
4,
2016,
http://www.philly.com/philly I news 120160504_Kenney_rejects_Homeland_Security_s_requesC
to_reverse_Philadelphia_s_sanctuary_city_status.html (accessed May 24,2016)
11
For example, the Newark, NJ police department issued a "Detainer Policy"
instructing all police personnel that "There shall be no expenditure of any departmental
resources or effort by on-duty personnel to comply with an ICE detainer request." More
generally, Taos County, NM detention center policy states: "There being no legal authority upon
which the United States may compel expenditure of country resources to cooperate and enforce
its immigration laws, there shall be no expenditure of any county resources or effort by on-duty
staff for this purpose except as expressly provided herein."
12 The ICE officials we spoke with noted that no one at DHS or ICE has made a formal
legal determination whether certain state and local laws or policies violate Section 1373, and
we are unaware of any Department of Justice decision in that regard. These ICE officials were

8


 LAW ENFORCEMENT SENSITIVE 


Effect on Department of Justice 2016 Grant Funding
We note that, in March 2016, OJP notified SCAAP and JAG applicants
about the requirement to comply with Section 1373, and advised them that if
OJP receives information that an applicant may be in violation of Section 1373
(or any other applicable federal law) that applicant may be referred to the OIG
for investigation. The notification went on to state that if the applicant is found
to be in violation of an applicable federal law by the OIG, the applicant may be
subject to criminal and civil penalties, in addition to relevant OJP
programmatic penalties, including cancellation of payments, return of funds,
participation in the program during the period of ineligibility, or suspension
and debarment.
In light of the Department's notification to grant applicants, and the
information we are providing in this memorandum, to the extent the
Department's focus is on ensuring that grant applicants comply with Sec::tion
1373, based on our work to date we believe there are several steps that the
Department can consider taking:
•   Provide clear guidance to grant recipients regarding whether
Section 1373 is an "applicable federal law" that recipients would be
expected to comply with in order to satisfy relevant grant rules and
regulations; 13
•   Require grant applicants to provide certifications specifying the
applicants' compliance with Section
1373, along with
documentation sufficient to support the certification.
•   Consult with the Department's law enforcement counterparts at
ICE and other agencies, prior to a grant award, to determine
whether, in their view, the applicants are prohibiting or restricting
employees from sharing with ICE information regarding the
citizenship or immigration status of individuals, and are therefore
not in compliance with Section 1373.
•   Ensure that grant recipients clearly communicate to their
personnel the provisions of Section 1373, including those
also unaware of any legal action taken by the federal government against a state or local
jurisdiction to require cooperation.
13 We note that AAG Kadzik's letter to Chairman Culberson dated March 18, 2016,
states that Section 1373 "could" be an applicable federal law that with which grant recipients
must comply in order to receive grant funds, not that it is, in fact, an applicable federal law.

9


 LAW ENFORCEMENT SENSITIVE 


employees cannot be prohibited or restricted from sending
citizenship or immigration status information to ICE.
These steps would not only provide the Department with assurances
regarding compliance with Section 1373 prior to a grant award, but also would
be helpful to the OIG if the Department were to later refer to the- OIG for
investigation a potential Section 1373 violation (as the Department recently
warned grant applicants it might do in the future).
We would be pleased to meet with you and Department's leadership to
discuss any additional audit or investigative efforts by the OIG that would
further assist the Department with regard to its concerns regarding Section
1373 compliance by state and local jurisdictions. Such a meeting would allow
us to better understand what information the Department's management
would find useful so that the OIG could assess any request and consult with
our counterparts at the Department of Homeland Security Office of the
Inspector General, which would necessarily need to be involved in any efforts to
evaluate the specific effect oflocal policies and ordinances on ICE's interactions
with those jurisdictions and their compliance with Section 1373.
Thank you for referring this matter to the OIG.
hearing from you regarding a possible meeting.

