case 2:85-cv-04544-dmg-agr document 528 filed …...2019/03/06 · case 2:85-cv-04544-dmg-agr...

Case 2:85-cv-04544-DMG-AGR Document 528 Filed 03/06/19 of 54 Page ID #:25897

Attachment


IntheUnitedStatesDistrictCourt

CentralDistrictofCalifornia–WesternDivision

JENNYLISETTEFLORES,etal.,Plaintiffs,

v.

WILLIAMP.BARR,etc.,etal.,Defendants.

CaseNo.CV85‐4544‐DMG(AGRx)

Hon.DollyM.Gee,UnitedStatesDistrictJudge

FirstReportandRecommendation

OftheSpecialMaster/IndependentMonitor

AndreaSheridanOrdinSpecialMaster/IndependentMonitor

Strumwasser&WoocherLLP1094WilshireBoulevard,Suite2000

LosAngeles,California90024(310) 576‐1233


TABLEOFCONTENTS

1. INTRODUCTION..................................................................................................................1

2. RELEVANTDUTIESOFTHEMONITOR....................................................................3

3. FLORESSETTLEMENTAGREEMENT.........................................................................6

4. ACTIVITYOFMONITOROCTOBER15,2018–JANUARY31,2019..............9

5. DISCUSSIONOFCLAIMSOFBREACHES................................................................14

A. CBPFacilities.............................................................................................................14

i. Issues............................................................................................................................14

ii. Monitor’sInvestigation.....................................................................................14

iii. DeathsoftwominorsinDecember2018..................................................23

B. ICEFacilities..............................................................................................................30

i. Issues............................................................................................................................30


C. ORRFacilities............................................................................................................36

i. Issues............................................................................................................................36


6. DISCUSSIONOFWHETHERDEFENDANTS’RESPONSESTOPLAINTIFFS’

DECLARATIONSHAVEREBUTTEDPLAINTIFFS’EVIDENCE................................43


1. INTRODUCTION

OnOctober5,2018,thisCourtappointedAndreaSheridanOrdinSpecial

Master/IndependentMonitor(“Monitor”)withherdutiestocommenceon

October17,2018.In2017,theCourthadpreviouslyappointedHenryA.

Moak,Jr.fromtheU.S.CustomsandBorderProtection(“CBP”)andDeane

DoughertyfromImmigrationandCustomsEnforcement(“ICE”)toservein

theroleofJuvenileCoordinatorfortheirrespectiveagencies.Basedinpart

uponcontinuingconflictinginformationfromtheParties,numerous

declarationsfromclassmembersandrelativesindicatingnon‐compliance

withtheCourt’sJune27,2017Order,andtheadditionalfindingthatthe

OfficeofRefugeeResettlement(“ORR”)hadalsobreachedtheFlores

SettlementAgreementinmultiplerespects,theCourtruled:

“BecauseofthecomplexityoftheFloresAgreement,theCourt’sfinding

ofnon‐compliance,andongoingdisputesbetweenthePartiesrelating

totheimplementationoftheFloresAgreement,theCourtfindsthatthe

appointmentofaSpecialMasterandIndependentMonitoris

warranted.”

AttheStatusConferenceonOctober15,2018designedtointroducethe

PartiesandtheMonitor,theCourtexpressedappreciationforthe

contributionsoftheJuvenileCoordinatorsandtheircontinuedparticipation,


andthenleftthebenchtoallowCounselfortheParties,theJuvenile

Coordinators,andtheMonitortodiscussamongthemselvestheirrespective

approachesinthecomingyearinordertocomplywiththeJudge’sOrders.

The2017Orderalonecitesmorethan15categoriesofbreachesprimarily

directedtofacilitieswithinthejurisdictionofCBPandICE.The2018Order

focusesonbreachesinthreegeneralcategoriesinfacilitiesprimarilyunder

thejurisdictionofORR:(1)placingclassmembersinresidentialtreatment

centers,staff‐securefacilities,andsecurefacilities;(2)administering

psychotropicdrugstoclassmemberswithoutacourtorderortheinformed

consentofanauthorizedpersonunderstatelawfocusingspecificallyonthe

ResidentialTreatmentCenterknownasShiloh;and(3)unnecessarily

prolongingclassmembers’detentioninORRfacilities.

ThisfirstReportprincipallydescribestheissuesbeingaddressed,thetoursof

facilitiesintendedtofamiliarizetheMonitorwithconditionsintheRio

GrandeValley(“RGV")sector,andtheMonitor’spreliminaryobservations

whiletouringthefacilitiesandquestioningstaffanddetainedminors.Inthe

secondReportandRecommendations,theMonitorexpectstoanalyzethe

governmentinternaldatadocumentingcomplianceornon‐compliancewith

theCourt’sorders.SubsequentReportsalsowilldetailresultsofinterviews

withclassmembers,governmentstaffandexperts.InthesubsequentReports


andRecommendations,theMonitorexpectstobeabletodrawdefinitive

conclusionsandtoofferconcreterecommendations.

2. RELEVANTDUTIESOFTHEMONITOR

TheentiretyoftheOrderplacessignificantresponsibilitiesontheMonitor,

includingbutnotlimitedto:

MonitorcompliancewiththeCourt’sJune27,2017andJuly30,2018

Orders,andotherCourtordersissuedduringtheTerm(“theCourt’s

Orders”);

MeetwiththePartiesandtheircounselandreceiveand/orhear

evidenceandlegalargumentsonissuespertainingtocompliancewith

theCourt’sOrders;

MakefindingsoffactandprepareformalReportsand

RecommendationstotheCourtregardingachievementofthegoalsof

monitoringandsubstantialcompliancewiththeCourt’sOrders;

Conductsuchinvestigation,interviews,andsitevisitsasarenecessary

toachievethegoalsofmonitoringoraidinthepreparationofReports

andRecommendations;

DirectthePartiestoproducesuchinformationordocumentsasthe

Monitordeemsrelevanttoachievethegoalsofmonitoringorto

prepareReportsandRecommendations;


ResolvesuchdisputesasmayarisebetweenthePartiesregardingthe

implementationoftheCourt’sOrders,includingthisOrder;

Presideoverandfacilitatemediationsand/orsettlementnegotiations

betweenthePartiesastoanyissuespertainingtotheimplementation

oftheCourt’sOrders;and

AdviseandupdatetheCourtonthestatusofDefendants’compliance

withtheCourt’sOrders.

InadditiontotheCourt’sbroadgeneralinstructionsabove,ParagraphD(1)

(a)containsaspecificrequirementtoevaluatethecompetingevidentiary

claimsofthePartiesintheiropposingpapersprecedingappointmentofthe

Monitor.Thatevaluationissetoutbeginningatpage40.

TheCourtfurthercontemplatedthatduringthecourseoftheMonitor’swork,

additional,unenumeratedmattersmightarise.TheCourtspecifically

instructedthat:“Duringthecourseofhermonitoringduties,iftheMonitor

discoverspotentialbreachesoftheFloresAgreementthatarebeyondthe

scopeoftheJune27,2017,July27,2018,orJuly30,2018Orders,sheshall

bringthemtotheCourt’sandtheParties’attention.”

Twosuchunenumerateditemsaroseinthecourseofthecurrentperiod:


TheTornillotemporaryemergencyfacilityforunaccompaniedalien

children(“UAC”)wasreportedinnationalandlocalmediatohave

violatedtheFloresordersinseveralaspects.Announcementsofclosure

ofTornillo,andtheeventualclosure,ledtotheMonitorcancellinga

plannedvisittothatfacility,andnoremedialmeasureswillnowbe

recommendedspecificallyforthatfacility.Evidenceofpastpractices

andeventsatTornillowill,ofcourse,befullytakenintoaccountas

relevant.

InDecember,twochildrendiedinCBPcustody,againraisingconcerns

aboutpossibleviolationsoftheFloresAgreement.Ascontemplatedin

theCourt’sorders,theMonitorisbringingtotheattentionoftheCourt

andthePartiesthepublicly‐availablefactsandpendingactionsbyCBP

inregardtothetwodeaths.

