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8/14/2019 2013 Ohio Latino Community Report For the 130th General Assembly Deferred Action for Childhood Arrivals Eligibi
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2013
LatinoCommunity
Report
For the 130th General Assembly
Deferred Action for
Childhood Arrivals
Eligibility, Demographics, and Implications for Ohio
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ThisLatinoCommunityReportwascomposedbyNolanStevens,J.D.,PublicPolicyOfficerattheOhio
CommissiononHispanic/LatinoAffairs.OCHLAismandatedbyOhiolawtoadvisethemembersofOhios
GeneralAssemblyontheparticularissues,challengesandopportunitiesfacingtheirHispanic
constituents.LatinoCommunityReportsarereleasedthreetimespercalendaryear,andeachcovera
differenttopic.
ToviewpriorLatinoCommunityReports,orformoreinformation,pleasevisitOCHLAswebsiteat
http://www.ochla.ohio.gov,calltheofficeat(614)4668333,orbyemailingOCHLAslegislativeliaison
NolanStevens,[email protected].
36th
BoardofCommissioners,October2012September2013
MichaelG.Florez,ChairCincinnati
V.AnthonySimmsHowellCincinnati
IrisMartinezDayton
LuisTonyOrtizDayton
Rev.MaxRodasCleveland
MarySantiagoLorain
RichardRomeroLorain
BaldemarVelasquezToledo
SenatorGayleManning(exofficio)13thDistrict
SenatorCharletaTavares(exofficio)15th
District
RepresentativeDanRamos(exofficio)56thDistrict
RepresentativeMattLynch(exofficio)76th
District
Staff
LilleanaCavanaugh,
MBA,
CPM
Executive
Director
LairMarinMarcumLatinoCommunityOfficer
NolanStevens,JDPublicPolicyOfficer
FaustoRivasAdministrativeClerk
*Allincluded,uncreditedgraphicsareeitheroriginatedbytheauthororotherwisefreefromcopyrightclaims.
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1. ExecutiveSummaryThereportisacomprehensiveanalysisoftheDeferredActionforChildhoodArrivalsinitiativeandits
implicationsforOhio.Itisdividedintoseveralsections,whichcover,respectively:anintroductionto
DACA,adiscussion
of
DACA
eligibility
requirements,
an
overview
of
the
DACA
application
process,
an
explorationofthedemographicsofDACArecipients,andananalysisoftheimplicationsofDeferred
ActionforOhio.Eachsectionreliesonlaws,reportsandanalysesgeneratedbymyriadthirdparties,in
additiontosomeoriginalresearch.Hyperlinksinfootnoteswilltakereaderstosourcedocuments.
Theinitialsectiondescribesthebasicsoftheprogram,includingitsoriginandthebenefitsthat
approvedapplicantsreceive.DeferredActionforChildhoodArrivalsisaformofprosecutorialdiscretion
initiatedbytheU.S.DepartmentofHomelandSecurityinJune2012.Recipientsarelawfullypresentin
theUnitedStatesforrenewabletwoyearperiods,andreceiveworkauthorizationsandSocialSecurity
Numbers.Whileitcontemplatesthesamegroupofyoungundocumentedimmigrants,itisnotthe
DREAM
Act,
because
it
does
not
provide
a
path
to
citizenship.
It
also
is
not
an
executive
order,
and
it
is
notanamnesty.
ThesecondsectionincludesasummaryoftheeligibilityrequirementsforDeferredAction.Applicants
mustmeetage,durationofpresenceintheU.S.andeducationormilitaryservicerequirementstobe
approvedfortheprogram.Further,applicantscannothaveconvictionsforfeloniesorsignificant
misdemeanors,orthreeormoreothermisdemeanors.Thethirdsection,whichcoverstheapplication
process,discussesthesignificantfeesthatDACAapplicantspay,thebackgroundandbiometricschecks
towhichtheymustsubmit,andthemethodsbywhichapplicantsproveidentity,age,educationand
presence.Thesectionincludesinformationonthesomewhatlowapplicationrate,aswellasthehigh
approvalrateforthosethatdoapply.Finally,thesectionmentionsthepotentialforsocallednotario
fraud,whereinconartistsvictimizeapplicantsinsearchoflegaladviceandassistance.
Thereportalsodiscussesthedemographicprofileofthe1.9millionyoungimmigrantsthatareormay
beeligibletoapplyforDeferredAction.Itincludesdiscussionsonstateofresidence,countryoforigin,
Englishproficiency,age,economicindicators,employmentandeducationalachievement.Manyyoung
immigrantsthatmayonedaybeeligibleforDACAcurrentlyarenotduetotheirageorduetotheir
lackofeducationalattainment.Eachgrouphassubtlydifferentdemographicprofiles.Finally,thesection
examinesOhiosDACAeligiblepopulationandcontextualizesitwithreferencetothesamepopulation
inotherstates.
Thereport
then
turns
to
the
implications
of
DACA
for
Ohio.
The
primary
question
which
arises
when
applyingestablishedOhiolawtoanewclassofimmigrantiswhetherornottheseyoungpeoplewillbe
eligibleforstatebenefitsand,ifso,whichones.Thereporttouchesonmanyfacetsofthisquestion
whileexaminingtwospecificbenefitsinclosedetaildriverslicensesandinstatetuitionforhigher
education.Inbothcases,OhiohasadministrativelydecidedtograntthesebenefitstoDACArecipients.
Alsoinbothcases,pendinglegislationbeforetheOhioGeneralAssemblywouldreversethose
administrativepolicydecisions.Thesectionalsoincludesabriefrundownofthepolicydecisionsthat
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otherstateshavereached.Thefinalsectionbrieflylooksaheadtothenextlikelypolicyreconciliationfor
DACAandOhiolawprofessionallicensureandcontextualizesDeferredActionwithinthebroader
nationalcontextofimmigrationreform.ItalsoremindslegislatorsthatthePublicPolicyCenteratthe
OhioLatinoAffairsCommissionisreadyandavailabletoserveOhiosGeneralAssemblyasitcrafts
policiesof
import
to
Ohio
Hispanics.
2. WhatisDACA?
DACAisanacronymthatstandsforDeferredActionforChildhoodArrivals.Thenamereferstoa2012
U.S.DepartmentofHomelandSecurity(DHS)policynotanexecutiveorder,asisfrequentlyalleged
thatreprioritizesdeportationsofundocumentedimmigrants.Theinitiativegrantstocertainyoung
immigrantsthatmeettheeligibilitycriteriaandhavecleancriminalbackgroundsatwoyeardeferralof
actionon
their
cases.
That
is,
the
United
States
will
not
pursue
their
deportation
for
two
years.
Further,
approvedapplicantsareconsideredlawfullypresentintheUnitedStatesforthedurationoftheirtwo
yearsunderDACA1,anddonotaccrueunauthorizedstayduringthattime.Approvedapplicantsalso
receiveanemploymentauthorizationdocument(EAD),commonlycalledaworkpermit,thatisvalid
fortwoyears.TheyalsoreceiveanattendantSocialSecurityNumberandmayhaveaccesstocertain
statelevelbenefitstowhichtheylackedaccesspriortoapplication.Thesetwoyearperiodsare
renewableaslongasDACArecipientsmaintaineligibilityfortheprogram.
ItsimportanttopausebrieflyheretonotethatDeferredActionshouldnotbeconfusedwiththe
DREAMAct.TheDevelopment,ReliefandEducationofAlienMinorsAct,forwhichDREAMAct
stands,is
alegislative
proposal
which
was
last
before
the
Congress
of
the
United
States
in
December
of
2010.WhileDACAandTheDREAMActbothcontemplatethesamedemographicyoung
undocumentedimmigrantstudentsorsoldiersthathavecleancriminalbackgroundstheyoperatein
verydifferentways.TheDREAMActwouldhaveprovidedapathtocitizenship,beginningwiththe
provisionoftemporaryresidencyforsixyears,duringwhichastudentcouldfinishhisorhereducation
andapplyforlawfulpermanentresident(LPR)status.Onceanimmigranthasbeenalegalpermanent
residentgreencardholder foracertainnumberofyears,heorshecanapplyforfullU.S.citizenship.
DACAhasnosuchpathtocitizenship,andindeeddoesnotevengrantanapplicantalawfulimmigration
status.WhileDACArecipientsdonotaccumulateunauthorizedstay,theirimmigrationstatusremains
unlawful.Theexecutivebranchprobablycannotprovideapathtocitizenshipsuchapowerrests
onlywith
Congress,
which
has
not
enacted
the
DREAM
Act
or
comprehensive
immigration
reform.
The
DREAMActpassedtheU.S.HouseofRepresentativesin2010,butfellfivevotesshortofthe60required
forclotureintheU.S.Senate.2
1FrequentlyAskedQuestions,U.S.CitizenshipandImmigrationServices,1/18/2013.2U.S.SenateRollCallVotes,SecondSessionofthe111
thCongress,12/18/2010.
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AsDACAgrantsnolawfulimmigrationstatus,itisalsonotanamnesty.Amnestyisanactbya
sovereignauthorityforgivingagroupofpersonsthatcouldfacetrialbuthavenotyetbeenconvicted3.
DACAgrantsatwoyearreprievefromtheaccumulationofunauthorizedstay,butdoesnotcontemplate
potentialfutureenforcementactionagainstrecipients.DACAalsoappliesonlytoaverynarrowgroupof
undocumentedimmigrants.
Eligibility
requirements
shave
the
pool
of
DACA
applicants
from
the
approximately11millionundocumentedimmigrants4livingintheUnitedStates,toabout1.9million5.
Bycontrast,PresidentReaganssigningoftheImmigrationReformandControlActin1986granted
universalamnestytomorethanthreemillionundocumentedimmigrants.6
DACAisaformofprosecutorialdiscretion,whichitselfisaformofselectiveenforcement.Selective
enforcementoccurswhenalawenforcementofficialexerciseshisorherowndiscretionindetermining
whetherornottopursuecriminalchargesagainstagivenindividualandunderacertainsetoffacts.
Whenpoliceofficersissuewarningstotrafficviolators,forexample,orwhencountyprosecutorsdecline
tochargeanindividualtheyarebothexercisingselectiveenforcement.Inthelattercase,thecounty
prosecutoris
exercising
prosecutorial
discretion
exactly
as
aDHS
attorney
that
declines
to
initiate
a
removalactionagainstagivenindividualforimmigrationlawviolationsdoesunderthedirectivesof
DACA.Whilethisistheeasiestparalleltodraw,immigrationlawisgenerallycivilnotcriminalin
nature.Prosecutorialdiscretionhaslongbeenrecognizedasalegitimateexerciseofexecutiveauthority
byU.S.courts7.