10 


We look forward to

 LAW ENFORCEMENT SENSITIVE

APPENDIX


OIG Approach

At the outset, we determined it would be impractical for the OIG to
promptly assess compliance with Section 1373 by the more than 140
jurisdictions that were listed on the spreadsheet accompanying your referral.
Accordingly, we judgmentally selected a sample of state and local jurisdictions
from the information you provided for further review. We started by comparing
the specific jurisdictions cited in the CIS report you provided to us with the
jurisdictions identified by ICE in its draft Declined Detainer Outcome Report,
dated December 2, 2014. 14 Additionally, we compared these lists with a draft
report prepared by ICE that identified 155 jurisdictions and stated that “all
jurisdictions on this list contain policies that limit or restrict cooperation with
ICE and, as of Q3 FY 2015, have declined detainers.” 15 From this narrowed list
of jurisdictions, we determined, using the spreadsheet that you provided with
your e-mail, which jurisdictions had active OJP and OVW awards as of March
17, 2016, the date through which you provided award information, and
received fiscal year (FY) 2015 State Criminal Alien Assistance Program (SCAAP)
payments. Lastly, we considered, based on the spreadsheet, the total dollars
awarded and the number of active grants and payments made as of March 17,
2016, and sought to ensure that our list contained a mix of state and local
jurisdictions. Using this process we selected the 10 jurisdictions listed in the
following table for further review. The dollar figure represents 63 percent of the
active OJP awards as of March 17, 2016, and FY 2015 SCAAP payments made
by the Department.
Jurisdiction
State of Connecticut
State of California
Orleans Parish, Louisiana
New York, New York
Philadelphia, Pennsylvania
Cook County, Illinois
City of Chicago, Illinois
Miami-Dade County, Florida
Milwaukee, Wisconsin
Clark County, Nevada
TOTAL
Source: OJP

Total Award Amounts Reported by OJP
$69,305,444
$132,409,635
$4,737,964
$60,091,942
$16,505,312
$6,018,544
$28,523,222
$10,778,815
$7,539,572
$6,257,951
$342,168,401

At the time of our sample selection we only had a draft version of this report. We
later obtained an updated copy which was provided to Congress on April 16, 2016. Although it
was provided to Congress, this report was also marked “Draft.” The updated draft version of
the report did not require us to alter our sample selection.
14

15
This version of the declined detainer report covered declined detainers from
January 1, 2014 through June 30, 2015.

11


 LAW ENFORCEMENT SENSITIVE
The following table lists each of the jurisdictions selected for review by
the OIG and the key provisions of its laws or policies related to ICE civil
immigration detainer requests and the sharing of certain information with ICE,
if applicable.
Jurisdiction
State of Connecticut
The statement of Connecticut
law has been corrected from a
prior version of this
memorandum. This correction
does not affect the analysis or
conclusions of this
memorandum. We regret the
error, and have notified those
to whom we sent the
memorandum of the
correction.

Provisions of Key Local Laws or Policies
Related to Civil Immigration Detainer Requests or
Information Sharing with ICE 16
Public Act No. 13-155, An Act Concerning Civil
Immigration Detainers …

(b) No law enforcement officer who receives a civil
immigration detainer with respect to an individual who
is in the custody of the law enforcement officer shall
detain such individual pursuant to such civil
immigration detainer unless the law enforcement official
determines that the individual:
(1) Has been convicted of a felony;
(2) Is subject to pending criminal charges in this state
where bond has not been posted;
(3) Has an outstanding arrest warrant in this state;
(4) Is identified as a known gang member in the
database of the National Crime Information Center or
any similar database or is designated as a Security Risk
Group member or a Security Risk Group Safety Threat
member by the Department of Correction;
(5) Is identified as a possible match in the federal
Terrorist Screening Database or similar database;
(6) Is subject to a final order of deportation or removal
issued by a federal immigration authority; or
(7) Presents an unacceptable risk to public safety, as
determined by the law enforcement officer.
(c) Upon determination by the law enforcement officer
that such individual is to be detained or released, the
law enforcement officer shall immediately notify United
States Immigration and Customs Enforcement. If the
individual is to be detained, the law enforcement officer
shall inform United States Immigration and Customs
Enforcement that the individual will be held for a
maximum of forty-eight hours, excluding Saturdays,
Sundays and federal holidays. If United States
Immigration and Customs Enforcement fails to take
custody of the individual within such forty-eight-hour
period, the law enforcement officer shall release the
individual. In no event shall an individual be detained
for longer than such forty-eight-hour period solely on
the basis of a civil immigration detainer.
Approved June 25, 2013