TheOrdercontemplatesregularReportsandRecommendationstotheCourt,

withthefirstReportdueindrafttothePartiesonemonthbeforetheFinal

ReportisfiledwiththeCourt.ByagreementamongtheParties,Court,and

Monitor,thefirstReportisduetotheCourtonMarch6,2019.

AsalsocontemplatedbytheOrder,theMonitorreceiveddetailedwritten

commentsduringtheweekofFebruary18,2019,fromcounselforthe

Plaintiffs,counselforDefendants,CPB,ICEandORR,aswellastheJuvenile


Coordinators1forCPBandICE.Thecommentsreceivedwerehelpfuland

manyofsuggestionshavebeenincorporatedoraddressedinthisFirst

Report.

3. FLORESSETTLEMENTAGREEMENT

TheCourtandthePartiesarewellawareoftheprovisionsoftheAgreement.

TheSettlementAgreementinFloresv.Reno,CV85‐4544‐RJK(Px),wasfiledin

l997afterthelitigationhadbeenpendingfornineyearsandhadbeenheard

bytheUnitedStatesSupremeCourt.SeeRenov.Flores(1993)507U.S.292,

113S.Ct.1439,123L.Ed.2d1.TheSettlementAgreementis23pages,and

attachesExhibits,includingInstructionstoServicesOfficersre:Processing,

TreatmentandPlacementofMinors.Theseprovisionsinthiscontract

betweentheINSandclassmembershaveresultedinscoresoflegaldisputes

andthefilingoftensofthousandsofpagesinmultiplefederalcases.Thecore

provisions,whichovertheyearshavebeenincorporatedinoneformor

anotherinpolicymemorandafirstbythethenImmigrationand

NaturalizationService,andnowbytheDepartmentofHomelandSecurity

1DuringtheperiodofthisReport,anewJuvenileCoordinatorhasbeenappointedforORRandtheMonitorwillbeconductingjointtoursandinterviewswiththeJuvenileCoordinatorinMarch,atHomestead,Florida.


(“DHS”)andDepartmentofHealthandHumanServices(“HHS”)2,Officeof

RefugeeResettlement,include:

TheINSshallplaceeachdetainedminorintheleastrestrictivesetting

appropriatetotheminor’sageandspecialneeds,providedthatsuch

settingisconsistentwithitsinteresttoensuretheminor’stimely

appearancebeforetheINSandtheimmigrationcourtsandtoprotect

theminor’swell‐beingandthatofothers.

WhenevertheINStakesaminorintocustody,itshallexpeditiously

processtheminorandshallholdminorsinfacilitiesthataresafeand

sanitaryandthatareconsistentwiththeINS’sconcernforthe

particularvulnerabilityofminors.Facilitieswillprovideaccessto

toiletsandsinks,drinkingwaterandfoodasappropriate,medical

assistanceiftheminorisinneedofemergencyservices,adequate

temperaturecontrolandventilation,adequatesupervisiontoprotect

minorsfromothers,andcontactwithfamilymemberswhowere

arrestedwiththeminor.Intheeventofanemergencyorinfluxof

2ResponsibilitiesoftheformerImmigrationandNaturalizationServiceweretransitionedtoDHSandHHSbytheHomelandSecurityActof2002,Pub.L.107–296,116Stat.2135.


minorsintotheUnitedStates,theINSshallplaceallminorspursuantto

Paragraph19asexpeditiouslyaspossible.

TheINSshallplaceeachdetainedminorintheleastrestrictivesetting

appropriatetotheminor’sageandspecialneeds.NothingrequiresINS

toreleaseaminortoanypersonoragencywhomtheINShasreasonto

believemayharmorneglecttheminororfailtopresenthimorher

beforetheINSortheimmigrationcourtswhenrequestedtodoso.See

8USC§1232(c)(3)(A).

WheretheINSdeterminesthatthedetentionoftheminorisnot

requiredeithertosecurehisorhertimelyappearancebeforetheINS

ortheimmigrationcourt,ortoensuretheminor’ssafety3orthatof

others,theINSshallreleaseaminorfromitscustodywithout

unnecessarydelay,inthefollowingorderofpreference,to:

o Aparent;

o Alegalguardian;

o Anadultrelative(brother,sister,aunt,uncle,orgrandparent);

anadultindividualorentitydesignatedbytheparentorlegal

3See¶17,whichoutlinesthepossibilityofperformingasuitabilityassessment,includingthewishesandconcernsoftheminor.


guardianascapableandwillingtocarefortheminor'swell‐

beingin(i)adeclarationsignedunderpenaltyofperjurybefore

animmigrationorconsularofficeror(ii)suchother

document(s)thatestablish(es)tothesatisfactionoftheINS,in

itsdiscretion,theaffiant'spaternityorguardianship;

o Alicensedprogramwillingtoacceptlegalcustody;or

o Anadultindividualorentityseekingcustody,inthediscretionof

theINS,whenitappearsthatthereisnootherlikelyalternative

tolongtermdetentionandfamilyreunificationdoesnotappear

tobeareasonablepossibility.

4. ACTIVITYOFMONITOROCTOBER15,2018–JANUARY31,

2019

AftertheOctober17,2018,effectivedateofappointment,theMonitor

focusedinitiallyoninvestigatingandmediatingdisputesrelatingto

Defendants’complianceornon‐compliancewiththeJune27,2017OrderRe

Plaintiffs’MotiontoEnforceandAppointaSpecialMonitor[Doc.#363]and

July30,2018OrderrePlaintiffs’MotiontoEnforceClassActionSettlement

[Doc.#470].

Inordertounderstandmorefullythecontextofmanydisputescontinuing

overenforcementoftheprovisionsofthetworeferencedOrdersandthe


FloresAgreement,theMonitorundertookavarietyofvisitstofacilitiesunder

thejurisdictionofCBPintheRioGrandeValley.TheMonitoralsovisited

certainORRandICEfacilitiesinTexasoutsideoftheRioGrandeValley.

October30,2018:TourwithcounselforthePartiesandpresentations

byCBPpersonnelatMcAllenBorderPatrolStationandProcessing

Center(“CPCUrsula”),conversationswithConsulateofGuatemala

representativeson‐site,andobservationofCBPenforcementactivities

attheborder.TheMonitor,withlawyersforPlaintiffsandDefendants,

accompaniedCBPofficersonpatrol,andaccompaniedtheofficersas

theyapprehendedfamilyunitswhopresentedthemselvesattheUnited

States‐MexicoBorder.

November26,27,28,2018:Toursandinterviewswithcounselforthe

PartiesatICEKarnesCountyFamilyResidentialCenter,locatedin

KarnesCounty,Texas,andSouthTexasFamilyResidentialCenter,

locatedinDilley,Texas.

December4,2018:FirstTourandinterviewsatShilohResidential

TreatmentCenterinManvel,Texas,withcounselforthePartiesand

Plaintiffs’expertpsychiatrist,Dr.AmyCohen.

December5,2018:TourofCatholicCharitiesHoustonShelterand

SouthwestKeyCasaMontezuma.


January14,15,2019:SecondTourofShiloh,tomoderatemediation

meetingamongDrs.LuisValdes,JavierRuiz,andAmyCohen,and

interviewsandreviewofpatientfiles.

January21,22,2019:UnannouncedinspectionoftheMcAllenBorder

PatrolStationandCPCUrsulawithBorderPatrolJuvenileCoordinator

HenryA.Moak,Jr.andhisteam.

