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"paragraphs": [ { "text": "page", "paragraph_id": "para_1" }, { "text": "542", "paragraph_id": "para_2" }, { "text": "Cite as 29 I&N Dec. 542 (BIA 2026) Interim Decision #4179", "paragraph_id": "para_3", "court_paragraph": 542 }, { "text": "Matter of Juan Carlos PELAGIO MENDOZA, Respondent", "paragraph_id": "para_4" }, { "text": "Decided April 3, 2026", "paragraph_id": "para_5" }, { "text": "U.S. Department of Justice", "paragraph_id": "para_6" }, { "text": "Executive Office for Immigration Review", "paragraph_id": "para_7" }, { "text": "Board of Immigration Appeals", "paragraph_id": "para_8" }, { "text": "A respondent’s or qualifying relative’s testimony about a medical or mental health", "paragraph_id": "para_9" }, { "text": "condition will generally be insufficient to establish exceptional and extremely unusual", "paragraph_id": "para_10" }, { "text": "hardship where expert testimony, reports, or medical evidence exist and could reasonably", "paragraph_id": "para_11" }, { "text": "have been produced.", "paragraph_id": "para_12" }, { "text": "FOR THE RESPONDENT: Pro se", "paragraph_id": "para_13" }, { "text": "FOR THE DEPARTMENT OF HOMELAND SECURITY: Christian Parke, Assistant", "paragraph_id": "para_14" }, { "text": "Chief Counsel", "paragraph_id": "para_15" }, { "text": "BEFORE: Board Panel: GOODWIN and VOLKERT, Appellate Immigration Judges;", "paragraph_id": "para_16" }, { "text": "MCCLOSKEY, Temporary Appellate Immigration Judge.", "paragraph_id": "para_17" }, { "text": "GOODWIN, Appellate Immigration Judge:", "paragraph_id": "para_18" }, { "text": "On August 11, 2025, the Immigration Judge granted the respondent’s", "paragraph_id": "para_19" }, { "text": "application for cancellation of removal for certain nonpermanent residents", "paragraph_id": "para_20" }, { "text": "under section 240A(b)(1) of the Immigration and Nationality Act (“INA”),", "paragraph_id": "para_21" }, { "text": "8 U.S.C. § 1229b(b)(1) (2024). The Department of Homeland Security", "paragraph_id": "para_22" }, { "text": "(“DHS”) has appealed from that decision, arguing that the respondent has not", "paragraph_id": "para_23" }, { "text": "demonstrated that his children would suffer exceptional and extremely", "paragraph_id": "para_24" }, { "text": "unusual hardship if he were removed. The respondent, a native and citizen", "paragraph_id": "para_25" }, { "text": "of Mexico, opposes the appeal. The appeal will be sustained, and the", "paragraph_id": "para_26" }, { "text": "respondent will be ordered removed to Mexico.", "paragraph_id": "para_27" }, { "text": "I. FACTUAL AND PROCEDURAL HISTORY", "paragraph_id": "para_28" }, { "text": "The respondent is 46 years old and entered the United States without", "paragraph_id": "para_29" }, { "text": "inspection in 1999. He has three United States citizen children, ages 16, 11,", "paragraph_id": "para_30" }, { "text": "and 8, who would remain in the United States with his ex-wife, their mother,", "paragraph_id": "para_31" }, { "text": "if the respondent were removed. The respondent is the primary source of", "paragraph_id": "para_32" }, { "text": "income for the family. His ex-wife works 3 days a week as a waitress. She", "paragraph_id": "para_33" }, { "text": "lacks lawful status to reside in the United States. The respondent often", "paragraph_id": "para_34" }, { "text": "attends his children’s soccer matches, including when they travel to compete.", "paragraph_id": "para_35" }, { "text": "Cite as 29 I&N Dec. 542 (BIA 2026) Interim Decision #4179", "paragraph_id": "para_36" }, { "text": "page", "paragraph_id": "para_37" }, { "text": "543", "paragraph_id": "para_38" }, { "text": "The respondent’s eldest son testified that, following his parents’ divorce", "paragraph_id": "para_39", "court_paragraph": 543 }, { "text": "in September 2024, he went to a psychologist because he was struggling with", "paragraph_id": "para_40" }, { "text": "“anger issues.” On appeal, the respondent asserts that his son had suicidal", "paragraph_id": "para_41" }, { "text": "thoughts. The respondent’s son testified that he “wanted to commit suicide", "paragraph_id": "para_42" }, { "text": "at some point in [his] life.” The record does not contain nontestimonial or", "paragraph_id": "para_43" }, { "text": "expert opinion evidence about the mental health of the respondent’s eldest", "paragraph_id": "para_44" }, { "text": "son.", "paragraph_id": "para_45" }, { "text": "The sole issue in dispute before the Immigration Judge was whether the", "paragraph_id": "para_46" }, { "text": "respondent demonstrated that his removal would result in exceptional