REGENTS OF UNIV. CALIFORNIA v. U.S. HOMELAND SEC.

Nos. 18-15068, 18-15069, 18-15070, 18-15071, 18-15072, 18-15128, 18-15133, 18-15134.

908 F.3d 476 (2018)

REGENTS OF THE UNIVERSITY OF CALIFORNIA; Janet Napolitano, in her official capacity as President of the University of California, Plaintiffs-Appellees, v. U.S. DEPARTMENT OF HOMELAND SECURITY; Kirstjen Nielsen, in her official capacity as Acting Secretary of the Department of Homeland Security, Defendants-Appellants. State of California; State of Maine; State of Minnesota; State of Maryland, Plaintiffs-Appellees, v. U.S. Department of Homeland Security; Kirstjen Nielsen, in her official capacity as Acting Secretary of the Department of Homeland Security; United States of America, Defendants-Appellants. City of San Jose, Plaintiff-Appellee, v. Donald J. Trump, President of the United States, in his official capacity; Kirstjen Nielsen, in her official capacity as Acting Secretary of the Department of Homeland Security; United States of America, Defendants-Appellants. Dulce Garcia; Miriam Gonzalez Avila; Saul Jimenez Suarez; Viridiana Chabolla Mendoza; Jirayut Latthivongskorn; Norma Ramirez, Plaintiffs-Appellees, v. United States of America; Donald J. Trump, in his official capacity as President of the United States; U.S. Department of Homeland Security; Kirstjen Nielsen, in her official capacity as Acting Secretary of the Department of Homeland Security, Defendants-Appellants. County of Santa Clara; Service Employees International Union Local 521, Plaintiffs-Appellees, v. Donald J. Trump, in his official capacity as President of the United States; Jefferson B. Sessions III, Attorney General; Kirstjen Nielsen, in her official capacity as Acting Secretary of the Department of Homeland Security; U.S. Department of Homeland Security, Defendants-Appellants. Regents of the University of California; Janet Napolitano, in her official capacity as President of the University of California; State of California; State of Maine; State of Minnesota; State of Maryland; City of San Jose; Dulce Garcia; Miriam Gonzalez Avila; Saul Jimenez Suarez; Viridiana Chabolla Mendoza; Jirayut Latthivongskorn; Norma Ramirez; County of Santa Clara; Service Employees International Union Local 521, Plaintiffs-Appellees, v. United States of America; Donald J. Trump, in his official capacity as President of the United States; U.S. Department of Homeland Security; Kirstjen Nielsen, in her official capacity as Acting Secretary of the Department of Homeland Security, Defendants-Appellants. Regents of the University of California; Janet Napolitano, in her official capacity as President of the University of California; State of California; State of Maine; State of Minnesota; State of Maryland; City of San Jose; Dulce Garcia; Miriam Gonzalez Avila; Saul Jimenez Suarez; Viridiana Chabolla Mendoza; Jirayut Latthivongskorn; Norma Ramirez, Plaintiffs-Appellants, v. United States of America; Donald J. Trump, in his official capacity as President of the United States; U.S. Department of Homeland Security; Kirstjen Nielsen, in her official capacity as Acting Secretary of the Department of Homeland Security, Defendants-Appellees. Dulce Garcia; Miriam Gonzalez Avila; Saul Jimenez Suarez; Viridiana Chabolla Mendoza; Norma Ramirez; Jirayut Latthivongskorn; County of Santa Clara; Service Employees International Union Local 521, Plaintiffs-Appellants, v. United States of America; Donald J. Trump, in his official capacity as President of the United States; U.S. Department of Homeland Security; Kirstjen Nielsen, in her official capacity as Acting Secretary of the Department of Homeland Security, Defendants-Appellees.

United States Court of Appeals, Ninth Circuit.

Filed November 8, 2018.


Attorney(s) appearing for the Case

Hashim M. Mooppan (argued), Deputy Assistant Attorney General; Thomas Pulham , Abby C. Wright , and Mark B. Stern , Appellate Staff; Alex G. Tse , Acting United States Attorney; Chad A. Readler , Acting Assistant Attorney General; United States Department of Justice, Washington, D.C.; for Defendants-Appellants.

Michael J. Mongan (argued), Deputy Solicitor General; Samuel P. Siegel , Associate Deputy Solicitor General; James F. Zahradka II , Deputy Attorney General; Michael L. Newman , Supervising Deputy Attorney General; Edward C. DuMont , Solicitor General; Xavier Becerra , Attorney General; Office of the Attorney General, San Francisco, California; for Plaintiff-Appellee State of California.