Inaddition,theMonitorreviewedCBP,ICE,andORRdatadocumentingtheir

managementofthevariousfacilities,including:

McAllenBorderPatrolStation,CPCUrsula,patrollocationsfor

apprehensionofimmigrantaliens

ShilohResidentialTreatmentCenter

SheltersinHouston,includingCatholicCharitiesHoustonShelter,

SouthwestKeyCasaMontezuma

ResidentialFamilyCenter,Dilley

ResidentialFamilyCenter,Karnes

InconnectionwithherreviewofCBPdata,theMonitormetwitha

representativeofCBPforaday‐longreviewofthepracticesandprocedures

foracquisition,management,andreportingofthedatamaintainedinthe

e3DMsystemmaintainedbyCBPtotrackdetainees.Separately,theMonitor


reviewedmaterialsregardingthedataportalemployedbyORRandobserved

itsusagebyORRpersonnel.

TheMonitoralsoreviewedmultiplelettersfromPlaintiffs’counseladdressing

allegedpotentialbreachesandnewissuesandreviewedDefendants’

counsel’sresponses.Specifically,theMonitorhasreviewedPlaintiffs’

January7,2019,letteroutliningcategoriesofdocumentsdeemedessentialto

determiningcompliance.TheMonitorhasreceivedmultipleCBP,ICE,and

ORRdocumentsrequiredbytheOrderAppointingtheMonitorandwill

provideanalysisofthosedocumentsanddocumentstobereceivedinfuture

reports.

TheMonitorcontinuedherresearch,whichincluded:

Morethan200declarationsfiledbythePartiesin2017and

2018.

Literatureonmedicaltreatmentofminors,includingliterature

providedbytheAmericanAcademyofPediatrics.

Texaslawandregulationsrelatingtochildreninconfinement,

andrequirementsforadministeringmedicaltreatmentand

medication.

RelevantfederaldistrictcourtandNinthCircuitcasesrelatedto

thedetentionofUAC’sandfamilyunits.


OfficeofRefugeeResettlementPolicies:ChildrenEnteringthe

UnitedStatesUnaccompanied.

ConditionsatTornillo.

GiventhescopeoftheMonitor’sresponsibilitiesovertheyearof

monitoring,therearesignificantpowersanddutiesthattheMonitor

hasnotyetaddressedorexercised.WiththeexceptionoftheMonitor’s

involvementinmediatingthecriticaldisagreementsoverthe

prescribingofpsychotropicdrugsatShiloh,theMonitorhasnotyet

metwiththePartiesandtheircounseltoreceiveand/orhearevidence

andlegalargumentsonissuespertainingtocompliancewiththe

Court’sorders.

ItistheMonitor’shopethatastheMonitordevelopssufficientdataand

otherfirsthandaccountsfromdetaineesandothersrelatedto

compliance,thePartieswillbeabletoeffectivelyutilizetheDispute

ResolutionprocesscontemplatedbytheOrderAppointingtheMonitor.


5. DISCUSSIONOFCLAIMSOFBREACHES

A. CBPFacilities

i. Issues

RelyingontheCourt’sJune27,2017OrderRePlaintiffs’MotiontoEnforce

andAppointaSpecialMonitor[Doc.#363],theMonitorfocusedfirstonfour

categoriesofallegationswithrespecttoCBP:accesstofood,safeandsanitary

conditions,ambienttemperature(coldtemperatures),andsleeping

conditions.TheMonitordidnotfocus,forthisReport,onadvisalofrights

whenminorwasinCBPcustody.

ii. Monitor’sInvestigation

(1) FirstSiteVisittoMcAllenBorderPatrolStation

OnOctober31,2018,theMonitor,accompaniedbycounselforPlaintiffsand

Defendants,andtheCBPJuvenileMonitor,touredboththeMcAllenBorder

PatrolStation(“MCS”)andCPCUrsuladuringthemorning.TheMCSwas

observedtobeseverelyovercrowded.

TheRGVSectorDetentionDashboardisaninternalreportcreatedfor

leadership,whichdocumentsthenumbersofadultandjuveniledetaineesin

eachofthefacilitiesonadailybasis.


RedactedPursuanttoProtectiveOrder Page15

CensusforMCS

TheMonitorreviewedtheDashboardforOctober31,2018,thedayofthe

tour.TheDashboardreflectsthattherewere302juvenilesincustodyyetto

beprocessedincellsand346adultsincustody,foratotalof648juveniles

andadultsinMCS.ThedesigncapacityforthetotalcellsinMCSis320,and

thelargestindividualcellcapacityis46.Oneofthecellswasobservedtohave

approximately60mothersandchildren.

TheDashboarddocumentsanaveragetimeincustodyforthatdayas16

hours,butdoesnotdifferentiatebetweenadultandjuveniledetentiontimes

inthefacility.TheDashboarddoesreporthowmanydetainees(again

withoutdifferentiationofjuveniles)werekeptatthefacilitymorethan72

hours.Nonewerereported.

TheMonitoralsoreviewedtheDashboardforMCSforOctober30,2018,

whichdocumentedatotalof496detainees,including240juveniles,andthe

DashboardforNovember1,2018,whichdocumented605detainees,

including220juveniles.TheaveragereportedtimeincustodyforOctober30,

2018was13hoursandtheaveragereportedtimeincustodyforNovember1,


2018was20hours.TheDashboardreportsthatonedetaineewasincustody

formorethan20hoursonOctober30,2018,andnoneonNovember1,2018.4

Safe,SanitaryConditions,AccesstoFood

Thecells,eachboundedbyconcretewalls,wereoriginallyconstructedfor

adultmaledetaineesandcontainnofurnishingsexceptforbenchestositon.

Eachcellhasoneormoretoilets,atleastonesink,andaccesstowater.The

Monitordidnotwalkintothecells,butobservedthatduetothecrowded

conditions,thecellsdidnotprovideadequateprivacyforpersonalhygieneor

useoftoilets.

TheMonitorobservedthedistributionofsnacksandprovisionofwater.At

thisinitialtour,nomeasurementwasmadeofambienttemperatureinthe

cells,buttheMonitordidobservethatthecommonareaswerecoldandthat

theminorsindetentioncellsappearedtobeuncomfortablycoldandwrapped

themselvesinsinglemylarblanketswhilesitting,standing,orlyingonthe

concretefloor.Duringthislimitedtour,floorsandwallsappearedtobeclean

andswept.TheMonitorobservedthatmanyminorswerelyingonthefloor

4TheMonitorhasnotedthatthee3DMDashboardprintoutsthathavethusfarbeenprovided(andotherreportsprovidedbyORRandICE)usuallyshowmeans(averagedays),occasionallymedians(50thpercentile),andoccasionallyareportofmoreextremevalues.Thedataprovidedareusefulbutnotfullysufficientforthepresentpurposes,andtheMonitorwillbeaddressingadditionaldatarequirementsforfuturereports.


RedactedPursuanttoProtectiveOrder Page17

wrappedinthemylarblanketsandappearedtobesleepingatmid‐day.There

arenofloormatsprovidedforsleepingatthisfacility.

(2) FirstsitevisittoRioGrandeValleyCentralizedProcessing

Center

TheCPCUrsulaisdesignedtoaccommodatelargenumbersofadultsand

minors,bothaccompaniedandunaccompanied.ThedesigncapacityforCPC

Ursula,builtin2014,is1,203individuals.Thelargeopenspaceisdividedinto

podssurroundedbychainlinkfencesonallfoursides.

TheMonitorobservedCPCUrsulainthemorningandreturnedintheevening

ofOctober31,2018.Inthemorning,CPCUrsulaappearedovercrowded,but

returningintheevening,theMonitorobservedthatthenumbersofjuveniles

haddecreaseddramatically.TheDashboardforOctober31documentsatotal

of1,311detainees,including369juveniles.Theaveragetimeincustody(not

differentiatedbetweenadultsandjuveniles)was71hours,and544detainees

wereincustodyformorethan72hours,767wereincustodyforlessthan72

hours.

TheCPCUrsulafeltwarmerthanMCSinthemorningbutappearedstilltobe

uncomfortableforthedetainees.Intheevening,theMonitorintervieweda

groupofjuvenilegirlswhowereawaitingtransfertoORR.Someofthegirls


saidthattheywerecold,butonegirlsaidshewaslessuncomfortablethan

shehadbeenatMCS.