and", "paragraph_id": "para_47" }, { "text": "extremely unusual hardship to a qualifying relative under section", "paragraph_id": "para_48" }, { "text": "240A(b)(1)(D) of the INA, 8 U.S.C. § 1229b(b)(1)(D).1 DHS challenges the", "paragraph_id": "para_49" }, { "text": "Immigration Judge’s conclusion that the respondent met his burden to show", "paragraph_id": "para_50" }, { "text": "such hardship.", "paragraph_id": "para_51" }, { "text": "II. DISCUSSION", "paragraph_id": "para_52" }, { "text": "The respondent bears the burden of proving he is statutorily eligible for", "paragraph_id": "para_53" }, { "text": "cancellation of removal. See INA § 240(c)(4)(A)(i), 8 U.S.C.", "paragraph_id": "para_54" }, { "text": "§ 1229a(c)(4)(A)(i) (2024); 8 C.F.R. § 1240.8(d) (2026). The respondent", "paragraph_id": "para_55" }, { "text": "must show, inter alia, that his removal would result in exceptional and", "paragraph_id": "para_56" }, { "text": "extremely unusual hardship to a United States citizen or lawful permanent", "paragraph_id": "para_57" }, { "text": "resident spouse, parent, or child. INA § 240A(b)(1)(D), 8 U.S.C.", "paragraph_id": "para_58" }, { "text": "§ 1229b(b)(1)(D).", "paragraph_id": "para_59" }, { "text": "We review de novo, as a question of law, whether a given set of facts", "paragraph_id": "para_60" }, { "text": "establishes exceptional and extremely unusual hardship. See Wilkinson v.", "paragraph_id": "para_61" }, { "text": "Garland, 601 U.S. 209, 217 (2024); 8 C.F.R. § 1003.1(d)(3)(ii). This", "paragraph_id": "para_62" }, { "text": "standard requires an aggregate hardship that is “‘substantially’ beyond the", "paragraph_id": "para_63" }, { "text": "ordinary hardship that would be expected when a close family member leaves", "paragraph_id": "para_64" }, { "text": "this country.” Matter of Monreal, 23 I&N Dec. 56, 62 (BIA 2001). The", "paragraph_id": "para_65" }, { "text": "Immigration Judge “must compare the hardship in a given case to the", "paragraph_id": "para_66" }, { "text": "hardship that results in the usual, ordinary course when an alien is removed.”", "paragraph_id": "para_67" }, { "text": "Gonzalez-Juarez v. Bondi, 137 F.4th 996, 1006 (9th Cir. 2025). Key factors", "paragraph_id": "para_68" }, { "text": "to consider include the ages, health, and circumstances of the qualifying", "paragraph_id": "para_69" }, { "text": "relatives, with each application needing to “be assessed and decided on its", "paragraph_id": "para_70" }, { "text": "own facts.” Matter of Monreal, 23 I&N Dec. at 63; accord Ramirez-Perez v.", "paragraph_id": "para_71" }, { "text": "Ashcroft, 336 F.3d 1001, 1006 (9th Cir. 2003).", "paragraph_id": "para_72" }, { "text": "Upon de novo review, we conclude that the respondent did not establish", "paragraph_id": "para_73" }, { "text": "the requisite exceptional and extremely unusual hardship. The Immigration", "paragraph_id": "para_74" }, { "text": "1 The Immigration Judge also noted that credibility was not at issue.", "paragraph_id": "para_75" }, { "text": "Cite as 29 I&N Dec. 542 (BIA 2026) Interim Decision #4179", "paragraph_id": "para_76" }, { "text": "page", "paragraph_id": "para_77" }, { "text": "544", "paragraph_id": "para_78" }, { "text": "Judge based his hardship determination largely on the mental health of the", "paragraph_id": "para_79", "court_paragraph": 544 }, { "text": "respondent’s eldest son. He found in his decision that “[t]he divorce seems", "paragraph_id": "para_80" }, { "text": "to have taken psychological issues to a breaking point for [the eldest son]”", "paragraph_id": "para_81" }, { "text": "and that the son had “anger issues” and thought about harming himself. The", "paragraph_id": "para_82" }, { "text": "Immigration Judge gave great weight to the son’s testimony, finding that it", "paragraph_id": "para_83" }, { "text": "tipped the balance of the evidence in favor of finding the respondent had", "paragraph_id": "para_84" }, { "text": "demonstrated exceptional and extremely unusual hardship.", "paragraph_id": "para_85" }, { "text": "We acknowledge the testimonial evidence regarding the mental health of", "paragraph_id": "para_86" }, { "text": "the respondent’s eldest son, specifically his past anger issues and suicidal", "paragraph_id": "para_87" }, { "text": "thoughts. However, neither the respondent’s nor his eldest son’s testimony", "paragraph_id": "para_88" }, { "text": "establishes that these past issues are ongoing, that the son is currently in", "paragraph_id": "para_89" }, { "text": "therapy for these issues, or that he has received a formal diagnosis of any", "paragraph_id": "para_90" }, { "text": "mental health condition. To the extent that the respondent argues on