Susan P. Herman , Deputy Attorney General; Janet T. Mills , Attorney General; Office of the Attorney General, Augusta, Maine; for Plaintiff-Appellee State of Maine.

Jacob Campion , Assistant Attorney General; Lori Swanson , Attorney General; Office of the Attorney General, St. Paul, Minnesota; for Plaintiff-Appellee State of Minnesota.

Leah J. Tullin , Assistant Attorney General; Steven M. Sullivan , Solicitor General; Brian E. Frosh , Attorney General; Attorney General's Office, Baltimore, Maryland; for Plaintiff-Appellee State of Maryland.

Jeffrey Michael Davidson (argued), Breanna K. Jones , David S. Watnick , Erika Douglas , and Mónica Ramírez Almadani , Covington & Burling LLP, San Francisco, California; Ivano M. Ventresca , Megan A. Crowley , Alexander A. Berengaut , Mark H. Lynch , and Robert A. Long , Covington & Burling LLP, Washington, D.C.; for Plaintiff-Appellee The Regents of the University of California, et al.

Brian Danitz , Tamarah Prevost , and Justin T. Berger , Cotchett Pitre & McCarthy LLP, Burlingame, California, for Plaintiff-Appellee City of San José.

Mark D. Rosenbaum (argued), Malhar Shah , and Judy London , Public Counsel, Los Angeles, California; Haley S. Morrisson , Matthew S. Rozen , and Nicole A. Saharsky , Gibson Dunn & Crutcher LLP, Washington, D.C.; Kelsey J. Helland , Jonathan N. Soleimani , Kirsten Galler , Ethan D. Dettmer , and Theodore J. Boutrous Jr. , Gibson Dunn & Crutcher LLP, Los Angeles, California; Luis Cortes Romera , Barrera Legal Group PLLC, Kent, Washington; Erwin Chemerinsky , Berkeley, California; Laurence H. Tribe , Cambridge, Massachusetts; Leah M. Litman , Irvine, California; for Plaintiffs-Appellees Dulce Garcia, Miriam Gonzalez Avila, Saul Jimenez Suarez, Virdiana Chabolla Mendoza, Norma Ramirez, and Jirayut Latthivongskorn.

Andrew Kushner , Eric P. Brown , and Stacey M. Leyton , Altshuler Berzon LLP, San Francisco, California, for Plaintiff-Appellee County of Santa Clara and Service Employees International Union Local 521.

Marcelo Quiñones , Laura S. Trice , Greta S. Hansen , and James R. Williams , Office of the County Counsel, County of Santa Clara, San Jose, California, for Plaintiff-Appellee County of Santa Clara.

Jessica Levin , Melissa Lee , Lorraine K. Bannai , and Robert S. Chang , Ronald A. Peterson Law Clinic, Seattle University School of Law, Seattle, Washington, for Amici Curiae 42 Historians and the Fred T. Korematsu Center for Law and Equality.

Leo Gertner , Deborah L. Smith , and Nicole G. Berner , Service Employees International Union, Washington, D.C.; Deepak Gupta , Gupta Wessler PLLC, Washington, D.C.; David J. Strom , American Federation of Teachers, Washington, D.C.; Judith Rivlin , American Federation of State, County, and Municipal Employees, Washington, D.C.; Patricia M. Shea , Communications Workers of America, Washington, D.C.; Bradley Raymond , International Brotherhood of Teamsters, Washington, D.C.; Joseph E. Kolick Jr. , International Union of Painters and Allied Trades, Hanover, Maryland; Mario Martínez , Martínez Aguilasocho & Lynch APLC, Bakersfield, California; for Amici Curiae Service Employees International Union; American Federation of Teachers; American Federation of State, County and Municipal Employees; Communications Workers of America; International Brotherhood of Teamsters; International Union of Painters and Allied Trades; and United Farm Workers of America.

Geoffrey S. Brounell and Peter Karanjia , Davis Wright Tremaine LLP, Washington, D.C., for Amicus Curiae United We Dream.