TheMonitorobservedthateveningapproximately50minorsstandinginline

forcrackersandanappleaftertheeveningmeal.TheMonitorspoketoa

groupofjuvenileboys,whowerealsoawaitingtransfertoORR.Whenasked

abouttheirpreviousmeal,twoexpressedappreciationandthreeothers

respondedthattheywerestillhungry.Theywereremindedbyoneofthe

touringofficialsthattheycouldhavesnacks,andoneoftheboyssaidhewas

awareofthat.EachboywasaskedhowlonghehadbeeninCPCUrsula.Most

saidonetotwodays,butoneboysaidhehadbeenthereforatleastaweek.

(3) SecondSiteVisittoMcAllenBorderPatrolStationandCPC

Ursula5

OnJanuary21,2019,theMonitor,accompaniedbytheCBPJuvenile

Coordinator,madeanunannouncedeveningvisittoMCS.Juvenile

CoordinatorMoakwasaccompaniedbyateamofthreecontractorswho

assistedhimwithinspectingtheamenitiesandcompliance.Arrivingatthe

facilityatapproximately8:30P.M.,thegroupwasleftstandingoutsidefor5TheMonitornotesthatthisvisittookplaceduringtheDecember22,2018‐January25,2019governmentshutdown.Weweretoldthatsupervisingpersonnelhadbeenrequiredtopurchasefoodandothernecessitiesforthedetaineesintheabsenceofpersonnelandcontractorswhohadbeenfurloughed.


morethan15minuteswhilethepersonnelinsideverifiedthegroup’s

identity.Listedbelowaresomeoftheimpressionsanddatacollectedbyboth

theMonitorandtheJuvenileCoordinator’steamonboththeeveningof

January21,2019,atMCSandmid‐morningandafternoonofJanuary22,

2019,atCBPUrsula.

Temperaturesofareasonablycomfortablerange

ThelowtemperaturewasstillthemostconsistentcomplaintatMCS.CBP

policyspecifiesanacceptabletemperaturerangeof66to80degrees

Fahrenheit.TheJuvenileCoordinatorusedon‐sitemeasuringequipmentand

gotreadingsinthesixcellscontainingjuvenilesof64.7to69.8degrees;the

roomwiththe64.7readingwastheonlyonebelowthe66‐degreeminimum

oftheCBPstandards.TotheMonitor,wearingaturtlenecktop,jacket,and

slacks,thetemperaturewasbelowacomfortablelevel,althoughwithinthe

66‐80minimumandmaximumofCBPstandards.

SafeandSanitataryConditions

AllcellsatMcAllenBorderStationhadfunctioningtoilets.Fiveofthesixsinks

werefunctioningwell,andonewasfunctioningpoorly.Allsinkswerewithout

soap.Allcellswereobservedtobecleanandpest‐free.Cupswereavailable

fordrinking.


Accesstofood

OnJanuary22,2019,theMonitorandtheJuvenileCoordinatorarrivedatCPC

Ursulaandobserveddeliveryanddistributionoffood,whichispreparedoff‐

sitebycontractors.Amealistypicallyaburritowithafruitorabologna

sandwichwithjuice.Theminorsareaskedtoexitcells,andlineupoutside

thecelltoreceivefoodandtobecountedforattendance.Thefoodappeared

tobethesameamountandvarietyforadultsandboysandgirls.Forthenext

Report,theMonitorwillreportmorefullyontheadequacyandaccesstofood.

TheMonitoralsoexaminedthefoodintherefrigeratoratCPCUrsula,which

appearedtobefullystockedandorganizedbydatetofacilitatedistribution

beforeexpiration.

AlsoonJanuary22,2019,theMonitorobservedtheJuvenileCoordinatorand

histeamconductinginterviewswithtwomotherswiththeirminorchildren

atCPCUrsulaandagroupofunaccompaniedjuvenilemales.Theinterviews

coveredtheFloresstandardsindetail,anddetailednotesoftheteamwillbe

includedinfullintheJuvenileCoordinator’sreport.TheICETransport

Programmanagerwasonsiteandassistedwithtranslationoftheinterviews.

TheMonitorelicitedcommentsonvariousissues.Onemotherstatedthather

childrenhadbeenofferedthreemealsadayandsnacks,butoneofher

childrenwillnoteatthefoodandspitsupthemilk.Twounaccompaniedmale


juvenileswhowereinterviewedcomplainedabouttheburritosforbreakfast

andsaidthattheywerestillhungry.TheMonitorexplainedthatsnackswere

available,whichtheyacknowledged.

Hygiene

Insummary,exceptforoneadult,theintervieweesatCPCUrsulaallrelated

thattheyhadshoweredandwerewearingeithertheirowncleanclothesor

cleanclothestheyhadbeengiven.

SleepingConditions

AllintervieweeshadreceivedamatandmylarblanketuponarrivalatCPC

Ursula.ThelightsareonatCPCUrsulaall24hours,butthemothers

interviewedsaidtheirchildrenwereabletosleepduringthenighthoursat

CPCUrsula.Inaseparateinterview,anolderunaccompaniedjuvenilemale

saidhehadnotsleptmuchsincehisarrival.Whenaskedabouttheofficers

checkingontheirwell‐being,oneofthejuvenilemalessaidthathewaskicked

inthelegbysomeonehecalled“anofficer”towakehimup.TheJuvenile

CoordinatorreportedtheallegationtoasupervisingBorderPatrolofficer.

AccesstoMedicalTreatment

TheMonitormetonJanuary21,2019,withmedicalpersonnelwhowereon

dutyatMCSandreviewedthecurrentpolicyformedicalassessmentand


treatmentoftheminors.ThemedicalpersonnelincludedanEMTanda

nursingstaffmember.Suchpersonnelareonduty24hours,sevendaysa

week.Allminorshaveaninitialscreeningwhentheyfirstarriveatthe

station.Thenursepractitionerexplainedthenewpolicy,issuedby

CommissionerKevinMcAleenaninDecember2018,whichrequiresasecond

medicalassessmentwhentheminorsarriveatCPCUrsula.Thenurse

practitioneralsoexplainedtheuseandavailabilityofnearbyhospitalsand

urgentcareclinics.TheMonitoralsoreviewedwiththestafftheprescription

policy.OnJanuary22,2019,theJuvenileCoordinatorandtheMonitor

observedtheofficeoftheCPCUrsulamedicalpersonnelwhowereseeing

detainees,butdidnotthenconductinterviews.

CensusforMCS

TheDashboardforMCSindicates294detaineesincustody,including74

juveniles,onJanuary21,2019.OnJanuary22,theDashboardindicates225

detaineesincustody,including32juveniles.Theaveragetimeincustodywas

24hoursonJanuary21and32hoursonJanuary22.

CensusforCPCUrsula

TheDashboardforCPCUrsulaforJanuary22,2019,indicatesatotalof1,569

detainees,including655juveniles.Theaveragetimeincustodyforall

detaineeswas65hours.TheDashboardalsoindicatesthat847detainees


wereincustodylessthan72hours,and722detaineeswereincustodymore

than72hours.

iii. DeathsoftwominorsinDecember2018

UponreceiptofthepressreportsoftheDecember2018deathsoftwominors

inCBPcustody,theMonitorcollectedthepubliclyavailableinformationfrom

CBP,whichisrelatedbelow.TheMonitorisadvisedthattheDepartmentof

HomelandSecurity,OfficeoftheInspectorGeneral(“DHS016”)openedan

investigationonDecember24,2018.Asnotedonpage22,theMonitorisalso

advisedthattheCommissionerofCBPhasrevisedmedicalscreening

proceduresinordertoaddasecondmedicalassessmentofeacharriving

minor.

TheMonitorwillawaitfurtherinstructionsfromtheCourt,ifany,beforeany

additionalinquiriesaremade.