Prosecutorialdiscretionisespeciallyprominentduetoitsroleintherecentadministrationof
immigrationlawbytheDepartmentofHomelandSecurity.InJuneof2011,ImmigrationandCustoms
Enforcement(ICE)abranchofDHS adoptedaninstitutionalizedprosecutorialdiscretionpolicyatthe
directiveoftheagencysleader.CalledTheMortonMemoafterthenICEdirectorJohnMorton,the
policyauthorized
ICE
agents
to
use
prosecutorial
discretion
in
apprehending
and
deporting
undocumentedimmigrants.8AsICElackstheresourcestodeporteveryundocumentedimmigrantthat
theyencounter,thememoinstructedICEpersonneltofocusoncriminalundocumentedimmigrants,
andlistedfactorstoconsiderinweighingwhetherornottoarrestanddeportincludingcriminal
record,durationofstayintheU.S.,veteranstatus,familytiesandothers.Thememoends,however,
withaclearstatementthatitsnottobeconstruedtolimitICEsimmigrationenforcementcapacitiesin
anyway,andthatitcreatesnorightsorexpectationsinundocumentedimmigrants.Ayearlater,then
3BryanA.Gardner(ed.);2009.BlacksLawDictionary(9thed.).4UndocumentedImmigrantsintheU.S.,PewResearchCenter,4/30/2009.5DeferredActionforChildhoodArrivalsattheOneYearMark,IssueBrief#8,MigrationPolicyInstitute,August,2013.6NationofImmigrants,Coutin,SusanBibler.CornellUniversityPress,2007.7SeeCriminalProcedure1.9(c)(3ded.2007)WayneR.LaFaveetal.,(Thereisuniversalagreementinthemoderncommentaryastothecentralroleofdiscretionaryauthorityintheadministrationofthecriminaljusticeprocess.).8MemoonExercisingProsecutorialDiscretionConsistentwiththeCivilImmigrationEnforcementPrioritiesoftheAgencyfortheApprehension,DetentionandRemovalofAliens,ICEDirectorJohnMorton,6/17/2011.
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SecretaryJanetNapolitanoannouncedtheDACAprogram,asthelatestevolutioninprosecutorial
discretionattheDepartment.
TherewerelegalchallengestoDACA,anditsconstitutionalityisnotuniversallyaccepted.Alawsuitfiled
byofficials
at
ICE
challenged
both
the
Morton
Memo
and
the
Deferred
Action
initiative
on
the
ground
thatitrequiredthemtoviolatefederalimmigrationlaw9.InJanuary,federalDistrictCourtJudgeReed
OConnorsaidindictathathewouldlikelyruleagainsttheDACAprogram,butheinsteaddismissedthe
caseonJuly31forlackofsubjectmatterjurisdiction,citingthedisputeresolutiontermsoftheCivil
ServiceReformAct.10WhileacomparativelysmallgroupoflegalscholarshavequestionedDACAs
constitutionallegitimacy,itremainsthelawoftheland.
Insum,DACAisaformofprosecutorialdiscretionemployedbytheU.S.DepartmentofHomeland
Securitytodeprioritizethedeportationofyoungimmigrantsthatmeetcertaineligibilityrequirements.
Acceptancegrantstherecipientrenewabletwoyearworkpermitsandthefreedomfromthreatof
deportationifcircumstancesrelativetoeligibilitydontchange.Itis,tothispoint,alegitimateexercise
ofexecutiveauthoritybutitisnotanexecutiveorder,isnotamnestyanditisnottheDREAMAct.
YoungOhioimmigrants.ImagecourtesyofDREAMActivistOhio.
9Cranev.Napolitano,U.S.DistrictCourtfortheNorthernDistrictofTexas,7/31/2013.ThesuitwasfiledbyKris
Kobach,KansasSecretaryofState,onbehalfofICEagentChristopherCrane.SecretaryKobachalsoheadsthelegal
armofthenationalnonprofitFederationforAmericanImmigrationReform(FAIR),whichtheSouthernPoverty
LawCenterhasclassifiedasanantiimmigranthategroup(IntelligenceFiles:FAIR,SouthernPovertyLawCenter).10
Cranev.Napolitano,supra.
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3. EligibilityRequirements
ApplicantsforDACAmustsatisfyanumberofeligibilityrequirementsmanyofwhichrequireproofto
befurnished
by
the
applicant.
DACA
applicants
must
be
within
acertain
age
range,
must
have
entered
theUnitedStatesbeforeacertainageandmusthaveremainedhereeversince.Theymustbeastudent,
graduate,soldierorveteran,musthaveacleancriminalrecordand,finally,mustnotposeathreatto
nationalsecurityorpublicsafety.Essentially,theDACAapplicantmustproveage,presence,valueto
societyandgoodcharacter.Specifically,applicantmust11:
1. Havebeenundertheageof31asofJune15,2012;2. HavecometotheUnitedStatesbeforereachinghisorher16thbirthday;3. HavecontinuouslyresidedintheUnitedStatessinceJune15,2007,uptothepresenttime;4. HavebeenphysicallypresentintheUnitedStatesonJune15,2012,andatthetimeofmaking
hisor
her
request
for
consideration
of
deferred
action
with
USCIS;
5. HaveenteredwithoutinspectionbeforeJune15,2012,orhisorherlawfulimmigrationstatusmusthaveexpiredasofJune15,2012;
6. Mustcurrentlybeinschool,havegraduatedorobtainedacertificateofcompletionfromhighschool,haveobtainedageneraleducationdevelopment(GED)certificate,orbeanactive
memberof,orhonorablydischargedveteranof,theCoastGuardorarmedforcesoftheUnited
States;and
7. Havenotbeenconvictedofafelony,asignificantmisdemeanor,threeormoreothermisdemeanors,andmustotherwisenotposeathreattonationalsecurityorpublicsafety.
Anapplicant
also
cannot
have
afelony
conviction
defined
by
federal
immigration
law
as
an
offense
for
whichthemaximumtermofincarcerationisgreaterthanoneyear ontheirrecords.Likewise,DACA
applicantscannothaveasignificantmisdemeanorconvictionontheirrecords.Again,misdemeanor
isdefinedaccordingtofederallaw,andmeansanyoffenseforwhichthemaximumtermof
imprisonmentisgreaterthanfivedaysbutlessthanoneyear.Significantmisdemeanorsarethose
misdemeanorssocietygenerallyconsidersmoreseriousburglary,sexualabuseorexploitation,
domesticviolence,drugdistributionortrafficking,unlawfulpossessionoruseofafirearmordriving
undertheinfluenceregardlessofthetimeserved.Italsoincludesanymisdemeanorconviction,even
outsidetheaboveenumeratedcrimes,forwhichtimeactuallyservedexceeds90days.Notethatthis
mustbetimeactuallyserved.Suspendedsentencesareexcluded.
More,anapplicantforDACAcannothavethreeormorenonsignificantmisdemeanorsonhisorher
record.Nonsignificantmisdemeanorsaredefinedasthosemisdemeanorsthatdontinvolvethe
enumeratedcrimesaboveandforwhichtimeserveddoesnotexceed90days.Inordertodisqualifyan
applicant,thesethreenonsignificantmisdemeanorsmusthavearisenfromdifferentfactsor
11ConsiderationofDeferredActionforChildhoodArrivalsProcess,USCIS.
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circumstances.Forexample,ifayoungimmigrantisconvictedofthreeminormisdemeanorsstemming
fromonecriminalact,thisalonewillnotautomaticallydisqualifyhim.Finally,anapplicantmustnot
otherwisebeathreattonationalsecurityorpublicsafety.ItsimportanttonotethatasDeferredAction
lastsonlyforrenewabletwoyearperiods,andapplicantsmustreapplyeachtime,anyDACAapplicants
convictedfor
disqualifying
crimes
during
their
two
year
Deferred
Action
periods
likely
will
not
be
approvedfortheprogramuponreapplying.
ItscriticaltorememberthatDACAisentirelydiscretionary.USCIShastheauthorityto,inexceptional
circumstances,approveanapplicationwithanostensiblydisqualifyingconviction,forexample,orif
othereligibilityrequirementsareunmet.Accordingly,someoftheeligibilityrequirementsmayactually
bemorelaxthantheyfirstappear.Forexample,somebriefabsencesfromtheUnitedStatesduringthe
fiveyearqualifyingperiodarenotnecessarilyfataltoanapplicantschances.Also,expungedorjuvenile
convictionswillnotautomaticallydisqualifyanapplicant.Theeligibilityrequirementsarefleshedoutin
muchgreaterdetailbytheFAQthatUSCISmaintains12.
12FrequentlyAskedQuestions,USCIS.
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4. ApplicationProcess
DACAapplicationsformI821(D) areprocessedbyUSCIS,whichbeganacceptingapplicationson
August15,
2012.
The
agency
reviews
each
application
on
acase
by
case
basis,
and
decides
whether
or
nottheapplicantwillbegrantedDeferredAction.Evenapplicantsthatareindeportationproceedings
orhavereceivedafinalremovalordercanapply.Inthiscase,anapplicantneednothavereachedthe
ageof15.
Inadditiontothatform,applicantsmustsubmitanI765applicationforworkauthorizationandan
attendantworksheet. Asapartoftheapplicationprocess,DACAaspirantsmustsubmittoabackground
checkandbiometricsfingerprintingandphotographing.Applicantsarealsorequiredtopaya
significantfee $380dollarswiththeI821(D)andanother$85feeforbiometricsatotalof$46513.
Theapplicationprocesscanbefairlyinvolved,asapplicantsmustproveeachofthefacetsofeligibility
outlinedabove.
USCIS
maintains
alist
of
documents
which
are
acceptable
proof
for
each
element,
but
generallymostpresencerequirementsareprovedthroughutilitybills,schoolrecordsandmedicalbills.
Ifanapplicationisdenied,DHSgenerallywillnotuseanapplicantsinformationtoinitiatearemoval
proceeding exceptwhencriminalactivityorfraudisinvolvedorinotherexceptionalcircumstances.
Likewise,informationinanapplicationexposingtheundocumentedstatusofanapplicantsrelativeis
notusedforenforcementpurposes.14
Forasrigorousastheapplicationprocessappears,theapprovalrateisextraordinarilyhigh.Sincethe
agencybeganacceptingapplications,USCIShasapproved455,455applicationsofthe567,563
applicationsithasacceptednationwide,andhaveonlydenied9,57815.Therestoftheapplications
remainunder
review.
The
denial
rate
is
only
about
1.6%,
but
there
may
be
adisproportionate
number
of
denialsamongthosecasesstillpendingreview.USCISreceivesanaverageof2,158DACAapplications
perday,butthatnumberhasdeclinedsharplyfromahighof5,493perdayoneyearago,inOctober
2012.16Itisunclearwhy,exactly,theapprovalratefortheprogramissohigh.Somecriticsquestionthe
approvalprocessasarubberstamp,andaccuseUSCISoflaxstandardsinapprovingapplications.
