I don't see any reference to such name check in any statutes, CFRs also don't talk about the namecheck. 8 USC 1154 talks about investigation but nothing else. But many Judges just assume that namecheck clearance as mandatory. So where does the mandatory nature of this namecheck derived ?
You touched a very interesting point. I researched a lot this question, I even wrote to the CIS Ombudsman about this but I received only an answer containing generalities.
Here is what I think is the legal basis (?) of the name check (excerpts from the letter I wrote to the CIS Ombudsman):
"Title 8 of the Code of Federal Regulations discusses the Examination on Applications for Naturalization in paragraph § 335. This paragraph was amended on March 10, 1998, after Congress adopted on November 26, 1997 the Appropriations Act for the Department of Justice and other federal departments and agencies, and mandated that
"During fiscal year 1998 and each fiscal year thereafter, none of the funds appropriated or otherwise made available to the Immigration and Naturalization Service shall be used to complete adjudication of an application for naturalization unless the INS has received confirmation from the FBI that a full criminal background check has been completed". Pub. L. No. 105-199, Title 1, 111 Stat. 2440. 2448-49 (1997).
The amended § 335.2 section now contains a new paragraph:
(b) Completion of criminal background checks before examination. The Service will notify applicants for naturalization to appear before a Service officer for initial examination on the naturalization application only after the Service has received a definitive response from the Federal Bureau of Investigation that a full criminal background check of an applicant has been completed. A definitive response that a full criminal background check on an applicant has been completed includes:
(1) Confirmation from the Federal Bureau of Investigation that an applicant does not have an administrative or a criminal record;
(2) Confirmation from the Federal Bureau of Investigation that an applicant has an administrative or a criminal record; or
(3) Confirmation from the Federal Bureau of Investigation that two properly prepared fingerprint cards (Form FD-258) have been determined unclassifiable for the purpose of conducting a criminal background check and have been rejected.
(Paragraph (b) added effective 3/29/98; 63 FR 12979)
The 63 FR 12979 doesn’t shed any light on the details of the “full criminal background check” definition.
According to a Declaration of Michael Cannon, section chief of the Federal Bureau of Investigations, National Name Check Program, given on February 28, 2006 for the District Court of New Hampshire:
"(17) In this period of heightened national security concerns, a review of the background check procedures employed by USCIS was conducted in November 2002. It was determined that in order to better protect the people and the interests of the United States, a more detailed, in-depth clearance procedure was required. One of these procedures involved the name check clearance performed by the FBI. At that time only those "main" files that could be positively identified with an individual were considered responsive. The risk of missing a match to possible derogatory record(s) was too great and therefore, the search criteria was changed to access references. From a process standpoint, this meant many more files were required to be reviewed for each individual." (Atabani v. Gonzales et al., case 1:05-cv-00457-SM, document 4-4, District Court of New Hampshire).
Researching all the published statues and Federal Regulations, I could not find a definition for a “full criminal background check”.
I am aware of the Fact Sheet “Immigration Security Checks – How and Why the Process Works” dated April 25, 2006, authored by the Press Office of USCIS. However, besides explaining USCIS’ present policy about these checks, there is no reference at all to any legal basis.
Apparently, before 9/11 the name check process (which is part of the full criminal background check) involved only a search in the FBI “main” file system, the same search, which is performed when an individual submits a FOIPA request to FBI to provide copies of all records about the requestor, indexed to his/her name or to his/her identifying information, maintained in the Central Records System.
After 9/11 USCIS asked FBI to add a “reference” file search to the name check process, which resulted in many false “positive” hits requiring manual checks by an FBI agent to decide if the “hit” is a result of a potentially derogatory information, or it is indeed a false positive “hit” as in most of the cases. Apparently, this added requirement (i.e., researching the “reference” files) was never codified or promulgated, so in many people’s opinion, lacks any legal basis.
.....
My first question to you is: Can you point me to the right legislative authority, which defines the “full criminal background check” as mandated by Congress in the Appropriations Act for FY98 and includes a clear description that the extended name checks, as described in Mr. Cannon’s declaration, are mandatory part of this process? It is very likely that there is some law and/or Federal Regulation, which discusses this process and I just missed it.
If there is no such definition in the codified laws, statues or implementing Federal Regulations, the only logical conclusion that can be inferred is that USCIS is acting illegally withholding thousands of N-400 applications more than 120 days after the examination, claiming that they can not adjudicate the petitions before the name checks are completed by FBI, generating hundreds or maybe thousands of lawsuits against the Government, based on the 8 U.S.C. § 1447(b).
I would like to suggest making a recommendation to USCIS and DHS that this situation should be fixed and the pertinent legislation and implementing Federal Regulations amended.
This amendment should contain a definition of a “full criminal background check”; a description of who is responsible to perform it and a precise timeframe how long can be performed by the mandated agencies. The present situation, with no time limits on how long these security checks can run, causes unnecessary frustration and delay in adjudicating far too many petitions for naturalization and potentially poses a risk to our national security.
I have a feeling that FBI and USCIS frequently cite national security reasons as a wholesale argument to cover their inefficiencies in performing these very important checks for our national security." (from my letter addressed to the CIS Ombudsman)