(1) JakelinCaalMaquin

InformationmadeavailablebyCBP:

OnDecember6,2018at9:15P.M.,aseven‐year‐oldfemalechildfrom

Guatemalawasapprehendedwithherfatherapproximatelyahalfmile

westoftheAntelopeWellsPortofEntryattheBoundsForward


OperatingBase(“BoundsFOB”).TherewerefourBorderPatrolAgents

onsceneatthetime.

Uponapprehension,theBorderPatrolAgentconductedaninitial

screening,whichconsistsofaninterviewandobservationofthe

detaineetoidentifyanyhealthorsafetyproblemstoensurethatthey

receivenecessarymedicalcare.Theinitialscreeningrevealedno

evidenceofhealthissues.

SheandherfatherwereheldinsidetheSallyPortoftheAntelopeWells

PortofEntryandhadaccesstofood,waterandrestrooms,while

waitingfortransport.

At10:00P.M.,anMCITransportBuslefttheLordsburgBorderPatrol

StationroutetotheBoundsFOB.LordsburgBorderPatrolStationis

approximately94milesawayfromtheFOBBounds,andthetriptakes

betweentwotothreehours.

Around12:20AMonDecember7,theMCITransportBustransported

thefirstgroupofUACtotheLordsburgBorderPatrolStation.


TheMCITransportBusreturnedat4:00AMtotheBoundsFOB.At

4:30AM,thesecondgroup,includingthechildandherfatherwas

loadedontotheMCITransportBus.Justpriortodeparture,at5:00AM,

thefatheradvisedtheagentthatthechildwassickandvomitingwhile

onthebus.

Atthistime,theAgentsnotifiedtheLordsburgBorderPatrolStationto

preparetoreceivethechildandprovideemergencymedicalcare.

Shortlybefore6:30AM,thebusarrivedattheSallyPortofthe

LordsburgBorderPatrolStationandthefatheradvisedthatthechild

wasnotbreathing.ABorderPatrolEmergencyMedicalTechnician

begantoprovidemedicalcareandrevivedthechildtwice.Itwas

determinedatthistimethatshehadatemperatureof105.7degrees.

HidalgoCountyEMSarrivedandbeganprovidingcareat6:40AM.A

decisionwasmadetotransporttothenearesttraumacenter,

ProvidenceChildren’sHospitalinElPaso,Texas.


AirAmbulancedepartedLOBwiththechildat7:45AM,shearrivedat

theProvidenceChildren’sHospitalinElPasoat8:50AMandreceived

additionalemergencymedicalcare.

HerfatherwastransportedbyCBPviaagovernmentvehicletothe

hospital.

At11:00AMonDecember7,LOBwasnotifiedthejuvenilewentinto

cardiacarrestagainandwassubsequentlyrevived.Shewasbreathing

bymachineanddiagnosedwithliverfailure.

Shediedat12:35AMonDecember8.

(2) FelipeAlonzo‐Gomez

InformationmadeavailablebyCBP(timesindicatedtobelocal,Mountain

StandardTime):

OnDecember18,atapproximately1300hours,eightyear‐oldFelipe

Alonzo‐Gomezwasapprehendedwithhisfatherat3.29mileswestof

thePasoDelNortePortofEntryinElPaso,Texas.


OnDecember18,atapproximately1639hours,thefatherandchild

weretransferredtothePDTprocessingcenter.

WhiledetainedatPDT,thechildandhisfatherwereprovidedhotfood,

snacks,juice,andwater,andtheagentsloggedsixwelfarechecks.

OnDecember20,at1200hours,thechildandhisfatherwere

transferredtoElPasoBorderPatrolStation(“EPS”).

FromDecember20toDecember22,thechildandhisfatherwere

providedwithshowers,food,juice,andwater,andtheagentslogged17

welfarechecks.

OnDecember22,atapproximately2317hours,U.S.BorderPatrol

transferredthechildandfathertotheAlamogordoBorderPatrol

Station(“ALA”)tofinalizeprocessing.Thechildandhisfatherwere

transferredbecauseofcapacitylevelsattheElPasoStation.

OnDecember23,atapproximately0108hours,thechildandhisfather

arrivedattheAlamogordoStation.


o Uponarrival,thechildandhisfatherwereprovidedwith

personalhygieneproductsandmeals,andtheyreceivedseveral

welfarechecks.

OnDecember24,atabout0539hours,aplacementrequestforthe

childandhisfatherwase‐mailedtoICE’sEnforcementandRemoval

Operations’sfamilyplacementinbox.

OnDecember24,atapproximately0900hours,aprocessingagent

noticedthatthechildwascoughingandappearedtohaveglossyeyes.

OnDecember24,atapproximately0930hours,basedontheagents’

observations,thechildandhisfatherweretransferredtoGCRMCwith

possibleinfluenzasymptoms.

OnDecember24,atabout1130hours,hospitalstaffconductedseveral

testsonthechildforstrepthroat.

OnDecember24,atabout1320hours,thechildwasevaluatedfor

releaseandfoundtohavea103degreefeverandwasheldfor

continuedobservation.


OnDecember24,atabout1450hours,thechildwasreleasedfromthe

ERwithaprescriptionforamoxicillinandibuprofen.

Thechildandhisfatherweretransportedtotemporaryholdingatthe

Highway70checkpoint.Whileatthecheckpoint,thechildandhis

fatherwereofferedandacceptedahotmeal.

Atabout1700,agentsprovidedthechildwithadoseoftheprescribed

medicationasorderedbythemedicalstaffandagentsconducted

severalwelfarechecksthatevening.

OnDecember24at1900hours,thechildappearedtobenauseousand

vomited.Agentswereawareofthisandhelpedcleanupthevomit.

o Hisfatherdeclinedfurthermedicalassistanceasthechildhad

beenfeelingbetter.

OnDecember24,atabout2200hours,thechildappearedlethargicand

nauseousagain.


o AsnoEMTwason‐duty,agentsmadethedecisiontoreturnthe

childandhisfathertothehospital.Duringtransportationtothe

hospitaltheboybegantovomitandhelostconsciousness.

At2307hours,radiotrafficindicatedthattheagenthadarrivedatthe

hospitalwherehewasmetbyhospitalstaff.

o Thestaffwereunabletorevivethechildandpronouncedhim

deceasedat2348hoursonDecember24,2018.

TheGuatemalaConsulatewascontactedat0740hoursonDecember

25,2018.ThefatheriscurrentlydetainedattheAlamogordoStation

pendingtransfertoICEEnforcementandRemovalOperations(“ERO”).

HehasspokentohisspouseinGuatemalaandtheGuatemala

Consulate.

B. ICEFacilities

i. Issues

PursuanttotheCourt’sJune27,2017OrderRePlaintiffs’MotiontoEnforce

andAppointaSpecialMonitor[Doc.#363],theMonitorisfocusingontwo


categoriesofallegationswithrespecttoICE:secure,unlicensedfacilitiesand

releasingminorswithoutunnecessarydelayorwithin20daysofdetention.

Withrespecttounnecessarydelay/20‐daysrequirement,theICEJuvenile

CoordinatorhasprovidedtheMonitorwithhelpfulmaterialfromtheERO

CustodyManagementDivisionEnforcementIntegratedDatabase(“EID”).

AlthoughtheMonitorhasnotyetpersonallyreviewedthefilesofminorswho

haveexperienceddelayinexcessof20days,theCoordinatoradvisesthat

commonreasonsthatunaccompaniedchildrenremainincustodyover20

daysarethefollowing:

Parentsnotclaimingfearofreturntotheircountryofcitizenshipwhen

apprehendedbutsubsequentlyassertingtheclaim;

Sponsordelayinprovidingatransportationplantotransfertheminor

tothesponsor;or

DelaysinICEreceivingfromtheU.S.CitizenshipandImmigration

Services(“CIS”)thedeterminationontheclaimedfearofreturn.