Several specific citations to various state and local laws and policies were removed
for brevity.
16

12

 LAW ENFORCEMENT SENSITIVE


Jurisdiction
State of California

Provisions of Key Local Laws or Policies
Related to Civil Immigration Detainer Requests or
Information Sharing with ICE 16
An act to add Chapter 17.1 (commencing with Section
7282) to Division 7 of Title I of the Government Code,
relating to state government….
7282.5. (a) A law enforcement official shall have
discretion to cooperate with federal immigration officials
by detaining an individual on the basis of an
immigration hold after that individual becomes eligible
for release from custody only if the continued detention
of the individual on the basis of the immigration hold
would not violate any federal, state, or local law, or any
local policy, and only under any of the following
circumstances …

Orleans Parish, Louisiana

Effective Date: October 5, 2013.
The Orleans Parish Sheriff’s Office (OPSO) shall decline
all voluntary ICE detainer requests unless the
individual's charge is for one or more of the following
offenses: First Degree Murder; Second Degree Murder;
Aggravated Rape; Aggravated Kidnapping; Treason; or
Armed Robbery with Use of a Firearm. If a court later
dismisses or reduces the individual's charge such that
the individual is no longer charged with one of the above
offenses or the court recommends declining the ICE
hold request, OPSO will decline the ICE hold request on
that individual.
Orleans Parish Sheriff’s Office Index No. 501.15,
Updated June 21, 2013.

New York, New York

Title: A Local Law to amend the administrative code of
the city of New York, in relation to persons not to be
detained by the department of correction.
Bill Summary: … The DOC would only be permitted to
honor an immigration detainer if it was accompanied by
a warrant from a federal judge, and also only if that
person had not been convicted of a "violent or serious"
crime during the last five years or was listed on a
terrorist database. Further, the bill would prohibit DOC
from allowing ICE to maintain an office on Rikers Island
or any other DOC property and would restrict DOC
personnel from communicating with ICE regarding an
inmate's release date, incarceration status, or court
dates, unless the inmate is the subject of a detainer
request that DOC may honor pursuant to the law.
Enacted Date: November 14, 2014, Law No.
2014/058.

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 LAW ENFORCEMENT SENSITIVE


Jurisdiction
Philadelphia, Pennsylvania

Provisions of Key Local Laws or Policies
Related to Civil Immigration Detainer Requests or
Information Sharing with ICE 16
Executive Order No. 5-16 - Policy Regarding U.S.
Immigration and Customs Enforcement Agency Detainer
Requests…
NOW, THEREFORE, I, JAMES F. KENNEY, Mayor of the
City of Philadelphia, by the powers vested in me by the
Philadelphia Home Rule Charter, do hereby order as
follows:
SECTION 1. No person in the custody of the City who
otherwise would be released from custody shall be
detained pursuant to an ICE civil immigration detainer
request pursuant to 8 C.F.R. § 287.7, nor shall notice of
his or her pending release be provided, unless such
person is being released after conviction for a first or
second degree felony involving violence and the detainer
is supported by a judicial warrant.
Signed by Philadelphia Mayor, January 4, 2016.

Cook County, Illinois

Sec. 46-37- Policy for responding to ICE detainers ...
(b) Unless ICE agents have a criminal warrant, or
County officials have a legitimate law enforcement
purpose that is not related to the enforcement of
immigration laws, ICE agents shall not be given access
to individuals or allowed to use County facilities for
investigative interviews or other purposes, and County
personnel shall not expend their time responding to ICE
inquiries or communicating with ICE regarding
individuals' incarceration status or release dates while
on duty.
Approved and adopted by the President of the Cook
County Board of Commissioners on September 7,
2011.

