Page 6 of the Memo categorically states:
"Use
This PM is intended solely for the guidance of USCIS personnel in the performance of their official duties. It is not intended to, does not, and may not be relied upon to create any right or benefit, substantive or procedural, enforceable at law or by any individual or other party in removal proceedings, in litigation with the United States, or in any other form or manner."
So no, the Memo is not binding. The 'Use" supersedes the "Scope" - considering the "Purpose" clearly states the memo provides updated
guidelines. Guidelines cannot be interpreted as binding IMO.