2015]
LIFE AFTER LIMBO
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efforts are futile in the case of stateless persons, and when they are ultimately
released from detention, they are cast into a legal limbo in which they spend
the rest of their lives on immigration parole, uncertain as to what their future
may hold. This troubling gap in humanitarian protection has gone unaddressed in the United States for too long.
Notably, U.S. lawmakers have made great strides to codify international
humanitarian protections for certain at-risk migrants.3 In particular, over the
last thirty-five years, the United States has incorporated international refugee
law into U.S. immigration law, and created a process through which persons
who demonstrate a fear of persecution abroad because of some protected
characteristic may seek asylum in the United States.4 While an analogous
body of international law exists for the protection of stateless persons who
have no nationality under the operation of laws of any country, this body of
law has never been made part of the U.S. protection framework. While some
stateless persons are also refugees, and therefore may benefit from the U.S.
system of asylum protection, many are not. Therefore, stateless persons—
like Mikhail—are left stranded without protection under U.S. immigration
law.
An important development in this regard was a proposal by the U.S.
Senate to establish a mechanism for the protection of stateless persons under
the Immigration and Nationality Act (INA) as part of its 2013 comprehensive
immigration reform bill, the Border Security, Economic Opportunity, and
Immigration Modernization Act (SB 744).5 This proposed incorporation of
statelessness protection into U.S. immigration law has been underreported,
and its potential as a humanitarian remedy that would mitigate bureaucratic
inefficiency has been underappreciated. The current ebb in the tide of reform
of the U.S. immigration system provides an important moment for reflection
about the recent proposal to address the problem of statelessness in the
United States.
This article argues that it is imperative to establish a protection mechanism
for stateless persons in the United States, but that the proposed mechanism
may fail to meaningfully address the statelessness problem if it is not tethered
to the international protection framework. This discussion is divided into
three sections.
The first section provides a brief overview of the historical roots for the
international protection regimes for refugees and stateless persons. It
describes the overlap between the two populations and the relationship
between the two governing legal regimes so as to highlight the importance of
utilizing the experience of refugee protection in the project to eradicate
3. See 8 U.S.C. § 1231(b)(3).
4. Refugee Act of 1980, Pub. L. No. 96-212, 94 Stat. 102 (1980); see also 8 U.S.C. § 1158.
5. See S. 744, 113th Cong. § 3405 (2013), available at https://beta.congress.gov/bill/113thcongress/senate-bill/744/text.
Electronic copy available at: https://ssrn.com/abstract=2796321