(1) SouthTexasFamilyResidentialCenter(Dilley)

ThelargeDilleyfacilitywasconstructedin2015forfamiliesdetainedbyICE

andismaintainedbyCoreCivicbycontract.Itconsistsofalmost55acresof


groundsandwasdesignedtoaccommodateupto2,400people.Thefacilityis

stillnotofficiallylicensedbytheStateofTexas,butitisstillsubjectto

unannouncedinspectionsandstandardsoflicensedfacilities.TheMonitoris

toldthatStateinspectionsofDilleyoccurred3timesin2016,3timesin2017,

and2timesin2018.TheMonitorwillbeexaminingcopiesofthose

inspectionslaterinMarch.ThecasecitedbytheCourtinthe2017order[Doc.

#363],GrassrootsLeadership,Inc.v.TexasDepartmentofFamilyand

ProtectiveServices,No.D‐1‐GN‐15‐004336,slipop.,TravisCty.Dist.Court

(Dec.16,2016),hasbeenreversed.SeeTexasDepartmentofFamilyand

ProtectiveServicesv.GrassrootsLeadership,Inc.,(Tex.App.,Nov.28,2018,No.

03‐18‐00261‐CV)2018WL6187433.TheTexasCourtofAppealssetasideon

standinggroundstheorderprohibitingTexasfromissuingchildcarelicenses

totheDilleyandKarnesresidentialcenters.

TheMonitortouredtheDilleyfacilitywiththeICEJuvenileCoordinator,staff,

andlawyersforPlaintiffsandDefendantsonNovember26,2018.

TheMonitorobservedthatsincethefamiliesarenotfreetoleavethefacility

withoutstaffaccompaniment,itisdefinedasasecurefacility.Individual

familymemberscanmovefreelythroughoutthelarge,openfacilityto

playrooms,snackareas,libraries,exerciserooms,andoutdoorathleticfields.

Residentsineachofthesix‐toeight‐personbedroomshaveaccesstocable

television.


DilleywasconstructedspecificallywithintheframeworkofICE'sdetention

standards,focusedontheneedsoffamilygroups.Thereisaschoolon‐site,

operatedbyacontractorwith18yearsofexperiencenationwide,staffedby

bilingual,state‐certifiedteachers.ParentshaveaccesstoEnglishasaSecond

Languageandotheradulteducationprograms.VolunteersfortheDilleyPro

BonoInitiativehavedesignatedofficestoconsultwithclientssevendaysa

week.Dilleyhasmedicalfacilities,includingadentaloffice,onpremises.A

subcontractor,ICEHealthServiceCorp.,provides24‐hourmedicalservices.

Residentscanreceivevisitorssevendaysaweek,from8A.M.to8P.M.

Recreationresourcesincludeasoccerfield,volleyballandbasketballcourts,

boardgames,andtoys.Thereisalargelibrary,asmallcomputerlabwith

internetaccessandemailservices,andresidentshaveaccesstoabeauty

shop.Residentsmaykeepandweartheirownclothes,andnon‐institutional,

brightly‐coloredclothingisavailable.Thefacility’scafeteriaservesthree

mealsaday,sevendaysaweek.

TheaveragelengthofstayforDilleyduringJanuary2018was19.8days.Asof

December18,2018,theaveragelengthofstaywas11.6days.The2018

averagewas14.6days.6

6TheICEJuvenileCoordinatorhasprovidedtheMonitorinformationregardingICE’scomputationoftheseaverages.Sheadvisesthatminorswho


(2) KarnesCountyResidentialCenter

TheKarnesCountyResidentialCenter,locatedinKarnesCity,Texas,hasa

capacityof830residents,including580childrenyoungerthan18.Karnes

originallyhousedfemalehead‐of‐householdfamilyunitssincethebeginning

ofAugust2014,butsinceJulyof2018Karneshastransitionedtomale‐head‐

of‐householdunitswithmalechildrenonly.

Asnotedabove,therecentappellatedecisionintheGrassrootsLeadership

case(seep.32)hasremovedthebartostatelicensureforKarnes,butthe

facilitydoesnotpresentlyholdastatelicense.AswithDilley,itissubjectto

unannouncedinspectionandstandardsoflicensedfacilities.TheMonitoris

toldinspectionsofKarnesoccurredoncein2015,2timesin2016,2timesin

2017,2timesin2018,andoncein2019.TheMonitorwillreceivecopiesof

thoseinspections.

TheMonitortouredtheKarnesfacilitywiththeICEJuvenileCoordinator,her

staff,andlawyersforPlaintiffsandDefendantsonNovember27,2018.

Again,aswithDilley,sincethefamiliesarenotfreetoleavethefacility

withoutstaffaccompaniment,itisdefinedasasecurefacility.Thefamilies

havenotyetbeenreunitedwiththeirparentsinaccordancewiththeMs.Lv.ICEorderhavebeenexcludedfromtheFlorestimeframe.TheMonitorexpectstoobtainadditionalinformationregardingtheseaveragesandnumbersforminorswhosestayshaveexceededcertainthresholds.


havefreemovementwithinthefacilityandgrounds.TheKarnesProBono

Project(“RAICES”)isprovidedadesignatedareatoconsultwithclients,and

visitationsarepermittedsevendaysaweek.

AccordingtotheResident’sHandbookprovidedtotheMonitor,thepersonal

areasaresearchedonceadaytodetectcontraband,maintainsanitary

standards,andeliminatefireandsafetyhazards.RulesofBehaviorand

Disciplinearegiventoalladults.Staffconductsanadultandchildcensus

threetimesaday.

Non‐institutionalclothingisprovided.Thereisalawlibraryandaleisure

library.Recreationfacilitiesincludeanoutdoorbasketballcourt,anindoor

gymnasium,andaplayscapeforchildren.TheMonitortouredthemedicaland

dentalfacilitiesandcafeteria,andobservedaninteractivereligiousservice

withapproximately40‐50maleadultsinattendance.Residentsmaymaintain

personalattirefordailywear.Individualwashingmachinesareavailable

throughoutthelivingareas.Theeightpersonbedroomsarefittedwithcable

television.

TheaveragelengthofstayforminorsatKarnesduringJanuary2018was15.4

days.DuringDecember2018,theaveragelengthofstaywas10.1days.The

2018averagewas11.8days.LengthofstaywasdeterminedbyEROCustody

ManagementbycalculatingthetimebetweenApprehensionDateandeither


Book‐outdateortheendofmonthforthosewhoremainedincustody.7On

occasion,wheretherearedataqualityissuesontheapprehensiondate,the

initialBook‐indatewassubstituted.

C. ORRFacilities

i. Issues

PursuanttotheCourt’sOrderRePlaintiffs’MotionToEnforceClassAction

Settlement[Doc.#470],thefocusoftheMonitor’sinvestigationconcerns

threecategoriesofissues.ThefirstcategoryistheassignmentofUACsto

ORRstaff‐securefacilitiesorsecurefacilities,withparticularattentionto

whethertheUACisgiventimelywrittennoticeofthereasonsforplacinga

UACinasecurefacility,staff‐securefacility,orRTC.Thesecondcategory

concernstheadministrationofpsychotropicmedicationtoclassmembers

withouttheinformedwrittenconsentbyapersonauthorizedbystatelawor

acourtorder.Thislatterissueisparticularlypressinginthecontextofthe

ShilohResidentialTreatmentCenter,alsodescribedbyShilohpersonnelasa

subacutehospitalwitharesidentialprogram8.TheMonitorwilladdressthe

7TheMonitorhasquestionsabouttheaggregationofbooked‐outminorsandthosestillincustodyandexpectstoreceiveadditionalinformationaboutthisandotherdata.8TheOrderspecificallyappliestoShiloh,buttheissueissoentwinedwiththedeliveryofpsychotropicdrugsinallshelters,thattheMonitorwilladdressthemedicaldeliveryofdrugsinORRsheltersinafuturereport.


issuesparticulartoShilohbelow(seep.40etseq.).Thethirdcategory

concernsthetimeUACsareinthecustodyofORRandwhetherallexpeditious

stepshavebeentakentoplacetheUACsinanon‐institutionalsetting.


OnDecember3,2018,theMonitortouredtwoofthemorethan100shelter

facilitiesforwhichORRcontracts,theCatholicCharitiesHoustonShelterand

theSouthwestKeyCasaMontezumaShelter.