Otherssuggestthatthedetailedandformulaicnatureoftheapplication,combinedwiththestakes
involvedandtheprevalenceofattorneyfilings,suggestthatapplicantsarecareful,andthusthe
applicationsarethoroughandcompletefromthebeginning.Ifanapplicantisdenied,thereisnoappeal
process.
Thereis
asignificant
potential
for
consumer
fraud
targeting
potential
DACA
applicants.
Many
self
styled
notarioswillchargeanapplicantagreatdealforfilinghisDACAapplication,whenthetruthisthatthe
applicantmaynotneedanattorneyatall.InmanypartsofLatinAmerica,notariosarepublicofficials
13ConsiderationofDeferredActionforChildhoodArrivalsProcess,supra.14FrequentlyAskedQuestions,supra.15DeferredActionforChildhoodArrivals,SeptemberMonthlyReport,USCIS.16Id.
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CHILDHOODARRIVALSDEFERREDACTION forCONSIDERATION of
Deferred Action for Childhood Arrivals allows certain individuals, whomeet specific guidelines, to request consideration of deferred action fromUSCIS. Individuals who receive deferred action will not be placed intoremoval proceedings or removed from the United States for a specifiedperiod of time unless terminated. If you receive deferred action, you maybe eligible for employment authorization. You may request deferredaction for childhood arrivals if you meet the following guidelines:
Review guidelines
Can I be considered?
You came to the UnitedStates before reaching your16th birthday
You have continuouslyresided in the United Statessince June 15, 2007, up tothe present time
You were under the age of31 as of June 15, 2012
You entered withoutinspection before June 15,2012, or your lawfulimmigration status expiredas of June 15, 2012
You are currently in school, havegraduated or obtained your certificateof completion from high school, haveobtained your general educationaldevelopment certification, or you arean honorably discharged veteran ofthe Coast Guard or Armed Forcesof the United States
Collect documents
You have not been convicted ofa felony, significant misdemeanor,or three or more misdemeanors,and do not otherwise pose a threat
How do I file?
You were present in the UnitedStates on June 15, 2012, and atthe time of making your requestfor consideration of deferredaction with USCIS
JUNE
as evidence youmeet the guidelines
Check the status ofyour request online
USCIS.gov
USCISForm
Visit your local USCISComplete USCIS
forms and fees
Application Support CenterForms I-821D and I-765
Mail USCIS
(total $465)
for a scheduled biometricsservices appointment
www.uscis.gov/childhoodarrivals
If you have questions about your request
please call USCIS Customer Service
at 1-800-375-5283or 1-800-767-1833 (TDD)
http://www.uscis.gov/childhoodarrivalshttp://www.uscis.gov/childhoodarrivals -
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withconsiderablybroaderofficialfunctionsandcapacitiesthanourownnotaries.Formanynew
Americanimmigrants,notariosareakintoabogadosattorneys. TheOhioCommissionon
Hispanic/LatinoAffairs(OCHLA)workedwiththeConsumerProtectiondivisioninAttorneyGeneral
DeWinesofficetopublishandcirculateabilingualpressreleaseandothermessagesinbothEnglishand
Spanishwarning
the
community
to
be
wary
of
notario
fraud
in
the
wake
of
DACAs
announcement.
InadditiontowarningOhioLatinosofpotentialnotarioscams,OCHLAworkedwithprominent
immigrationattorneysaroundthestatetohostinformationalQ&AsessionsforOhioLatinoswhowere
consideringapplyingforDACA.TheagencyorganizedorattendedsessionsliketheseinColumbus,
ClevelandandDayton.TheCommissionrecommendstoallconstituentsconsideringapplyingfor
DeferredActionthattheyconsultanimmigrationattorneybeforeapplyingfortheprogram.
5. DemographicProfileofDACARecipients
ThegroupofeligibleDACAapplicantsisfinitebutuncertain.AsapplicantsmusthaveenteredtheU.S.by
June15th2007andmusthavelackedalawfulimmigrationstatusonJune15th,2012 nosubsequent
immigrantstotheUnitedStatesareeligibleforDACA.Likewise,allundocumentedimmigrants31or
olderonJune15th,2012arenotDACAeligible.Ontheotherhand,someundocumentedimmigrantsare
eligiblefortheprogrambutlacktheeducationalrequirement,whichtheycanrectify.Likewise,many
childrenthatwillbeeligiblefortheprogramhavenotyetreachedtheageatwhichtheycanapply15.
Countingundocumentedimmigrantsisadubiousprocess,evenfortheU.S.CensusBureau.Thereare
about11.9millionundocumentedimmigrantsintheUnitedStates17.Accordingtoestimatesfromthe
MigrationPolicyInstitute,about1.9millionofthoseimmigrantsare,orcouldbecome,eligiblefor
DeferredActionforChildhoodArrivals18.Ofthatgroup,threedistinctsubgroupshaveemerged:those
presentlyeligibleforDeferredAction,thoseeligibleforDeferredActionexceptthattheylackthe
educationormilitaryservicecomponent,andthosewhomaybeeligibleforDeferredActionexceptthat
theyhavenotyetreachedtheir15thbirthday.
Giventheseestimates,thepoolofpresentlyeligiblepotentialDACAapplicantswasmadeupof1.09
millionyoungpeople,19butonlyabout49%hadappliedwhenMPIreleasedtheirreportayearintothe
program.20Giventhebenefitsofapplicationandthehighapprovalrate,atfirstitappearscuriousthatso
manypotentialapplicantshavenotapplied.Infact,however,thereareseveralfactorsthatcoulddeter
application.As
the
MPI
report
suggests,
difficulty
paying
the
significant
application
fees,
an
inability
to
proveonesidentity,presenceorage,concernoverpotentiallydisqualifyingcriminaloffensesandfear
ofexposureforthemselvesandfamilymembersmayallplayaroleinchillingapplications.Alternatively,
17UndocumentedImmigrantsintheU.S.,supra.18DeferredActionforChildhoodArrivalsattheOneYearMark,supra.19Id.20Id.
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asanyonecanapplyforDeferredActionasadefensetoremovalproceedings,someyoungimmigrants
especiallytheyoungestwhoarenotyetmembersoftheworkforce maysimplybewaitingtoapply
untiltheyhaveto.
OriginallypublishedbytheMigrationPolicyInstitute.MPIisanindependent,nonpartisanthinktankinWashington,DC,dedicatedtothestudyofthemovementofpeopleworldwide.(www.migrationpolicy.org).
The
plurality
of
young
immigrants
that
have
applied
hail
from
California
and
Texas,
which
together
are
hometo44%ofpotentialDACAapplicantsand45%ofactualapplicantsthusfar21.Applicationratesvary
dramaticallybystateFloridaandNewYorktrailTexasandCaliforniaconsiderably,whileratesin
GeorgiaandNorthCarolina,whichbothhavecomparativelysmallundocumentedimmigrant
populations,areamongthehighestinthecountry22.Oneexplanationfordisparateapplicationrates
couldbestatepoliciesaffectingtheeasewithwhichanundocumentedimmigrantcanenterthe
workforceGeorgia,forexample,requiresallemployerstousethefederalemploymenteligibility
verificationsystemEVerify,makingworkevenhardertofindwithoutworkauthorization.
OfthealmosttwomillionyoungimmigrantsthatultimatelycouldbeeligibletoapplyforDeferred
Action,theoverwhelmingmajorityoriginatefromLatinAmerica,particularlyMexico23.Immigrantsfrom
Mexico,HondurasandotherCentralAmericancountriesalsoleadinapplicationrates24.Whileyouth
fromMexico,ElSalvador,GuatemalaandHondurasaccountfor68%ofthecurrentlyeligiblepopulation,
theymakeup85%ofthosethathaveappliedforDACA.Seventysevenpercent(77%)ofallapproved
21Id.22Id.23Id.24Id.
57%
21%
22%
BreakdownofYoungImmigrantsthatmaybeeligibleforDACA
CurrentlyEligibleYouth
ChildrenEligibleinthe
Future(
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applicationsareforyoungimmigrantsoriginallyborninMexico25.Applicationratesaremuchlower,
curiously,amongyouthoriginallyfromtheDominicanRepublicandfromAsiancountries.
OriginCountry
CurrentlyEligiblePopulation
ShareofallCurrentlyEligibleYouth
ApplicationsAcceptedforProcessing
ApplicationRate
Mexico 637,000 59% 409,000 64%
ElSalvador 47,000 4% 21,000 45%
Guatemala 29,000 3% 13,000 47%
Honduras 24,000 2% 14,000 58%
Korea 22,000 2% 7,000 33%
Philippines 22,000 2% 4,000 16%
Columbia 19,000 2% 5,000 28%
Dominican
Republic
17,000 2% 2,000 14%
OriginallypublishedbytheMigrationPolicyInstitute.MPIisanindependent,nonpartisanthinktankinWashington,DC,dedicatedtothestudyofthemovementofpeopleworldwide.(www.migrationpolicy.org).Asyouthisaneligibilityrequirementforapplication,mostamongthecurrentlyeligibleDACApopulation
havedemographicprofilesindicativeoftheirages.About24%ofthosecurrentlyeligibleareenrolledin
K12education,whiletheremainderalreadyhavetheirhighschooldiplomaorGED(44%),orare
enrolledinorhavehadsomelevelofcollegeeducation(32%)26.Anestimated60%arefullybilingual,
with9%speakingonlyEnglish;theremainderidentifiedaslimitedEnglishproficient(LEP),with10%indicatingthattheystruggleconsiderablywiththeEnglishlanguage27.Malesoutnumberfemales(55%
45%)amongthecurrentlyeligiblepopulation,55%ofwhomworkand11%ofwhomhaveminor
childrenoftheirown.35%ofthosecurrentlyeligibleforDeferredActionhaveincomesplacingthem
belowthefederalpovertyline(FPL).
InadditiontothosealreadyeligibletoapplyforDeferredAction,therearearound423,000young
immigrants28thatwouldbeeligibletoapplyforDACAbutlackahighschooldiplomaoritsequivalent,
andarenotenrolledinschool.TheseyoungpeoplewillbecomeeligibletoapplyforDACAiftheyreturn
toschoolorenrollinaGEDprogram.Thisgroupis comparedtothosecurrentlyeligiblemore
dominatedbymen(64%)thanwomen,poorer(42%belowFPL),morelikelytowork(71%),morelikely
tohavechildren(31%)andmorethantwiceaslikelytostrugglewithEnglish(69%LEP)29.
Thebarriersbetweenthissecondgroupandtheeducationalattainmenttheyrequiretobeeligiblefor
DeferredAction
are
significant30.