City of Chicago, Illinois

Civil Immigration Enforcement Actions – Federal
Responsibility §2-173-042 …
(b)(1) Unless an agent or agency is acting pursuant to a
legitimate law enforcement purpose that is unrelated to
the enforcement of a civil immigration law, no agency or
agent shall:
(A) permit ICE agents access to a person being
detained by, or in the custody of, the agency or
agent;
(B) permit ICE agents use of agency facilities for
investigative interviews or other investigative
purpose; or
(C) while on duty , expend their time responding to

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 LAW ENFORCEMENT SENSITIVE


Jurisdiction

Provisions of Key Local Laws or Policies
Related to Civil Immigration Detainer Requests or
Information Sharing with ICE 16
ICE inquiries or communicating with ICE
regarding a person’s custody status or release
date …
Disclosing Information Prohibited § 2-173-030
Except as otherwise provided under applicable federal
law, no agent or agency shall disclose information
regarding the citizenship or immigration status of any
person unless required to do so by legal process or such
disclosure has been authorized in writing by the
individual to whom such information pertains, or if
such individual is a minor or is otherwise not legally
competent, by such individual’s parent or guardian.
Updated November 8, 2012.

Miami-Dade County, Florida

Resolution No. R-1008-13: Resolution directing the mayor
or mayor’s designee to implement policy on responding to
detainer requests from the United States Department of
Homeland Security Immigration and Customs
Enforcement
NOW, THEREFORE, BE IT RESOLVED BY THE BOARD
OF COUNTY COMMISSIONERS OF MIAMI-DADE
COUNTY, FLORIDA, that the Mayor or Mayor's designee
is directed to implement a policy whereby Miami-Dade
Corrections and Rehabilitations Department may, in its
discretion, honor detainer requests issued by United
States Immigration and Customs Enforcement only if
the federal government agrees in writing to reimburse
Miami-Dade County for any and all costs relating to
compliance with such detainer requests and the inmate
that is the subject of such a request has a previous
conviction for a Forcible Felony, as defined in Florida
Statute section 776.08, or the inmate that is the subject
of such a request has, at the time the Miami-Dade
Corrections and Rehabilitations Department receives
the detainer request, a pending charge of a nonbondable offense, as provided by Article I, Section 14 of
the Florida Constitution, regardless of whether bond is
eventually granted.
Resolution passed and adopted by Miami-Dade
Mayor, December 3, 2013.

Milwaukee County, Wisconsin

Amended Resolution - File No. 12-135
BE IT RESOLVED, that the Milwaukee County Board of
Supervisors hereby adopts the following policy with
regard to detainer requests from the U.S. Department of

15


 LAW ENFORCEMENT SENSITIVE


Jurisdiction

Provisions of Key Local Laws or Policies
Related to Civil Immigration Detainer Requests or
Information Sharing with ICE 16
Homeland Security - Immigrations and Customs
Enforcement:
1. Immigration detainer requests from Immigrations and
Customs Enforcement shall be honored only if the
subject of the request:
a) Has been convicted of at least one felony or two nontraffic misdemeanor offenses
b) Has been convicted or charged with any domestic
violence offense or any violation of a protective order
c) Has been convicted or charged with intoxicated use of
a vehicle
d) Is a defendant in a pending criminal case, has an
outstanding criminal warrant, or is an identified gang
member
e) Is a possible match on the US terrorist watch list

Clark County, Nevada

Enacted: June 4, 2012
“Recent court decisions have raised Constitutional
concerns regarding detention by local law enforcement
agencies based solely on an immigration detainer
request from the Immigration and Customs
Enforcement (ICE). Until this areas of the law is further
clarified by the courts, effective immediately the Las
Vegas Metropolitan Police Department will no longer
honor immigration detainer requests unless one of the
following conditions are met:
1. Judicial determination of Probable Cause for
that detainer; or
2. Warrant from a judicial officer.
… The Las Vegas Metropolitan Police Department
continues to work with our federal law enforcement
partners and will continue to provide professional
services to the Las Vegas community regardless of their
immigration status in United States.
Via Press Release on: July 14, 2014.

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