Sean Goldhammer , Lubna A. Alam , Jason Walta , Emma Leheny , and Alice O'Brien , National Education Association, Washington, D.C.; Andra M. Donovan , San Diego Unified School District, San Diego, California; Abhas Hajela , Capitol Advisors Group LLC, Sacramento, California; Eric E. Stevens , Girard Edwards Stevens & Tucker LLP, Sacramento, California; Kathryn M. Sheffield , California Faculty Association, Sacramento, California; Glenn Rothner , Rothner Segall & Greenstone, Pasadena, California; D. Michael Ambrose and Elaine M. Yama-Garcia , California School Boards Association Education Legal Alliance, Sacramento, California; Jean Shin and Laura P. Juran , California Teachers Association, Burlingame, California; Vibiana M. Andrade , Los Angeles County Office of Education, Downey, California; Devora Navera Reed and David Holmquist , Los Angeles Unified School District, Los Angeles, California; Sonja H. Trainor and Francisco Negrón , National School Boards Association, Alexandria, Virginia; Michael L. Smith , Oakland Unified School District, Oakland, California; Raoul Bozio , Sacramento City Unified School District, Sacramento, California; for Amici Curiae Public Education Groups.

Caryn C. Lederer , Chirag G. Badlani , and Matthew J. Piers , Hughes Socol Piers Resnick & Dym Ltd., Chicago, Illinois; Daniel B. Rice and Joshua A. Geltzer , Institute for Constitutional Advocacy and Protection, Georgetown University Law Center, Washington, D.C.; for Amici Curiae Current and Former Prosecutors and Law Enforcement Leaders.

Zachary Kolodin , Michael N. Fresco , Adeel A. Mangi , and Steven A. Zalesin , Patterson Belknap Webb & Tyler LLP, New York, New York; Juvaria Khan , Sirine Shebaya , and Jonathan Smith , Muslim Advocates, Washington, D.C.; for Amici Curiae 119 Religious Organizations.

Jennifer J. Yun , Ishan Bhabha , Lindsay C. Harrison , and Thomas J. Perrelli , Jenner & Block LLP, Washington, D.C., for Amici Curiae Institutions of Higher Education.

Jennifer B. Sokoler and Anton Metlitsky , O'Melveny & Myers LLP, New York, New York, for Amicus Curiae Eighteen Universities.

Lauren R. Goldman and Karen W. Lin , Mayer Brown LLP, New York, New York; Andrew J. Pincus , Mayer Brown LLP, Washington, D.C.; Ari Holzblatt , Patrick J. Carome , and Seth Waxman , Wilmer Cutler Pickering Hale and Dorr LLP, Washington, D.C.; for Amici Curiae 102 Companies and Associations.

John-Paul S. Deol and Daniel J. McCoy , Fenwick & West LLP, Mountain View, California; Mark S. Ross , James L. McGinnis , and Neil A.F. Popović , Sheppard Mullin Richter & Hampton LLP, San Francisco, California; for Amicus Curiae The Bar Association of San Francisco.

Juan P. Valdivieso , Boies Schiller Flexner LLP, Oakland, California; Albert Giang , Boies Schiller Flexner LLP, Los Angeles, California; J. Wells Harrell and Joshua Riley , Boies Schiller Flexner LLP, Washington, D.C.; for Amici Curiae Former Federal Immigration and Homeland Security Officials.

Kaitland M. Kennelly and William J. Schwartz , Cooley LLP, New York, New York, for Amici Curiae Partnership for Educational Justice, DelawareCAN: The Delaware Campaign for Achievement Now, HawaiiKidsCAN, NewMexicoKidsCAN, and Virginia Excels.