These
young
people
are
largely
workforce
participants,
and
many
have
25DACASeptemberReport,USCIS,supra.26DeferredActionforChildhoodArrivalsattheOneYearMark,supra.27Id.28Id.29Id.30Id.
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childrenoftheirown.TheseconcernslikelymakeitdifficulttoattendclassesinpursuitofaGED,as
theseyoungpeoplewouldhavetoarrangeforchildcareandtimeofffromwork,inadditionto
transportation.Second,thisgroupislargelyLEP.Anecdotally,GEDprogramsofferedinSpanishorfor
LEPstudentsarerelativelyrare,atleastinOhio,evenifapplicantscantaketheGEDexamitselfin
Spanish.Finally,
for
agroup
thats
this
statistically
poor,
the
tuition
costs
for
otherwise
appropriate
GED
coursessometimesaddonemoreobstacletopursuingeducationaleligibility.
Finally,therearethosechildrenwhoarenotyetageeligibletoapplyforDeferredAction,butwhoone
daymaybeeligible.Thereareanestimated392,000childrennationwideinthisgroup,andalmosthalf
ofthemwillsoonbecomeeligibletoapply49%areage121531.Inadditiontoreachingtheapplication
age,thesechildrenwillultimatelyhavetocompletetheirhighschooleducationstoremaineligiblefor
DACA.ThisgroupalsofacesbarrierstoattainingDACAeligibility.Twentysevenpercent(27%)areLEP32,
andthoughsomewillgrowinEnglishproficiencyastheycontinueinschoolmanywillremainLEP
throughouthighschool,andthemajorityofthesestudentsareHispanic.BothHispanic33andLEP34
studentgraduation
rates
lag
considerably
behind
the
national
averages.
Finally,
more
than
half
57%
ofthesechildrenlivebelowtheFPL,andafull84%arefromfamiliesearninglessthan200%oftheFPL.
Thenegativecorrelationbetweenpovertyandeducationalattainmentiswelldocumented35.
Ohioranks30th
amongU.S.statesandterritorieswith3,019acceptedapplicationsand2,291
approvals36.TheMigrationPolicyInstituteestimatesthattherearebetween10,000and20,000young
immigrantsinOhiothatmayultimatelybeeligibleforDACA37.Applyingthesenationwideeligibilityand
applicationrateestimatestoanestimatedpopulationof10,000to20,000eligibleimmigrantsinOhio,
thereare5,700to11,400youngpeoplepresentlyeligibleforDeferredAction,while2,200to4,400lack
theeducationalcomponentofeligibilityandanother2,100to4,200childrenarenotyet15yearsoldbut
willbecome
eligible
to
apply
upon
reaching
that
age.
With
these
figures,
there
is
no
certain
difference
betweennationalapplicationratesandapplicationratesinOhiosomewherebetween26%and53%of
thoseeligiblenowhaveappliedfortheprogram.Withthenationalapplicationrateclosertothehigh
endofthatspreadat49%,itispossiblethatOhioansarelesslikelytohaveappliedfortheprogramthan
youngimmigrantsinotherstates.
Notably,thosestateswithrelativelylarge,establishedanddominantMexicanpopulationsCalifornia
andTexashavethehighestapplicationrateswhilethosewithmorediverseimmigrantpopulations
Florida,NewYorkandothershavelowerrates.Approximately82.5%ofCalifornias14million
31Id.
32Id.
33DropOutRateFastFacts,NationalCenterforEducationStatistics,U.S.DepartmentofEducation.
34RegulatoryAdjustedCohortRate,LimitedEnglishProficient:20102011,EdDataExpress,U.S.Departmentof
Education.35
See,e.g.,TheImpactofPovertyonEducationalOutcomesforChildren,H.B.Ferguson,S.Bavaird,M.P.Mueller,
PaediatricChildHealth.2007October;12(8):701706.36
DACASeptemberReport,USCIS,supra.37
RelieffromDeportation:DemographicProfileofDREAMersPotentiallyEligibleundertheDeferredAction
Policy,MigrationPolicyInstitute,August2012.http://www.migrationpolicy.org/pubs/fs24_deferredaction.pdf.
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HispanicsareofMexicandescent38whiletheHispanicpopulationsofFloridaandNewYorkare
dominatedbyCubansandPuertoRicansrespectively39.PuertoRicans,ofcourse,arefullU.S.citizens
andthusnotimmigrants,andnotcontemplatedbyDeferredAction.OhiosHispanicpopulationis
somewhereinthemiddleMexicansmakeupthelargestgroupofOhioHispanicsataround50%,but
Ohioalso
has
the
10th
largest
Puerto
Rican
population
in
the
country40,
concentrated
mostly
in
Lorain
andCleveland.ItcouldbethatOhiosDACAapplicationratelagsthenationalrateatleastpartiallydue
tothediversityofOhiosimmigrantpopulation.Large,wellestablishedandethnicallyhomogenous
immigrantnotsimplyHispanic communitieslikethoseofMexicansinCaliforniacouldprovidean
easierstructureforawarenessofDeferredActionanditsapplicationstepsthanthesmaller,more
diverseandmoreisolatedcommunitiesofOhioimmigrants.
6. WhatdoesDACAmeanforOhio?
DeferredActionforChildhoodArrivalscreatedanewcategoryofOhioans.Thesearenoncitizens,non
permanentresidentsthatalsoarenotquiteundocumentedimmigrants,asthetermistraditionally
applied,anymore.Ohiolawislargelywellestablishedregardingitsundocumentedimmigrant
population.Ohiocitizensare,generallyspeaking,eligibleformoststatebenefitsinOhio.Undocumented
immigrants,withveryfewexceptions,arenoteligibleforstatebenefits.TheycannotapplyorOhiodriverslicenses,unemploymentbenefits,residencyfortuitionpurposes,professionallicensesfrom
stateboardsorotherstatebenefits.Thechallengeforthestateisindecidinghowtotreattheseyoung
peoplethathavebeenapprovedforDACA.Willtheybeeligibleforsomestatebenefits,ascitizensand
lawfulpermanentresidentsare?OrwilltheyremainineligibleforstatebenefitsunderOhiolaw?Inthe
yearsince
DACAs
inception,
this
question
has
come
to
the
forefront
with
two
specific
Ohio
benefits:
driverslicensesandresidencyforinstatetuitioninhighereducationandisnearingresolutionwitha
third professionallicensure.
DriversLicensesforDACARecipients?ShortlyafterUSCISbeganapprovingDACAapplicationsinlate2012,manyyoungOhioimmigrantsthat
hadbeenapprovedfortheprogramtooktheirEADstotheirlocalbranchesoftheOhioBureauofMotor
Vehicles.TheysoughtOhiodriverslicenses,whichpreviouslyhadbeenabenefitdeniedto
undocumentedimmigrants.TheresponsetheyreceivedatBMVbranchesaroundthestatevariedwildly,
and
it
wasnt
until
the
end
of
March
that
the
Bureau
of
Motor
Vehicles
issues
a
statewide
directive
on
issuinglicensestoDACArecipients.
TheBureauofMotorVehiclesrequiresaSocialSecurityNumber(SSN),amongotheridentification
documentation,forapplicantstobeeligibleforOhiodriverslicenses.PriortoDeferredActionfor
382010U.S.Census,AmericanCommunitySurvey,U.S.CensusBureau.39Id.40Id.
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DeferredActionforChildhoodArrivals Month
Aug12* Sep12 Oct12 Nov12 Dec12 Jan13 Feb13 Mar13 Apr13Accepted 48,051 104,369 112,656 71,108 44,815 31,028 30,251 29,689 25,950
Intake Rejected 1,909 3,463 3,566 2,385 1,571 1,378 1,288 1,261 1,157Totalreceived 49,960 107,832 116,222 73,493 46,386 32,406 31,539 30,950 27,107Averageaccepted/day 3,696 5,493 5,121 3,555 2,241 1,478 1,592 1,414 1,180
Biometrics Scheduled 18,616 105,439 98,430 87,037 42,062 42,678 30,128 32,453 27,064Underreview 0 29,747 106,758 152,244 172,535 153,370 132,093 116,509 100,492
CaseReview Approved 0 1,687 28,100 47,923 48,077 50,198 45,530 46,950 45,169Denied 0 0 6 15 72 162 247 803 1,038
ugustdatafromAugust15August31,2012easenote:Thereportreflectsthemostuptodateestimateavailableatetimethereportisgenerated.taQueried:September10,2013ReportCreated:September11,2013terange:August15,2012August31,2013stems:BiometricsCaptureSystems,CISConsolidatedOperationalpository(CISCOR)CISOfficeofPerformanceandQuality(OPQ)
BeginninginApril2013,theDeferredActionforChildmonthcycle.Inaddition,beginningwiththeApril2013r
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DeferredActionforChildhoodArrivals
TopCountriesofOrigin AcceptedtoDate ApprovedtoDateMEXICO 433,318 350,056
ELSALVADOR 21,638 16,950HONDURAS 14,608 10,719GUATEMALA 14,234 10,720SOUTHKOREA 7,504 6,760
PERU 7,374 6,360BRAZIL 6,136 4,985
COLOMBIA 5,622 4,616ECUADOR 5,386 4,454PHILIPPINES 3,682 3,203ARGENTINA 3,431 2,885JAMAICA 2,998 2,024INDIA 2,870 2,331
VENEZUELA 2,532 2,005DOMINICANREPUBLIC 2,374 1,751TRINIDADANDTOBAGO 2,246 1,655
BOLIVIA 1,672 1,422COSTARICA 1,660 1,376URUGUAY 1,564 1,288PAKISTAN 1,459 1,133
Residence AcceptedtoDate ApprovedtoDateCALIFORNIA 161,624 134,857TEXAS 93,277 72,408ILLINOIS 31,404 27,469NEWYORK 30,160 23,265FLORIDA 23,988 17,673ARIZONA 20,252 16,733
NORTHCAROLINA 19,876 15,989GEORGIA 18,497 14,433NEWJERSEY 16,407 13,530COLORADO 12,520 9,487WASHINGTON 12,129 9,557NEVADA 9,274 7,168VIRGINIA 9,029 7,083OREGON 8,029 6,660MARYLAND 7,266 5,801INDIANA 7,079 5,451UTAH 6,764 5,405
MASSACHUSETTS 6,053 4,540TENNESSEE 5,779 4,276WISCONSIN 5,262 4,182KANSAS 4,941 3,919
OKLAHOMA 4,783 3,893SOUTHCAROLINA 4,674 3,786
MICHIGAN 4,482 3,480MINNESOTA 4,468 3,534NEWMEXICO 4,217 3,089PENNSYLVANIA 4,045 3,110
Residenc
ARKANSA
CONNECTIC
OHIOALABAM
MISSOUR
NEBRASK
IDAHOKENTUCK
IOWALOUISIAN
MISSISSIP
DELAWAR
RHODEISLADISTRICTOFCO
WYOMIN
NEWHAMPSHAWAII
SOUTHDAKPUERTORIWESTVIRGVIRGINISLA
ALASKA
NORTHDAKMAINE
MONTAN
NOTREPORGUAM
*AllfieldswithlessthantenorablankinthestatefPleasenote:Thereportreflectsthemostuptodateestimateavailableatthetimethereportisgenerated.DataQueried:September10,2013ReportCreated:September11,2013Daterange:August15,2012August31,2013Systems:CISConsolidatedOperationalRepository(CISCOR)USCISOfficeofPerformanceandQuality(OPQ)
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ChildhoodArrivals,thelackofaSocialSecurityNumberpreventedyoungundocumentedimmigrants
fromobtainingOhiolicenses.Withapprovalfortheprogram,however,applicantsreceiveanEADand
eligibilitytoapplyforaSocialSecurityNumber,rectifyingthis.
