Interim Decision #3117
MATTER OF CUELLO
In Visa Petition Proceedings
A-27264727
A-27264728
Decided by Board July 25, 1989
(1) Where an adoption has been effected, be it intrafamily or otherwise, and the adopted
child continues to reside in the same household with the natural parent or parents
during the period in which the adoptive parent seeks to establish his or her compliance
with the statutory residence requirement of section 101(b)(1)(E) of the Immigration
and Nationality Act, 8 U.S.C. § 1101(b)(1)(E) (1982), the petitioner has the burden of
establishing that the adoptive parent exercised primary parental control during that
period of residence.
(2) Evidence of parental control may take many forms, including competent objective
evidence that the adoptive parent owns or maintains the property where the child
resides, provides financial support and day-to-day care, and assumes responsibility for
important decisions in the child's life.
(3) The evidence must clearly establish the physical living arrangements of the adopted
child, adoptive parents, and the child's natural parents during the period of time in
which the adoptive parent seeks to establish compliance with the residence requirement of the statute and, where a fraudulent or ad hoc adoption is suspected, during
any period following the adoption which the adjudicating officer deems appropriate.
(4) Where a petitioner establishes compliance with the statutory requirements of section
101(h)(I)(E) of the Act, demonstrating, where necessary, primary parental control
during the parties' residence with one another, the relationship will he presumed bona
fide in the absence of evidence indicating otherwise. Matter of Yuen,
14 I&N Dec. 71
(BIA 1972); and Matter of Tang,
14 I&N Dec. 180 (BIA 1972), distinguished.
ON BEHALF OF PETITIONER: Pro se
BY: Milhollan, Chairman; Dunne, Morris, Vacca, and Heilman, Board Members
In a decision dated June 9, 1986, the acting officer in charge denied
the visa petitions filed by the petitioner to accord the beneficiaries
immediate relative status as his adopted children under section 201(b)
of the Immigration and Nationality Act,
8 U.S.C. § 1151(b) (1982).
The petitioner appealed from that decision. The record will be
remanded for further proceedings before the officer in charge.
The petitioner, a 54year-old native of the Philippines and citizen of
the United States, adopted the beneficiaries, natives and citizens of the
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Interim Decision #3117
Philippines, on April 21, 1976, when they were 2 1/2 and 6 1/2 years
old. The beneficiaries' surname was changed to that of the petitioner at
the time of the adoption. The petitioner filed his visa petitions on the
beneficiaries' behalf on April 14, 1986, when they were 12 and 16
years of age.
The record reflects that the beneficiaries are the natural children of
the petitioner's sister. The record further reflects that the petitioner
retired from the United States Navy, after 22 years of service, on
September 4, 1974, after which he returned to the Philippines and
resided with the beneficiaries for almost 2 years. In May 1976, 1
month after he adopted the beneficiaries, the petitioner returned to the
United States in order to work to supplement his income and to avail
himself of G.I. benefits by attending school at South Western College
and the San Diego University. He returned to the Philippines in 1981
and has since resided with the beneficiaries in his home in Cavite City,
Philippines.
Notes from an Immigration and Naturalization Service interview
with the petitioner reflect that the beneficiaries' natural father
disappeared in 1977 and his present whereabouts are unknown, that
the beneficiaries' natural mother resides in the petitioner's home with
him and the children, that the beneficiaries' birth records were
amended subsequent to the adoption to reflect the petitioner as lather,
that the petitioner supports the beneficiaries, and that the children
address him as "father" or "uncle." The notes further reflect that the
petitioner did not claim the children as his dependents on his income
tax returns or as beneficiaries of his navy retirement benfits, and that
he had not signed the children's report cards.
At the time the acting officer in charge entered his decision in this
case, section 101(b)(1)(E) of the Act, 8 U.S.C. § 1101(b)(1)(E) (1982),
included within the definition of the term "child," "a child adopted
while under the age of sixteen years if the child has thereafter been in
the legal custody of, and has resided with, the adopting parent or
parents for at least 2 years."