Matthew Scherb , Michael Dundas , Valerie L. Flores , Leela A. Kapur , James P. Clark , and Michael N. Feuer , City Attorney, Office of the City Attorney, Los Angeles, California; Donna R. Ziegler , Alameda County Counsel, Oakland, California; Anne L. Morgan , City Attorney, Austin, Texas; Eugene O'Flaherty , City Corporation Counsel, Boston, Massachusetts; Cheryl Watson Fisher , City Solicitor, Chelsea, Massachusetts; Kimberly M. Foxx , States Attorney for Cook County, Chicago, Illinois; Jeremy Berry , City Attorney, Atlanta, Georgia; Farimah F. Brown , City Attorney, Berkeley, California; Nancy E. Glowa , City Solicitor, Cambridge, Massachusetts; Edward N. Siskel , City Corporation Counsel, Chicago, Illinois; Larry E. Casto , City Attorney, Dallas, Texas; Kristin M. Bronson , City Attorney of the City and County of Denver, Denver, Colorado; Gregory L. Thomas , City Attorney, Gary, Indiana; Ronald C. Lewis , City Attorney, Houston, Texas; Eleanor M. Dilkes , City Attorney, Iowa City, Iowa; Jennifer Vega-Brown , City Attorney, Las Cruces, New Mexico; Karl A. Racine , Attorney General, District of Colombia, Washington, D.C.; Donna Y. L. Leong , Corporation Counsel, Honolulu, Hawaii; Aaron O. Lavine , City Attorney, Ithaca, New York; Daniel T. Satterberg , King County Prosecuting Attorney, Seattle, Washington; Charles Parkin , City Attorney, Long Beach, California; Margaret L. Carter , O'Melveny & Myers LLP, Los Angeles, California; Susan Segal , City Attorney, Minneapolis, Minnesota; John Rose Jr. , Corporation Counsel, New Haven, Connecticut; Barbara J. Parker , City Attorney, Oakland, California; Tracy P. Reeve , City Attorney, Portland, Oregon; Michael P. May , City Attorney, Madison, Wisconsin; Charles J. McKee , Monterey County Counsel, Salinas, California; Zachary W. Carter , City Corporation Counsel, New York, New York; Marcel S. Pratt , Acting City Solicitor, Philadelphia, Pennsylvania; Jeffrey Dana , City Solicitor, Providence, Rhode Island; Timothy R. Curtin , City Corporation Counsel, Rochester, New York; Dennis J. Herrera , City Attorney for the City and County of San Francisco, San Francisco, California; Lane Dilg , City Attorney, Santa Monica, California; Francis X. Wright Jr. , City Solicitor, Somerville, Massachusetts; Matthew D. Ruyak , Interim City Attorney, Sacramento, California; Kelley A. Brennan , City Attorney, Santa Fe, New Mexico; Peter S. Holmes , City Attorney; Seattle, Washington; Mike Rankin , City Attorney, Tucson, Arizona; Michael Jenkins , West Hollywood City Attorney, Jenkins & Hogan LLP, Manhattan Beach, California; John Daniel Reaves , General Counsel, The U.S. Conference of Mayors, Washington, D.C.; for Amici Curiae 40 Cities and Counties, The National League of Cities, and The United States Conference of Mayors.

Jennifer Chang Newell and Katrina L. Eiland , ACLU Foundation Immigrants' Rights Project, San Francisco, California; David Hausman , Michael K.T. Tan , and Lee Gelernt , ACLU Foundation Immigrants' Rights Project, New York, New York; Julia Harumi Mass , ACLU Foundation of Northern California, San Francisco, California; Ahilan T. Arulanantham , ACLU Foundation of Southern California, Los Angeles, California; David Loy , ACLU Foundation of San Diego & Imperial Counties, San Diego, California; for Amici Curiae American Civil Liberties Union Foundation, ACLU Foundation of Northern California, ACLU Foundation of Southern California, and ACLU Foundation of San Diego & Imperial Counties.

Claire M. Blakey , Johanna S. Dennehy , and Harry Lee , Steptoe & Johnson LLP, Washington, D.C.; Christopher W. Smith , Steptoe & Johnson, Los Angeles, California; for Amici Curiae Immigration Law Scholars.

Avi Zevin , Jack Lienke , and Richard L. Revesz , Institute for Policy Integrity, New York, New York, for Amicus Curiae Institute for Policy Integrity at New York University School of Law.

Anna-Rose Mathieson and Ben Feuer , California Appellate Law Group LLP, San Francisco, California; Daniel Hemel , Chicago, Illinois; Seth Davis , Irvine, California; for Amici Curiae Twenty-Four Law Professors.

Philicia Hill , Dorian Spence , Dariely Rodriguez , and Jon Greenbaum , The Lawyers' Committee for Civil Rights Under Law, Washington, D.C.; Sameer P. Sheikh , Martin L. Saad , John F. Cooney , and William D. Coston , Venable LLP, Washington, D.C.; for Amici Curiae The Lawyers' Committee for Civil Rights Under Law, Anti-Defamation League, and Social Justice Organizations.

Joan R. Li , Kara C. Wilson , Monique R. Sherman , and Maureen P. Alger , Cooley LLP, Palo Alto, California, for Amici Curiae Legal Services Organizations.

Mary Kelley Persyn , Persyn Law & Policy, San Francisco, California, for Amici Curiae American Professional Society on the Abuse of Children and California Professional Society on the Abuse of Children.

Christopher J. Hajec , Immigration Reform Law Institute, Washington, D.C., for Amicus Curiae The Immigration Reform Law Institute.

Concurrence by Judge Owens.


OPINION

It is no hyperbole to say that Dulce Garcia embodies the American dream. Born into poverty, Garcia and her parents shared a San Diego house with other families to save money on rent; she was even homeless for a time as a child. But she studied hard and excelled academically in high school. When her family...

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