Initially,individual
branches
denied
or
issued
licenses
to
these
new
applicants
at
their
own
local
discretion.TheCommissionknowsanecdotally,forexample,thatbranchesinClevelandandCincinnati
werenotissuinglicenseswhilebranchesinToledowere.SomebranchesinColumbusissuedlicenses
andsomerefused.Thisconfusionpromptedadvocacyfromtheimmigrantcommunityleadershipfora
statewidepolicydeclaringthatDACArecipientsbeeligibletoreceiveOhiodriverslicenses.OnMarch
29,2013theOhioBureauofMotorVehiclesannouncedthatDACArecipientswouldbeeligibleforOhio
driverslicensesaftersubmittingtoafinalidentityverificationstepwithnationalimmigrationdatabases.
TheselicensesarenonrenewableandexpirewitharecipientsDACAstatus.Whentheyoung
immigrantsDeferredActionstatusisreapproved,heorshecanobtainanotherlicensefromtheBMV.
Most
DACA
approved
students
still
cannot
obtain
their
licenses
as
minors.
The
information
that
the
BMVrequiresfromparentsofminorsseekinglicensesagovernmentissuedID isnottypically
availableforthosewithundocumentedparents41,andthevastmajorityofDACArecipientshaveparents
thatarealsoundocumentedimmigrants.Asitstands,DACAapplicantsgenerallymustwaituntilthey
reachtheageof18tosuccessfullyapplyforanOhiolicense.
DriversLicenses:PotentialLegislationOhiojoinsnearlyeveryotherstateinthecountryindecidingtograntlicensestoDACArecipients.They
remainineligibleforlicensesonlyinArizonaandNebraska42.Proponentsofthesepoliciesnotethat,in
mostcases,theSSNandEADareallthestaterequirestograntlicenses,andthatthenaturalresponse
shouldhave
been
to
grant
licenses
to
this
new
group
that
had
the
requisite
documents.
Others
argued
thatwithworkauthorizations,theywillrequiretransportation,andthatitwasfarbettertotrainthem
andensuretheircompetencebehindthewheelthantoriskuntraineddriversusingOhiosroads.
OpponentsofgrantingDACArecipientslicensesareconcernedaboutseveralimplicationsforthe
programprimarilythepotentialcostofgrantingtheselicensesandtheprincipleofstatesovereignty.
Intheirview,theStateofOhioshoulddecidetowhomitwillgrantlicenses,andoughtnotfollowthe
federalgovernmentscreationofanewclassofimmigrant.Likewisetherearestudiesthatoutlinethe
annualcostsofundocumentedimmigrantstotheStateandtoOhiotaxpayers,andnotethatgranting
statebenefitstoDACArecipientsislikelyonlytoencouragefurtherimmigrationbyundocumented
people.While
such
apolicy
could
indeed
engender
migration
of
DACA
recipients
from
other
states
that
denythemdriverslicenses,onlytwosuchstatesexistArizonaandNebraskaandforpotential
migrantDACArecipientsinthosestates,Ohioisageographicallyremotedestination.Further,because
DACAeligibilityrestsonpresenceintheUnitedStatesonJune15th,2007,thepoolofthoseeligiblefor
41CalltoOhioBureauofMotorVehiclesDriversLicenseInformationCenter,10/30/13.42OverviewTableofStateDriversLicenseRequirementsforIndividualsGrantedDeferredActionUndertheDeferredActionforChildhoodArrivals(DACA)Policy,NationalImmigrationLawCenter,April2013.
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theprogramisfinite,anddoesnotincludeundocumentedimmigrantsthathavearrivedintheU.S.
recently.
HouseBill114,introducedbyRepresentativeMattLynch43
waswrittenasadirectresponsetothe
BMVspolicy
announcement,
and
restricts
eligibility
for
Ohio
licenses
to
certain
delineated
groups
of
noncitizens,excludingrecipientsofDeferredAction.HearingsforHouseBill114tookplacebeforethe
HouseTransportation,PublicSafetyandHomelandSecurityCommitteeduringthisspringssession.On
theoppositeside,twobillsarependingbeforethelegislaturethatwouldspecificallycodifythatDACA
recipientsareeligibletoreceiveOhiodriverslicensesSenateBill62,fromSenateMinorityLeader
KearneyandSenatorsTavaresandLehner,andHouseBill155fromHouseAssistantMinorityWhip
RamosandRepresentativeReece44.ThesebillswerereferredtotheSenateStateGovernmentOversight
andReformCommitteeandtheHouseTransportation,PublicSafetyandHomelandSecurityCommittee,
respectively.ThelattercommitteealsoheardsponsortestimonyfromRepresentativesReeceand
Ramosontheirbill.
Insum,thequestionofwhetherornotDACAgranteesareeligibleforOhiolicenseshaslargelybeen
solvedadministratively.Pendinglegislationmayaltertheireligibilityeithertowardeasieraccessto
licensesbycodifyingeligibilityspecificallyorstreamliningtheprocessforminors,oritmayinstead
alterOhiolawtodenythemeligibility.ItwillbeuptotheGeneralAssemblytodecidethewisestcourse
forOhio,butcurrentlawandpolicyallowDACArecipientstoreceiveOhiodriverslicenses.
InStateTuitionforDACArecipients?
WhileOhiowasweighingwhetherornottograntlicensestoDACArecipients,asecondquestion
materializedregardingtheinteractionofDeferredActionandOhiolaw.Manysoughtarulingon
whetherthese
young
people
would
be
eligible
to
be
classified
as
Ohio
residents
for
the
purposes
of
calculatingtuitionatOhiopubliccollegesanduniversities.PriortotheadventofDeferredAction,Ohios
publicinstitutionsofhighereducationeitherdeclinedtoadmitundocumentedstudentsoutright,or
chargedundocumentedstudentsinternationalstudenttuitionratesoftenatdoubletheinstaterate
ormore45.ThischangedonJuly29
th,whentheOhioBoardofRegentsannouncedthatOhiosDACA
recipientsthatmeettheotherresidencyrequirementswillbeeligibletobeclassifiedasOhioresidents
andpayinstatetuition.
ThequestionarisesfromapplyingextantOhiolawtoDACArecipients.Residencydetermination
guidelinesarefoundinOhioRevisedCode3333.3146.Thestatutestatesthatresidencywillbe
determined
according
to
rules
promulgated
by
the
Board
of
Regents,
and
in
fact
grants
the
Chancellor
andtheBoardofRegentsbroadauthorityindeterminingresidency.Thestatutealsonotesthat
43RepresentativeLynchisanexofficioCommissionservingonOCHLAsboard.
44RepresentativeRamosandSenatorTavaresalsoserveasexofficioOCHLACommissioners.
45Seeincludedtableontuitionratesforinstateandinternationalstudents.
46Inthefollowingsection,theOhiostatuteisquotedand,forillustrativepurposes,criticalwordsandphrasesare
emphasized.Notethatallmeansofemphasizingcertainportionsofthetextboldedletters,italicsandunderlines
arenottextuallydifferentiatedintheOhioRevisedCodeorOhioAdministrativeCode.
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residentdoesnotmeanherewhatitmightmeanincommonusage,orinotherpartsoftherevised
code.Instead,thestatutesays;
Theterm"resident"forthesepurposesshallnotbeequatedwiththedefinitionofthattermasitisemployedelsewhereunderthelawsofthisstateandotherstates,andshallnotcarrywithitanyofthelegalconnotationsappurtenantthereto.Rather,exceptasprovidedindivisions(B)and(D)ofthissection,forsuchpurposes,therulepromulgatedunderthissectionshallhavetheobjectiveofexcludingfromtreatmentasresidentsthosewhoarepresentinthestate
primarilyforthepurposeofattendingastatesupportedorstateassistedinstitutionofhigher
education,andmayprescribepresumptiverules,rebuttableorconclusive,astosuchpurposebaseduponthesourceorsourcesofsupportofthestudent,residencepriortofirstenrollment,evidenceofintentiontoremaininthestateaftercompletionofstudies,orsuchotherfactorsasthechancellordeemsrelevant.47
While
the
statute
provides
broad
authority
to
the
Board
of
Regents,
it
goes
on
to
enumerate
scenarios
inwhichresidencymustormustnotbegranted.Forexample,section(B)grantsresidencytoveterans
andtheirfamiliesiftheveteranhasbeenkilledinactionorwashonorablydischargedbythemilitary
andhasestablisheddomicileinOhiobythebeginningoftheacademicterm.Likewise,anothersection
prohibitstheBoardofRegentsfromdenyingresidencytothespouseordependentchildofanyOhioan
whohasestablisheddomicileinthestateandworksfulltime48.OfparticularinterestforDACA
recipientsinOhioissection(D),theforeverbuckeyeprovision.Sonamedbecauseitprovidesforin
statetuitionforgraduatesofOhiohighschoolsregardlessofwhethertheyhaveleftOhiosincetheir
graduation,thestatutesays49;
(1)The
rules
of
the
chancellor
for
determining
student
residency
shall
grant
residencystatus
to
a
personwho,whilearesidentofthisstateforstatesubsidyandtuitionsurchargepurposes,graduatedfromahighschoolinthisstateorcompletedthefinalyearofinstructionathomeasauthorizedundersection3321.04oftheRevisedCode,ifthepersonenrollsinaninstitutionofhighereducationandestablishesdomicileinthisstate,regardlessofthestudent'sresidencepriortothatenrollment.(2)Therulesofthechancellorfordeterminingstudentresidencyshallnotgrantresidencystatustoanalienifthealienisnotalsoanimmigrantoranonimmigrant.
Finally,ananalysisofthestatuteasitappliestoDACArecipientsrequiressomedefinitions.Thestatute
definesthefollowingterms;
47OhioRev.Code3333.31(A). 48OhioRev.Code3333.31(B)&(C).49OhioRev.Code3333.31(D)1&2.