In his June 9, 1986, decision denying the visa petitions, the acting
officer in charge cited Matter of Yuen,
14 I&N Dec. 71 (BIA 1972),
and Matter of Tang,
14 I&N Dec. 180 (BIA 1972), for the proposition
that a true parental relationship must be created by an adoption and
that the adoption of blood relatives casts doubt as to the bona fides of
the adoption. The acting officer in charge concluded that a true
parental relationship had not been created by the instant adoptions
and that the bona fides of the adoptions had thus not been established.
The acting officer in charge based his conclusion on the following
evidence of record: (1) the beneficiaries are the nephews of the
petitioner; (2) the beneficiaries' natural mother resided in the petition-
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Interim Decision #3117
er's home with the beneficiaries while the petitioner allegedly raised
the beneficiaries; (3) there was no change in the natural mother's
relationship with the beneficiaries following the adoption; (4) the
beneficiaries continued to use their natural parents' surname in school
after the adoption; (5) the beneficiaries' birth registrations were not
amended until shortly before the visa petitions were filed on their
behalf; (6) the beneficiaries were not claimed as dependents on the
petitioner's income tax returns or naval retirement records, nor was
the petitioner named as father of the beneficiaries on their school
records; and (7) the petitioner left the Philippines 1 month after he
adopted the beneficiaries.
In his brief on appeal, the petitioner states that the notes of his
interview with the Service misconstrue the relationship and living
pattern between himself, the beneficiaries, and their natural mother.
He explains that the beneficiaries' natural mother only lived with them
occasionally, particularly when the children were sick, that he did not
claim the children as dependents on his income tax returns due to his
belief that such dependents had to be residents and citizens of the
United States, that the children have dependent identification cards
from the United States Armed Forces and are the designated
beneficiaries of his naval retirement benefits and his life insurance
policies, and that the children did not use his surname at school
because they did not have their amended birth certificates to present
to the school due to an administrative foul-up after the adoption. He
also stated that he waited to file the visa petitions on the beneficiaries'
behalf because he wanted his older son to finish his schooling at an
academy in the Philippines before going to the United States.
We note at the outset that the acting officer in charge denied the
visa petitions without first giving the petitioner notice of the proposed
basis for the denial or affording him an opportunity to rebut or explain
the questions the acting officer in charge raised with regard to the bona
fides of the adoption. This Board recently held that where a petitioner
was not put on notice of a deficiency of proof and given a reasonable
opportunity to address the deficiency before the denial of a visa
petition, and the petitioner proffers additional evidence addressing the
deficiency on appeal, the Board will ordinarily remand the record to
allow the adjudicating officer to consider and address the new
evidence. Matter of Soriano, 19 I&N Dec. 764 (BIA 1988); see also
8
C.F.R. § 103.2(b)(2) (1988). We find that our holding in Matter of
Soriano mandates a remand in this case.
We note, moreover, that the cases cited by the acting officer in
charge, Matter of Yuen, supra, and Matter of Tang, supra, are
distinguishable from the instant case. Matter of Yuen was a factually
unique case, involving an adoption created after the Civil Code of
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China was suspended in 1950 by the Communist Chinese Government
which had seized control of mainland China. Inasmuch as the
Communist government promulgated no specific procedural or substantive requirements for creating an adoption to replace the Civil
Code, the Board was forced in Yuen to look to de facto criteria to
determine whether an adoption was in fact effected. See generally
Matter of Chu, 19 I&N Dec. 81 (BIA 1984).