TheMonitordoesnotyethavethedatanecessarytodeterminetheduration

ofminors’staysatthesetwofacilities,buttheORRdataforfiscalyear2018

reflectsthatofthe55,136totalplacementsnationally,35,249(86%)were

released,896(2%)wereremoved,andtheoveralllengthofcareaveraged60

days.Nationally,thedataforthefirstthreemonthsofthe2019fiscalyear

(theU.S.federalgovernment’sfiscalyearbeginsOctober1)reflecttotal

placementsof18,137,ofwhich12,953werereleased(90%),256(2%)

removals,andasignificantincreaseinoverallaveragelengthofcare,to89

days.TheRGV‐specificnumberswillbeincludedwhentheyarereceived.


(1) CatholicCharitiesHouston

TheMonitorvisitedtheCatholicCharitiesHoustonShelteronDecember4,

2018,withthestaffofORRandcounselforDefendants.9Theshelterisinan

attractivehomeinaresidentialneighborhood,designedtocareforyoung

womenandtheirinfants.Atthetimeofthevisit,therewasoneinfantinthe

childcareroombeingcaredforbyastaffmember.Allofthewomenwereat

schoolduringthevisitexceptonewhowasinthehospitalabouttodeliver.

Itappearedthattheyoungwomenwerefreetocomeandgounimpeded.We

couldnotinterviewanyoftheyoungwomenwhowereinclasstodetermine

whethertheywerehavinganydifficultycomingandgoingastheywished.

Thefacilityholdsalicensefromthestate.

(2) SouthwestKeyCasaMontezuma

TheMonitorvisitedSouthwestKeyCasaMontezumaonthesameday,

December4,2018,accompaniedbystaffofORRandcounselforDefendants.

SouthwestKeyCasaMontezumaisamodifiedhospitalinaresidentialarea

andoperatesasaGeneralResidenceOperation.Itisalargefacilitywitha

capacityfor800unaccompaniedchildren.TheMonitorobservedbedrooms,

9Plaintiffs’counselweregiventheopportunitytoparticipateinthevisitstotheCatholicCharitiesandSouthwestKeyCasaMontezumafacilitiesbutdeclined.TheydidjointhevisittoShiloh,asnotedbelow.


bunkbeds,dresserdrawers,andoftenanattachedbathroom.ThemaleUACs

areonaseparatefloorfromthefemales.Nopersonalitemswereobservedin

thebedrooms,eitheronthebedsoronthedresser.Thefacilityissurrounded

bysecurityforpersonscomingandgoing.Thefacilityislockedandsecure,

withpersonnelregulatingentryandexitofvisitorsandstaffandminors

accompaniedbystaff.Theoutdoorareaforexerciseissmallandsurrounded

byachain‐linkfence.TheMonitorobservedschoolclasses,whichappearedto

beofreasonablesizeandengagedinappropriateteachingactivities.The

monitorexaminedthecafeteriaatmealtime,seeingmaleandfemaleminors

eatingatthesametime,withtalkandlaughteramongtheminors.Thefood

lookedappetizing.Thewallsofthecafeteriaandgeneralhallsweredecorated

withbrightcolors,signsannouncingeventsandreportinginappropriate

conduct,andstudentartwork.

TheMonitorobservedthemedicalfacilitiesandmetwithadministrative

personnel.Inwalkingthroughthefacility,theMonitorobservedmental

healthprofessionalsintheirofficesandteachersconductingclasses.The

Monitorwastoldthatalloftherelevantstaffheldstatelicensesandthatthe

facilityitselfwaslicensed.

Familymembersareabletovisittheminors,andtheMonitorobserveda

bankoftelephonesavailableforprivateconversationswithfamily,friends,

andpotentialsponsors.


Inresponsetoquestions,administrativestaffrecognizedthattherehadbeen

increaseddelayinobtainingsponsors,whichtheMonitorunderstandstobe

attributable,atleastinpart,tothecurrentgovernmentpolicyregardingthe

needforfingerprints.Butstaffsaidthat,inaddition,theyweresometimes

beingtoldthatthefingerprintsforhouseholdmembersofaprospective

sponsorhadexpired,delayingplacementuntilfingerprintingcouldbe

repeated.Therealsoappearedtobeincreasedinvestigationofsponsorsand

oftheextendedfamilyofthepotentialsponsor.

InJanuaryof2019,subsequenttotheDecember4thtour,theMonitorwas

informedthatonDecember18,2018,ORRpolicyhadbeenchangedbyan

OperationalDirectiveinanattempttoincreasethespeedofinvestigationof

sponsorsandextendedfamilies,anddecreasethelengthofcaredescribed

duringourtour.Amongotherthings,ORRrevisedORRfingerprintpolicyto

extendthetimeperiodinwhichfingerprintsremainvalid.TheMonitorwill

bereviewingtheimpactofthischangeinpolicyandprovideresultsinthe

nextReport.

(3) ShilohResidentialTreatmentCenter

TheMonitorattendedthefirsttourandinterviewsatShilohwithcounselfor

thePartiesandORRpersonnel.TheUnaccompaniedMinor’sProgramat

ShilohTreatmentCenterisaresidentialtreatmentprograminaruraland


isolatedenvironmentthatserveschildrenandadolescentsages3–18years

oldwithbehavioralandemotionalproblemsresultingfromamentalhealth

diagnosis.Shilohoperates24hoursaday,7daysaweek.Shilohiscurrently

licensedfor44bedsbytheTexasDepartmentofFamilyandProtective

Services,accreditedbytheJointCommission,andapprovedasanon‐public

schoolbytheTexasEducationAgency.

TheCourtspecificallydirectedthatShilohprovidefacilitieswhereminors

mayhaveprivatetelephoneconversations.TheMonitorandattendees

examinedtheofficewiththecubicleequippedwithseatingandthetelephone

usedbytheminors.SincetheCourt’sOrder,theformerlysoliddoortothe

telephonecubiclehasbeenalteredtoincludeawindow,sothatminorscan

nowclosethedoorandspeakwithoutbeingoverheardbyastaffmemberin

theoffice.

TheMonitorobservedtheresidencesoftheminors.Theinteriorscontain

bedroomswithbunkbeds,bedroomfurniture,privatebathrooms,anda

commonlivingroom,diningroomandkitchen.Theexteriorsofthe

residencesareequippedwithvisiblesecurityondoorsandwindows.The

Monitoralsoobservedaclassinsessionandstaffandboysintheathletic

yard.


Attheconclusionofthetour,theMonitormetinaconferenceroomwithORR

personnel,counsel,managementofShiloh,andtheexpertpsychiatristfor

PlaintiffstodiscussingeneraltheroleofORRanditscontractorscaringfor

UACs,andspecificallythecurrentcompliancebyShilohwiththeCourt’s

OrderafterJuly30,2018.Theconversationfocusedprimarilyoninformed

consentforadministrationofpsychotropicmedications,ensuringthatminors

wereheldintheleastrestrictiveenvironment,andthatminorsshouldbe

expeditiouslyreleasedor“steppeddown”toalessrestrictiveenvironment.

ThelawyersandShilohstaffconcludedthemeetingwithabriefquestionand

answersession.

Dayslater,atasubsequentmeetandconferwithcounsel,atthesuggestionof

theMonitor,itwasagreedthattheProgramAdministrator,Shiloh

Psychiatrist,andPlaintiffs’expertwitnessshouldmeetinpersonorthrough

Skypetofurtherdiscussdisputedissues,withouttheirlawyerspresent,with

thehopethatthemedicalprofessionalscoulddevelopamedicalprotocol

consistentwithbestpracticesandtheOrder.ItwasdecidedthattheMonitor

wouldattendasmoderator.

TheMonitorattendedthemeetingofthedoctorsatShilohonJanuary14,and

observedtheirthoughtfulandfar‐rangingattempttodevelopacommon

protocol.