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FOR IMMEDIATE RELEASE March 29, 2013
OHIO BMV TO BEGIN ISSUING TEMPORARY DRIVER LICENSES TOQUALIFIED DACA GRANTEES
Additional Federal Database Check Will Guard Against Fraud
COLUMBUS Today the Ohio Bureau of Motor Vehicles (BMV) instructed the
states Deputy Registrars to begin issuing temporary driver licenses to qualified
Deferred Action for Childhood Arrivals (DACA) grantees, but only after firstconfirming applicants immigration documents via the U.S. Citizen and ImmigrationServices (USCIS) database. The extra security steps are designed to combat fraud
or the use of counterfeit documents. BMVs decision was established after reviewing
guidance expressed by Ohio Attorney General Mike DeWine that DACA grantees areeligible for temporary driver licenses under Ohio law.
The BMVs instructions to Deputy Registrars will ensure consistent procedures arefollowed statewide when issuing the temporary licenses. Confirmation of applicants
immigrant documents will be made via the federal governments immigration
database to verify their authenticity. Upon verification of applicants documents theywill be issued a non-renewable/temporary license valid for the time period of their
work authorization issued by USCIS, not to exceed two years.
The federal government allows DACA grantees to work in the U.S. during the two-
year length of their DACA status. Individuals are eligible for DACA status if: they
arrived in the U.S. before the age of 16; have no criminal history; are currently inschool; have graduated from high school or received a general educationdevelopment (GED) certificate; have been honorably discharged from the Coast
Guard or Armed Forces of the United States; and are under the age of 31.
Currently 37 other states also issue temporary drivers licenses to DACA grantees.
Ohio is one of the few states to take the extra step of also confirming applicantsimmigration documents through the federal governments database.
To view a summary of the Deputy Registrar directive, click here:
http://www.publicsafety.ohio.gov/links/save-3-29-13.pdf
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(E)Asusedinthissection50:
(1)"Dependent,""domicile,""institutionofhighereducation,"and"residencyofficer"
havethemeaningsascribedinthechancellor'srulesadoptedunderthissection.
(2)"Alien"meansapersonwhoisnotaUnitedStatescitizenoraUnitedStatesnational.
(3)"Immigrant"meansanalienwhohasbeengrantedtherightbytheUnitedStates
bureauofcitizenshipandimmigrationservicestoresidepermanentlyintheUnited
StatesandtoworkwithoutrestrictionsintheUnitedStates.
(4)"Nonimmigrant"meansanalienwhohasbeengrantedtherightbytheUnitedStatesbureauofcitizenshipandimmigrationservicestoresidetemporarilyintheUnitedStates.
AssectionEsuggests,domicileisdefinedintheattendantOhioAdministrativeCode3333110asa
person'spermanentplaceofabode,solongasthepersonhasthelegalabilityunderfederalandstatelawtoresidepermanentlyatthatabode51.Resident,meanwhile,isdefinedasanypersonwhomaintainsatwelvemonthplaceorplacesofresidenceinOhio,whoisqualifiedasaresidenttovoteinOhioandreceivestatepublicassistance,andwhomaybesubjectedtotaxliabilityundersection5747.02oftheRevisedCode,providedsuchpersonhasnot,withinthetimeprescribedbythisrule,
declaredhimselforherselftobeorallowedhimselforherselftoremainaresidentofanyotherstateor
nationforanyoftheseorotherpurposes.
Thesections
in
the
Ohio
Administrative
Code
flesh
out
the
residency
determination
process,
and
augmenttheBoardofRegentswithsignificantdiscretionandautonomyingrantingresidency.Itis
criticalthattheOhioAdministrativeCodesectionsattendanttotherelevantRevisedCodesectionwere
neverupdatedtoreflecttheforeverbuckeyeprovision.Accordingly,thosesectionsthatconflictwith
thestatutorylanguageareatleastoutdated,andmayperhapsbeinvalid.Alongwiththedefinitionsof
domicileandresidentintheBoardsresidencyrules,theAdministrativeCodesectionenumerates
severalfactorsthattheBoardofRegentscanconsiderindeterminingresidency.Ofparticularnoteare
thefollowingsections52;
(D)Additionalcriteriawhichmaybeconsideredindeterminingresidencymayincludebutarenot
limited
to
the
following:
(1)Criteriaevidencingresidency:
50OhioRevisedCode3333.31(E).
51OhioAdministrativeCode3333110(B)(4).
52OhioAdministrativeCode3333.31(D).
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(a)Ifapersonissubjecttotaxliabilityundersection5747.02oftheRevised
Code;
(b)IfapersonqualifiestovoteinOhio;
(c)IfapersoniseligibletoreceiveOhiopublicassistance;
(d)
If
a
person
has
an
Ohio's
driver's
license
and/or
motor
vehicle
registration.
(2)Criteriaevidencinglackofresidency:
(a)Ifapersonisaresidentoforintendstobearesidentofanotherstateor
nationforthepurposeoftaxliability,voting,receiptofpublicassistance,or
studentloanbenefits(ifthestudentqualifiedforthatloanprogrambybeinga
residentofthatstateornation);
(b)Ifapersonisaresidentorintendstobearesidentofanotherstateornation
foranypurposeotherthantaxliability,voting,orreceiptofpublicassistance
(seeparagraph(D)(2)(a)ofthisrule).
(3)ForthepurposeofdeterminingresidencyfortuitionsurchargepurposesatOhio's
stateassistedcollegesanduniversities,anindividual'simmigrationstatuswillnot
precludeanindividualfromobtainingresidentstatusifthatindividualhasthecurrent
legalstatustoremainpermanentlyintheUnitedStates.
InStateTuition:ApplyingOhioLaw
Takeninsum,considerationsfromthestatuteaugmentedbytheadministrativerulescouldbesummed
upasalistoffactorstoconsider,asfollows:
1. WhethertheprospectivestudenthasestablisheddomicileinOhio,meaningaplacewherethepersonhasthelegalrighttoabidepermanentlyatthatabode,and;
2. WhetherthestudenthasgraduatedfromanOhiohighschool,and;3. Whetherthestudentiseitheracitizen,animmigrantoranonimmigrant,and;4. WhetherthestudentqualifiestovoteinOhio,issubjecttoOhiotaxliability,hasanOhio
driverslicenseandqualifiestoreceivepublicassistance,thoseallindicateresidencystatus,
and;
5. WhetherthestudentisinOhiobutplanstobearesidentofanotherstateornationforanyreason,indicatingnonresidentstatus,and;
6. WhetherthestudentisinOhiosolelyforthefinancialbenefitofinstatetuition,whichisthestatedintentoftherulesoftheBoardofRegentsindeterminingresidency toexclude
thosestudents
that
are
and;
7. Inconsideringallofthesefactors,theBoardofRegentshasbroaddiscretiontomakeresidencydeterminations.
Withtheseconfusing,evencontradictoryconsiderationsfordeterminingresidencystatus,itisnosmall
surprisethatcollegesanduniversitiesacrossOhiorespondedmuchasbranchesoftheOhioBureauof
MotorVehiclesdidinthefaceofthedriverslicensecontroversywithconfusion.Priortothe
announcementfromtheBoardofRegentsonJuly29,2013,someschoolsinOhiohadbegun
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implementingadmissionsprotocolstoaccommodateDACAstudentsatinstaterates,whileothers
awaitedadecisionfromtheBoardofRegents.Inallcases,theapplicationofthestatesresidency
guidelinestoDACArecipientswasofcriticalimportance.AsthelawisappliedtoDACArecipientsliving
inOhio,thedeterminationonresidencywassomewhatmurky.
Certainlytheeasiestpathtoresidencyforthesestudentswillfallundertheforeverbuckeyeprovision
installedinthecodeinthebudgetpassedbythe129th
GeneralAssembly.DACArecipientslivinginOhio
mustgraduatefromhighschoolorriskineligibilityfortheprogram.Likewise,itisveryclearfromtheplainmeaningofthestatutethatDACArecipientsqualifyfortheforeverbuckeyeprovisionofthe
statuteasnonimmigrantaliens.DACAisrunthoughUSCIStheUnitedStatesCitizenshipand
ImmigrationServicesasthestatutecontemplates,andDACArecipientsaregrantedatemporarylawful
presenceintheUnitedStates.Finally,asDACAapprovedyoungimmigrantshavelargelygrownupin
Ohio,itisunlikelythattheyharborplanstobearesidentinanotherstateornationanymorethanany
otherOhiocitizenthatgraduateshighschoolandpursueshighereducation.
Establishingdomicile,however,isatrickierquestion.Itinitiallyappears bythequalificationsfoundin
theOhio
Administrative
Code
on
the
definition
of
the
word
domicile
that
DACA
students
may
lack
domicile.DACAstudentsdonothavetheabsolute,permanentrighttoliveintheirOhiohomestheir
statusremainsillegalandthelawfulpresencetheyaregrantedbyDACAlastsonlyfortwoyears,at
whichpointtheymustreapply.Ontheotherhand,theopenended,indefiniterenewabilityofDeferred
ActioncreatesanopportunitytoarguethatDACAdoesgrantthemafunctionallypermanentrighttolive
attheirOhioabodes.Whilethetwoyearperiodsrequirereapplication,andthereisnoguaranteeofre
approval,otherprospectivestudentshavesomethinglessthananabsolutelegalrighttoreside
permanentlyattheirOhioaddresses.Amongtheenumeratedfactorsfavorabletoadeterminationofresidency,DACAstudentscanclaim
some,butnotall,ofthem.Asnotedabove,theyareeligibleforOhiodriverslicenses,andindeedmany
alreadycarry
them.
They
are
also
subject
to
tax
liability,
and
with
their
EADs
will
be
increasingly
likely
to
havelegitimatejobs,ratherthancontinuingtoparticipateintheshadowlabormarketthatissooften
frequentedbyundocumentedimmigrants.Theyarenot,however,qualifiedtovoteinOhio.Only
citizenscanvote,andDACAstatusfallswellshortofcitizenship.Likewise,theydonotqualifyforpublic
assistancebenefits.Forallstateadministeredbenefitsthatrelyonthefederalmeanstestingauging
eligibility,undocumentedimmigrantsincludingDACArecipientsareineligibletoapply53.Whilethe
individualstateshavethepowertoexpandorcontracteligibilityforimmigrantgroups,Ohioisoneof
justfivestatesthatfurtherrestrictsaccesstopublicassistanceforimmigrantsnotablyevenforlawful
permanentresidents(LPRs)54.
Somelawfulpermanentresidents,specificallythosewithatwoyearprobationaryperiod,areauseful
parallel
for
comparison
to
DACA
recipients.