In Matter of Yuen, supra, the petitioner, a blood uncle of the
beneficiary, allegedly adopted the beneficiary in absentia in 1956,
when the beneficiary was 6 '1/2 years old. No written adoption
agreement was ever produced, and the only evidence of the adoption
was an uncorroborated affidavit of the petitioner. The case was
decided on a number of grounds, including the fact that the beneficiary
did not actually enter the family or household of the petitioner until
1968, after the beneficiary had reached the age of 14 years, the age
limit for creating an adoption prescribed at that time by section
101(b)(1)(E) of the Act. We concluded that a "true parental relationship" had not been created prior to the statutory age limit for effecting
adoptions. The Board also stated that the bona fides of the adoptive
relationship were in doubt because of the blood relationship between
the petitioner and the beneficiary and the absence of a written
agreement of adoption. Id.
Matter of Tang, supra, dealt with a pre-1950 Chinese adoption in
which the authenticity of the written instrument of adoption, which
was required by Article 1079 of the Civil Code of China, was not
established by any credible evidence. Thus, the Board disposed of the
case on the ground that there was insufficient evidence to demonstrate
that a legally valid adoption had been effected. Although the Board
went on in Tang to discuss the bona fides of the adoption, that
discussion was dicta.
Although we do not consider Matter of Yuen and Matter of Tang to
be controlling in the instant case, we find that an inquiry into the
nature of the relationship between the adopted child and adoptive
parents, as compared with the relationship between the child and his
or her natural parents, is appropriate in determining whether the
residence requirement of section 101(b)(1)(E) of the Act has been
satisfied.
Where an adoption has been effected, be it intrafamily or otherwise,
and the adopted child continues to reside in the same household with
the natural parent or parents during the period in which the adoptive
parent seeks to establish his or her compliance with the statutory
residence requirement of section 101(b)(1)(E) of the Act, the petitioner
has the burden of establishing that the adoptive parent exercised
primary parental control during that period of residence. Evidence of
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Interim Decision #3117
parental control may take many forms, including but not limited to,
competent objective evidence that the adoptive parent owns or
maintains the property where the child resides, provides financial
support and day to day care, and assumes responsibility for important
- -
decisions in the child's life. The evidence must clearly establish the
physical living arrangements of the adopted child, adoptive parents,
and the child's natural parents during the period of time in which the
adoptive parent seeks to establish compliance with the residence
requirement of the statute and, where a fraudulent or ad hoc adoption
is suspected, during any period following the adoption which the
adjudicating officer deems appropriate. Documentary evidence and
detailed, nonconclusory affidavits may be submitted in support of the
petitioner's claim of primary parental control.'
In the instant case, the continuing presence or influence of the
natural mother in the adopted children's life necessitates inquiry into
the nature of the parties' residence with one another. We note that
where a petitioner establishes compliance with the age and legal
custody requirements of section 101(b)(1)(E) of the Act, and the
statute's residence requirement by, where necessary, demonstrating
primary parental control during the parties' residence with one
another, the relationship will be presumed bona fide in the absence of
evidence indicating otherwise. See generally Matter of Repuyan, 19
I&N Dec. 119 (BIA 1984).
The record will be remanded to the officer in charge for reconsideration of his decision in light of the foregoing discussion. On remand,
the petitioner should be granted an opportunity to submit objective
evidence to substantiate the explanations proffered on appeal and to
offer whatever additional evidence he may wish to present in support
of his visa petitions. The burden of proof remains with the petitioner
on remand to establish eligibility for the benefits sought. Matter of
Brantigan,
11 I&N Dec. 493 (BIA 1966).
ORDER: The record is remanded to the district director for
further proceedings consistent with the foregoing opinion and for the
entry of a new decision.
FURTHER ORDER: Should a decision on remand be adverse to the petitioner, an appropriate order shall be entered and the
record shall be certified to the Board for review.
'Service instructions accompanying visa petitions require that affidavits be sworn to
by persons who were living at the time, and who have personal knowledge of the event to
which they attest. Further, each affidavit must contain the affiant's full name and
address, date and place of birth, relationship to the parties, if any, full information
concerning the event, and complete details concerning how he or she acquired
knowledge of the event.
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