Attheconclusionofthemeeting,thedoctorsagreedtosharetheir

impressionswiththelawyersforORRandthePlaintiffs.TheMonitorhas

beeninformedthatafterhearingfromthedoctors,thelawyersforORRand

thePlaintiffshavemetandconferredinJanuaryandFebruary.Eachsidehas

proposedlanguagetosettlethedispute.TheMonitorwillreportonthe

resultsinthenextReport.

6. DISCUSSIONOFWHETHERDEFENDANTS’RESPONSESTO

PLAINTIFFS’DECLARATIONSHAVEREBUTTEDPLAINTIFFS’

EVIDENCE

ParagraphD(1)(a)oftheOrderAppointingtheMonitorrequiresherto

includeintheFirstReportandRecommendationadiscussionof“Defendants’

responsestothedeclarationsPlaintiffsfiledonJuly19,2018[Doc.##475to

475‐7]andPlaintiffs’replyhereto[Doc.##481and481‐1],andopineonthe

extent(ifany)towhichDefendantshaverebuttedPlaintiffs’evidence.”10

10Defendants’filingcontainsseparaterepliesfromICEJuvenileCoordinatorDeaneDougherty[Doc.#475‐1]andUSBPJuvenileCoordinatorHenryA.Moak,Jr.[Doc.#475‐2to475‐7].TheICEreplyaddressesPlaintiffs’MemorandumReStatusConferenceandResponsetoThirdGovernmentMonitors’Reports[Doc.##457to457‐1],datedJuly13,2018,anddoesnotpurporttoaddressPlaintiffs’July19,2018declarations,towhichthisparagraphoftheOrderrefers.Therefore,theMonitorfocuseshereonMr.Moak’sresponsetotheallegationsagainstCBPinPlaintiffs’July19,2018filing.


Inhisresponse(LetterfromHenryA.Moak,Jr.toHon.DollyM.Gee,Aug.6,

2018)[Doc.#475‐1](“MoakLtr.”),Mr.MoakdescribeshowhehadCBP

activitylogsandamenityreportsretrievedforallofthedeclarations

pertainingtotheRGVSector,ofwhichhewasabletoobtaindocumentation

regarding18ofthedeclarants;heattachesthosedocumentstohisresponse.

Mr.Moakthenpresentshisconclusionsfromthisreview.TheMonitorhas

reviewedhisresponseandcomparedthe18declarationstotherecords

profferedbyMr.Moak.Obviouslythisisalimitedsubsetfromwhichtodraw

anybroadconclusionsaboutrebuttalofPlaintiffs’evidentiaryshowings,but

thatisoflesserconcernthanthelimitedevidentiarysupportCBPcandraw

fromthe18filesthatwereexamined.

Mr.Moak’sfilereviewdemonstratesthatthefullbreadthoftheallegationsin

Plaintiffs’declarationsarenotfullyaddressedinthefile.Overall,“the

custodialrecordsindicatemanyoftheminorswereprovidedsomeorallof

theseamenities.”(MoakLtr.,at2.)Thereviewisrestrictedto“allegations

relatedtopersonalhygieneproducts,accesstoshowers,foodavailability,or

otheramenitiesoffered”(id.),andacknowledgesthatsomeofthedeclarants’

allegations“cannotberesolvedbasedsolelyontheattachedRGVrecords,”in

partbecausesomeoftheissues(e.g.,ambienttemperatures)pertainto

declarants’subjectiveexperiences(id.at3).AndMr.Moakacknowledges


“particularlyconcerning”allegationsofagentorofficermisconduct,which

havebeenreferredtoCBP’sOfficeofProfessionalResponsibility.(Id.)

Mr.Moakcomparestheallegationsoftwodeclarationswiththerecords

profferedwithhisresponse,which“illustratehowmanyofthe18

declarationsIreviewedcontainallegationsthatareinconsistentwiththe

actualdatacollectedbyCBPduringtheminors'timeincustody.”(Id.at2.)

TheMonitorhascomparedthedeclarationswiththeCBPdataprovided.The

comparisonrevealsthatthelimitedscopeofthedatamaintained,the

inherentlysubjectivenatureofsomeofthecomplaints,andthelimited

conclusionsMr.Moakwasabletoreachcannotprovidesufficientevidentiary

refutationofthedeclarations.

Toillustrate,Mr.Moak’sfirstexampleregardsKeylinM,whosedeclarationis

Plaintiffs’Exhibit6.Thefollowingtableitemizestheallegations,shows

Mr.Moak’sresponses,anddescribeshowtheMonitorfindsthatthetwo

relate.


Allegation (Plaintiffs’ Exhibit 6)

CBP Response (Moak Ltr., p. 2)

Monitor’s Observations

Room cold, shivering, miserable cold. (¶¶ 4, 10)

No response with respect to Keylin in particular, but CBP maintains that, except as noted, temperature was maintained between 60 and 80 degrees F.

Numerous declarations allege (and Monitor observed) that rooms felt cold, minors were unaccustomed to air conditioning, many were lightly dressed.

Given food frozen (¶¶ 5, 13, 20) “[C]ustodial records show 22 meals were accepted, one meal was rejected, and seven snacks were offered during the minor's time in custody.”

Monitor confirms that e3DM records show minor “accepted” 22 meals (plus snacks) and refused 1. Whether minor found them edible (i.e., actually ate) is not clear. Several of Plaintiffs’ declarants made the same allegation regarding undefrosted food.

Food smelled bad (¶¶ 13, 20)

Separated from Mother, limited opportunity to talk (¶¶ 6‐7, 19)

No response

Female guards abusive (¶¶ 8‐9) Allegations are particularly concerning. Referred to OPR.

Guards did not allow them to keep blankets when leaving facility. (¶¶ 11, 12)

No response Allegation appears to regard being permitted to keep blankets when transferred between facilities, rather than being denied blankets.


Allegation (Plaintiffs’ Exhibit 6)

CBP Response (Moak Ltr., p. 2)

Monitor’s Observations

Had no toothpaste, toothbrush at “Dog House” (¶ 14)

“KM received . . . a dental hygiene product, . . .”

Records show she received these items at “RGV”, the first facility to which she was taken. Declaration says she did not have toothpaste, toothbrush “the entire time I was at the Dog House,” which appears to refer to the second facility (“BRP” in the records), where she was taken on her fifth day in custody. So it appears she did not take what she was given at “RGV” with her to “BRP”, where she was not given new dental hygiene items.

Bathrooms “dirty and disgusting, toilets overflowing” (¶ 15)

No response.

Was not allowed to shower or change for 5 days (¶ 16)

“Custodial records indicate that KM received … two showers during her time in custody.”

Minor was in custody for 8 days at time of declaration.

Not given any food, water when moved after 4 days (¶ 18)

“[C]ustodial records show 22 meals were accepted, one meal was rejected, and seven snacks were offered during the minor's time in custody.”

This allegation appears to refer to 5th day in custody, when she was transferred from “RGV” to “BRP”. E3DM records indicate meals were received. No records regarding water.


ThematerialMr.Moakhasprovidedisbynomeansirrelevanttotheissues

beforetheCourt.IntheMonitor’sview,thisexercisehasshownthatwhilethe

e3DMdatadefinitelyhasasignificantroletoplayinexaminingsomeofthe

allegationsthathavebeenmade,rebuttalofthefullrangeofissuesrequires

evidenceoutsidethee3DMmaterials,atleastasitispresentlydesigned,and

mayrequire,forexample,reconsiderationofthestandardsandcriteriaCBP

hasadopted.

AtthispointthePartieshavemovedbeyondtheallegationsofthe2018

filings.TheMonitorhasseensomeprogressonanumberoftheissuesthat

havethusfareludedresolution.If,afterthecurrenteffortsruntheircourse,

someissuesremainunresolved,thePartiescanaddressthemwithnew

evidencefrombothsides.


case 2:85-cv-04544-dmg-agr document 528 filed …...2019/03/06 · case 2:85-cv-04544-dmg-agr...

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