Lawful
permanent
residents
are
immigrants
that
have
appliedfortheirgreencards,whichwillissueafteratwoyearprobationaryperiod,duringwhichthe
individualisgrantedlegalpresenceintheUnitedStatesandaworkpermit.Attheexpirationofthese
twoyears,whichweredesignedtocombatimmigrationfraud,theimmigrantwillbecomeafullLPR.
Theseprobationaryperiodsaremostcommonwithmarriageorbusinessbasedimmigrantvisas.
Recipientsofprobationarylawfulpermanentresidencehavelawfulpresence,asDACArecipientsdo,for
53OverviewofImmigrantEligibilityforFederalPrograms,NationalImmigrationLawCenter,rev.10/2011.54Id.
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OhioBoard of RegentsUniversity System of Ohio
John R. Kasich , GovernorJohn Carey , Chancellor
Memorandum
To: University System of Ohio General Counsels
From: Michelle Chavanne, Assistant General Counsel, Ohio Board of Regents
Date: July 31, 2013
Subject: In-State Tuition Rates/Residency determinations for students under the
Deferred Action for Childhood Arrival program (DACA)
After careful review and consultation with various stakeholders, and upon the advice of the Attorney
General for the State of Ohio, section 3333.31 of the Ohio Revised Code does not preclude a student
with an approved request for deferred action under DACA from being classified a resident of Ohio for
purposes of obtaining an in-state tuition rate at an Ohio public college or university. Therefore, residency
determinations for DACA students are to be evaluated under Administrative Rule 3333-1-10, which sets
forth situations in which a person is a resident under (B)(1) or is deemed a resident under paragraphs
(C) and (E).
The determination process should follow the same procedures that are applied to other students byexamining the length of residence in Ohio, reviewing the criteria evidencing residency and reviewing the
criteria evidencing lack of residency as provided under paragraph (D) of the rule.
Questions may be addressed to Michelle Chavanne, Assistant General Counsel, Ohio Board of Regents,
at 614.644.1988 [email protected].
25 South Front StreetColumbus. Ohio 43215
phone 614.466.6000
fax 614.466.5866
web www.OhioHigherEd.org
mailto:[email protected]:[email protected]:[email protected]://www.ohiohighered.org/http://www.ohiohighered.org/http://www.ohiohighered.org/mailto:[email protected]. -
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thosetwoyearsbuttheyalsohavelawfulstatus,whichDACAdoesnotgrant.Lawfulpermanent
residentswouldqualifyasimmigrantsundertheforeverbuckeyeprovision,forexample,ratherthan
nonimmigrants,andmayhavegraduatedfromOhiohighschools,willpaytaxesandwillhavedrivers
licenses.LikeDACArecipientshowever,theycannotvoteandtheymaynotmeettheliteral
requirements
for
domicile
outlined
in
the
Ohio
Administrative
Code.
Also
like
DACA
recipients,
lawful
permanentresidentsduringtheirtwoyearprobationaryperiodarenoteligibleformoststatebenefits
anddonothavearighttoliveattheirOhioabodespermanentlyif,attheendoftheirtwoyearperiod,
USCISdeclinestoremovetheconditionsontheirlawfulpermanentresidency,theylosetheirstatusand
becomeundocumented,justlikeaDACArecipientwhoseapplicationisnotreapproved.
ItsimportanttonoteherethatwhentheOhioAdministrativeCodeisseeminglyatoddswiththeOhio
RevisedCode,thestatutecontrols55.Here,DACAstudentsareeligibleundertheplainmeaningofthe
statuteintheOhioRevisedCode.WhiletheOhioAdministrativeCodemakesthequestionofresidency
lessclear,thoseruleswereneverupdatedtoreflectthechangeswiththeforeverbuckeyeprovision.
Whenstatuteconflictswithattendantadministrativeregulations,thestatuteprevails,andthe
administrativelawprovisionsarevoid.
ComparingDACAstudentstoLPRstudentsisuseful.Withoutexception,lawfulpermanentresidents
livingintheStateofOhioeveniftheirLPRstatusispresentlyprobationarypayinstateratesto
attendOhiospublicschools.Thisisaclassofimmigrantsthatcannotvote,andhasatenuousclaimto
domicileasitisdefinedintheOACexactlylikeDACArecipients.Inthiscontext,itbecomeseasierto
seewhytheBoardofRegentsmighthavetakenthecoursetheydid.Theymayhavenotedthatthe
qualifiedvoterrequirementwasnotalwaysfollowedinresidencydeterminations,andthatdomicilefor
LPRswasmurkyaswell.DACAstudentscloselymirrorconditionallawfulpermanentresidents,andthe
Boardfoundnoreasontotreatthemdifferentlyfortuitionpurposes.Theylikelyalsoconsideredthe
primacyofthestatuteovertheadministrativeregulationsastheforeverbuckeyeclauseinthe
statutemandatesadeterminationofresidencyforDACArecipients,andthequestionsarisefromthe
administrativerules
most
notably
on
domicile
and
eligibility
to
vote.
AlsoofnoteisthepolicybehindtheBoardsrulesasstatedinthestatutetheruleswereintendedto
excludefromresidencythosethatwereinOhiosolelytoattendschool.ApercentageofDACArecipients
dontevenspeaktheirnativelanguages.ManyhavelivedmostoftheirlivesinOhio.Asagroup,theydo
notfittheprofileofthosethatthestatuteisdesignedtoexcludefromresidency.More,advisory
opinionsfromAttorneyGeneralDeWinesofficeindicatedthatDACAstudentswereinfacteligiblefor
instatetuitionunderOhiolaw.Finally,thestatuteiswrittentograntsignificantauthorityfortheBoard
ofRegentstomakeandexecuteitsownrulesondeterminingresidency.TheBoardhasdonesohere,
andhasruledthatDACArecipientsareeligibleforinstatetuition.
InState
Tuition:
Financials
for
DACA
Recipients
and
Ohio
PriortotheBoardsruling,highereducationwasnotareasonableoptionforthegreatmajorityofOhios
DACAeligiblepopulation.Theywerecharged,iftheywereadmittedatall,outofstateorinternational
tuitionratesatOhioschools.AmongallOhiopublicinstitutionsofhigherlearning 22community
55Texasv.UnitedStates,497F.3d491(5thCir.Tex.2007).
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collegesand13fouryearinstitutionsannualtuitionforoutofstateorinternationalstudentsis99%
higherthaninstaterates.Thisaveragesanadditionalalmost$6,300peryearintuitionsurcharges56.At
someschoolsitsevenhigherColumbusStatechargesinternationalstudents166%more,andOhio
Statechargesinternationalstudents167%more.Toputcollegeevenfurtherfromplausibility,DACA
recipients
remain
ineligible
for
federal
and
state
financial
aid.
With
no
loans
or
public
scholarships
availabletothem,andforcedtopayoutofstateorinternationaltuition,collegesimplywasnotpossible
formanyOhioanswithDeferredAction.
ItisdifficulttoquantifythefiscalimpactoftheBoardsdecisionforOhio.Subsidizingthedegreesthat
DACArecipientswillearnthroughtheprovisionofthestateshareofinstruction(SSI),willrequiresome
taxpayerresources.Theaveragedifferencebetweeninstatetuitionandoutofstateorinternational
tuitionatOhiospublicinstitutionsofhigherlearningis$6,298.43peryear,butafterthatthevariables
arefarmorenebulous.Forexample,thevariationinestimatesonthesizeofOhiosDACAeligible
populationwillmakeanyattemptedmathsuspectthebestandonlyestimate,fromMPI,isbetween
10,000and20,000potentialapplicants.Second,itwouldbeimpossibletocomputeanaccuratecollege
attendancerateforDACAstudents.Iftheiragesarespreadoutevenlybetweentheyoungestatsix
yearsoldandtheoldestat31,abouthalfofthemarealreadyoutofhighschoolandpastthecritical
timeintheirliveswhenmostyoungpeopledecidewhetherornottogotocollege.Itsalsodifficultto
judgecollegeenrollmenttrendsinthecomingyears.Moreandmorestudentsarechoosingtwoyear
institutions,forexample,whichhavemuchsmallerdifferences(indollars)betweeninstateandoutof
statetuitionrates.Finally,theresnowaytoaccuratelyjudgecollegetuitionratesandSSIvalues16
yearsfromnow.AstheyoungestDACAeligibleOhioansaresixyearsold(becausetheymusthavebeen
presentintheU.S.in2007),thecostinsubsidizededucationforDACAeligibleOhioanswillbeborne
overthenext1620yearsorso.
Furthercloudingthedeterminationoffiscalimpact,therealsowillbesomeeconomicbenefittothe
state.Ohio
taxpayers
that
are
productive
and
employed
are
very
valuable
to
the
states
economy
not
justinrevenueforthestatebutinhelpingtocreateandmaintainbusinesssustainingmarkets.DACA
approvedOhioanswilllikelypaymoreintaxesthantheirundocumentedpeerswho,whiletheydopay
sometaxes,aremorelikelytobeemployedunderthetable,andthereforelesslikelytopaytaxesasa
group.DACArecipientswillhaveworkpermitsand,therefore,willbemuchmorelikelytohave
legitimateemployment.Theirundocumentedfriendsandfamilieswilllikelycontinuetobeemployed
56SeeincludedtableonOhioschooltuitionrates.
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Institution AnnualInStateTuition AnnualInternationalTuit
TheUniversityofAkron $9,734.40 $18,783.60
KentState
University $9,816 $17,776
ClevelandStateUniversity $9,448.80 $12,628.32*
YoungstownStateUniversity $7,899.36 $13,899.36
ShawneeStateUniversity $6,876.24 $11,990.16
MiamiUniversity $13,266 $29,056
TheUniversityofCincinnati $10,784 $25,816
TheUniversityofToledo $7,863.84 $16,983.84
BowlingGreenStateUniversity $10,606 $17,914
WrightStateUniversity $8,542 $16,546
OhioUniversity $10,380 $19,344
TheOhioStateUniversity $10,010 $26,776
CentralState
University $6,058.00 $13,510.00
Averages FourYearSchools $9,242.05 $19,032.91
*Fornontransferstudents.Rateishigherfortransferstudents
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CommunityColleges** AnnualInStateTuition*** AnnualInternationalTuitio
BelmontCollege $2,448 $4,872
CentralOhioTechnicalCollege $4,296 $7,056
CincinnatiStateTechnicalandCommunityCollege $3,487.20 $6,974.40
ClarkState
Community
College $3,264 $6,096
ColumbusStateCommunityCollege $3,182.40 $8,458.32
CuyahogaCommunityCollege $3,082.56 $5,894.16
EasternGatewayCommunityCollege $2,736 $4,176
EdisonCommunityCollege $3,294.96 $6,102.72
HockingCollege $4,290 $8,580
LakelandCommunityCollege $3,148.80 $6,858
LorainCountyCommunityCollege $3,284.40 $6,516
MarionTechnicalCollege $3,984 $5,904
NothCentralStateCollege $3,114 $6,228
NorthwestStateCommunityCollege $3,504 $6,864
OwensCommunity
College $3,590.40 $6,808.80
RhodesStateCollege $3,764.64 $8,281.28
RioGrandeCommunityCollege $4,117.92 $20,510****
SinclairCommunityCollege $2,707 $5,353
SouthernStateCommunityCollege $4,088 $7,706
StarkStateCollege $3,606.00 $5,790
TerraCommunityCollege $3,845 $4,813
WashingtonStateCommunityCollege $3,264 $6,528
Average CommunityColleges $3,464 $6,470
**ManycommunitycollegesofferdiscountsforresidentsofcertaincountiesinOhio.Thosediscountsarenotinclude
***Forstudents
taking
two
semesters
with
12
credit
hours
****OutofstatestudentscanonlyapplyatRioGrandeUniversity,aprivateschool
Average AllOhioPublicSchools $6,353.03 $12,751.46
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underthetable,andsubjectedtoworkplaceabuse,intheshadowlabormarket.More,Ohioalready
spendsthousands,ifnotmillions,toeducateDACAeligibleundocumentedstudentsinK12education.
Thestateisrequiredtoprovidefreeprimaryandsecondarypubliceducationunderadecisionofthe
U.S.SupremeCourtinPlylerv.Doe.57Whenthesestudentschoosetoliveinotherstateswhichprovidebetter
opportunities
to
young
immigrants,
Ohio
loses
both
bright
young
leaders
and
the
significant
dollarsithasinvestedintheireducation.ByprovidinginstatetuitiontoDACArecipients,Ohiois
investinginagroupofyoungpeoplewhowillbemoreaffluentandmuchmorelikelytoremaininOhio
ifthestateaidstheireducation.Withuncertaincostsoffsetbyuncertainfinancialboons,determining
soundstatepolicyontreatingitsyoungimmigrantpopulationisdifficult.
Statesalloverthecountryarewrestlingwithsimilardecisions.Whiletheoverwhelmingmajoritygrant
driverslicensestoDACArecipients,farfewerhaveannouncedthatDACAstudentswillbegrantedin
statetuition.Presently,16statesgrantinstatetuitiontoallundocumentedstudents.58Thosestatesare:California,Colorado,Connecticut,Illinois,Kansas,Maryland,Minnesota,Nebraska,NewMexico,
NewYork,Oklahoma,Oregon,RhodeIsland,Texas,Utah,andWashington59.Amongthese16,California
andTexaswhichhavethelargestpopulationsofundocumentedimmigrants werethefirsttoinstitute
thispolicy.
Ohio
is
not
among
them.
Ohio
only
grants
in
state
tuition
to
asmall
subset
of
the
states
undocumentedstudentpopulationthosethathaveappliedforandreceivedDeferredActionwhile
these16statesgrantinstatetuitiontoallundocumentedimmigrantstudents.Typically,thesepolicies
requiretheprospectivestudenttocompleteagivennumberofyearsatastatehighschool,tograduate
andtosignanaffidavitindicatingtheirintentiontofileforlegalimmigrationstatusassoonasis
possible60.InMarylandscase,undocumentedimmigrantsareeligibleforinstatetuitiononlyat
communitycolleges.
Afewstatesexplicitlydenyinstatetuitiontoundocumentedstudents.Arizona,GeorgiaandIndianaall
explicitlyprohibitundocumentedimmigrantsfrompayinginstatetuitionrates.InIndianascase,
prospectivestudentsmustbelegallypresenttoreceiveinstatetuitionbenefits.Thisisequivalentto
Ohioscurrent
policy
only
DACA
grantees,
who
are
legally
present,
receive
in
state
tuition,
but
not
undocumentedimmigrantsasawhole.Twostatesgoevenfurther.InAlabamaandSouthCarolina,
undocumentedstudentsaredeniedadmissiontostateinstitutionsofhigherlearningtheycannot
attend,eveniftheyweretopayinternationaltuitionrates.Notably,thesearefiveofthesixstates,
alongwithUtah,thatenactedlawssimilartoArizonasSB1070.MostoftheprovisionsinSB1070were
invalidatedbytheSupremeCourtoftheUnitedStates,butprovisionsallowingstateandlocallaw
enforcementtoinvestigateimmigrationstatuswereupheld,pendingreviewandelucidationbythe
statesowncourts61.
InStateTuition:PotentialLegislation
Inthis
context
of
confusion,
but
with
state
law
indicating
eligibility,
the
Ohio
Commission
on
Hispanic/LatinoAffairsissuedaresolutionontheissueonMay7,2013.TheresolutioncallsontheOhio
BoardofRegentsandOhioinstitutionsofhighereducationtoadmitDACArecipientsatinstateratesin
57Plylerv.Doe,457U.S.202,June1982.
58NationalConferenceofStateLegislators,July2013.59Id.60Id.61Arizonav.UnitedStates,132S.Ct.2492,183.June2012.
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tel 614.466.8333
fax 614.995.0896http://ochla.ohio.gov
Riffe Center ~ 18th Floor
77 South High StreetColumbus, Ohio 43215-6108
John Kasich, Governor
Lilleana Cavanaugh, MBA, Director
Latino Affa
Commissio
2013~201436th Board of
Commissioners
Michael Florez, Chair
Cincinnati
Isabel Framer, Vice Ch
Copley
Rev. Max Rodas
Cleveland
Richard Romero
Lorain
Mary Santiago
Lorain
Luis Tony Ortiz
Dayton
V. Anthony Simms-Ho
Cincinnati
Baldemar VelasquezToledo
Dan Ramos
State Representative
56th District ~ Lorain C
Christina Hagan
State Representative
50th District ~ Stark Co
Gayle ManningState Senator
13th District ~ Huron, L
Charleta Tavares
State Senator
15th District ~ Franklin
Resolution No. 2013-01on Deferred Action for Childhood Arrivals, 5/7/2013__________________________________________________________________________________________________
WHEREAS
the June 2012 Deferred Action for Childhood Arrivals policy announced by the U.S. Department ofHomeland Security provides temporary lawful presence and work permits to thousands of young Ohio immi-grants, and;
WHEREASunder the current Ohio Revised Code 3333.31 and Ohio Administrative Code3333110, DACArecipients qualify as nonimmigrantaliens- residents for tuition subsidy and surcharge purposes, and
WHEREASthere are approximately 1,555 recipients of DACA living in in Ohio (1), and;
WHEREASmore than 85% of young immigrants eligible for DACA are Latinos (2), and;
WHEREASOhio public institutions of higher learning do not presently grant in-state tuition to recipients ofDACA, and;
WHEREASthose Ohio colleges and universities that admit DACA students admit them as international stu-
dents, whose tuition rates are typically two-or-three-times higher than rates for in-state students (3), and;
WHEREASthis failure to comply with Ohio law is harming Ohio Latinos by making higher education finan-cially impossible for them, and;
WHEREASthis has caused many of the states brightest young people to look for education and employmentoutside the state of Ohio, and;
WHEREASthe state of Ohio has already invested thousands of dollars into the primary and secondary educa-tion of these same students, and;
WHEREAS, the flow of bright young Ohio graduates out of the state to pursue higher education elsewhereharms Ohios economic, educational and workforce development, and;
WHEREASthis brain drain results in a loss for the state of thousands of dollars invested in the education of
each one of these students, and
WHEREASthe Ohio Commission on Hispanic/Latino Affairs is statutorily obligated to advise state govern-ment on particular issues impacting Ohio Latinos (4); therefore be it
RESOLVED THAT:
The Ohio Commission on Hispanic/Latino Affairs calls upon the Ohio Board of Regents and Ohios public insti-tutions of higher learning to work with recipients of DACA to comply fully with state and federal law and grantDACA recipients that have graduated from Ohio schools residency for purposes of in-state tuition. This shouldbe done in order to maximize Ohios return on investment, to augment Ohios economic recovery by keepingsome of our brightest young minds in Ohio, and to uphold the principles of fairness and justice.
1USCIS Monthly Report, April 10 20132Up to 1.7 million unauthorized immigrant youth may benefit from new deportation rules, Pew Hispanic Center, August 14 20123See, e.g. Tuition and Fees for the 2012-2013 academic year at the Ohio State University, Columbus State Community College 4O.R.C. 121.32
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accordancewithstateandfederallaw.Sincethatresolutionwaspassed,theBoardofRegentshas
adoptedthispolicybut,likethequestionofdriverslicenses,theissueisnotyetwellsettled.HouseBill
254introducedbyRepresentativesLynchandWetherford wasintroducedinAugust2013,andwould
specificallydelineatethosecategoriesofnoncitizensthatwouldbeeligibleforinstatetuitionrates,
excluding
DACA
recipients.
This
legislation
is
functionally
similar
to
the
legislation
introduced
on
drivers
licenses,andhasbeenreferredforconsiderationbytheHouseEducationCommittee.
7. ConclusionALookAhead
Controversiessurroundingdriverslicensesandcollegetuitionforthisnewcategoryofimmigrantsare
likelyonlypartofthereconciliationOhiofaces.TheDeferredActionprogramcreated,almostovernight,
anewcategoryofOhioanthatextantOhiolawhadnotcontemplated.Theimplicationsareverybroad,
andthepolicydebateontheseandotherquestionsregardingthestatestreatmentofDACArecipients
willlikelycontinue.
ThenextissuetocreatequestionsabouthowDACAfitswithstatelawprobablyconcernsprofessional
licensure.Ohiosboardsandcommissionsthatgrantprofessionallicensesareeachguidedbystatutory
eligibilityguidelines.Federallawwillalsolikelyplayaroleinthisdebate.GovernorKasichs
administrationisactivelyexaminingthesestatutes,andthetopicisbeyondthepurviewofthisreportas
ithasnotyetbeenresolved.OCHLAwillissueafollowuptothisreportonceaninitialadministrativeor
legislativeresolutionhasbeenreached.
ItisalsonotclearthatDACAisapermanentsolution,orthatthequestionofimmigrationreformhas
beensettledinWashington.Whileimmigrationreformhasstalledatthefederallevel,pressurefor
reformismaintainingintensity.Forexample,eightmembersofCongresswerearrestedinOctoberfor
participatinginanimmigrationrallyonthenationalmallearlierthismonth.62
Fornow,however,
DeferredActionmayremainarealityfortheStateofOhiofortheforeseeablefuture.
Tothatend,theOhioLatinoAffairsCommissionispreparedtoconductresearchorprovideclarification
onthisissueuponanylegislatorsrequest.TheCommissionstandsreadytorespondtoitsstatutory
mandatetoadviselegislatorsandOhiosgovernmentoncriticalissuesthatimpactHispanicOhioans.
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