appeal", "paragraph_id": "para_91" }, { "text": "that his son is currently in therapy, this is not reflected in the record.", "paragraph_id": "para_92" }, { "text": "Furthermore, the respondent has not submitted evidence regarding how", "paragraph_id": "para_93" }, { "text": "his son’s mental health would be affected by his removal. The respondent’s", "paragraph_id": "para_94" }, { "text": "son testified that the sources of his past anger problems and suicidal thoughts", "paragraph_id": "para_95" }, { "text": "were issues at school and his parents’ divorce. The respondent has not", "paragraph_id": "para_96" }, { "text": "submitted medical reports assessing his son’s mental health or a report or", "paragraph_id": "para_97" }, { "text": "affidavit from his son’s therapist which would speak to the impact the", "paragraph_id": "para_98" }, { "text": "respondent’s removal would have on his son.", "paragraph_id": "para_99" }, { "text": "The respondent states on appeal that his son’s therapist was unable to", "paragraph_id": "para_100" }, { "text": "submit an affidavit due to privacy concerns under the Health Insurance", "paragraph_id": "para_101" }, { "text": "Portability and Accountability Act of 1996 (“HIPAA”), Pub. L. No. 104-191,", "paragraph_id": "para_102" }, { "text": "110 Stat. 1936, which governs medical privacy in the United States.", "paragraph_id": "para_103" }, { "text": "However, such evidence is routinely provided in cancellation of removal", "paragraph_id": "para_104" }, { "text": "cases, and the respondent retains the burden to establish exceptional and", "paragraph_id": "para_105" }, { "text": "extremely unusual hardship. See INA § 240(c)(4)(A), 8 U.S.C.", "paragraph_id": "para_106" }, { "text": "§ 1229a(c)(4)(A); 8 C.F.R. § 1240.8(d). The respondent argued below, and", "paragraph_id": "para_107" }, { "text": "in response to DHS’ appeal, that he was unable to obtain such records", "paragraph_id": "para_108" }, { "text": "because such records are private and the provider required a direct and formal", "paragraph_id": "para_109" }, { "text": "request from a court or legal authority to release the records. However, the", "paragraph_id": "para_110" }, { "text": "respondent has not identified any parts of the HIPAA that support this", "paragraph_id": "para_111" }, { "text": "argument or preclude patients (or parents of minor patients) from obtaining", "paragraph_id": "para_112" }, { "text": "medical records.2", "paragraph_id": "para_113" }, { "text": "2 The Board may take administrative notice of the contents of official documents.", "paragraph_id": "para_114" }, { "text": "8 C.F.R. § 1003.1(d)(3)(iv) (2026). Here, we take administrative notice of 45 C.F.R.", "paragraph_id": "para_115" }, { "text": "§ 164.524(a) (2026), which states that an individual has a right of access to inspect and", "paragraph_id": "para_116" }, { "text": "obtain a copy of protected health information, although various exceptions apply. The", "paragraph_id": "para_117" }, { "text": "Cite as 29 I&N Dec. 542 (BIA 2026) Interim Decision #4179", "paragraph_id": "para_118" }, { "text": "page", "paragraph_id": "para_119" }, { "text": "545", "paragraph_id": "para_120" }, { "text": "Moreover, the respondent has not supported his assertion with any", "paragraph_id": "para_121", "court_paragraph": 545 }, { "text": "evidence that he was refused access to his son’s medical records.", "paragraph_id": "para_122" }, { "text": "Immigration Judges and the Board are not required to credit a respondent’s", "paragraph_id": "para_123" }, { "text": "explanations for failing to provide this type of evidence. See Matter of D-R-,", "paragraph_id": "para_124" }, { "text": "25 I&N Dec. 445, 455 (BIA 2011) (“An Immigration Judge is not required", "paragraph_id": "para_125" }, { "text": "to accept a respondent’s assertions, even if plausible, where there are other", "paragraph_id": "para_126" }, { "text": "permissible views of the evidence based on the record.”), remanded on other", "paragraph_id": "para_127" }, { "text": "grounds sub nom. Radojkovic v. Holder, 599 F. App’x 646 (9th Cir. 2015).", "paragraph_id": "para_128" }, { "text": "Mental health records and expert testimony from medical professionals", "paragraph_id": "para_129" }, { "text": "familiar with the qualifying relative may be probative and ultimately support", "paragraph_id": "para_130" }, { "text": "an exceptional and extremely unusual hardship determination. However, a", "paragraph_id": "para_131" }, { "text": "respondent’s or qualifying relative’s testimony about a diagnosis of a", "paragraph_id": "para_132" }, { "text": "medical or mental disorder—which requires diagnostic expertise and", "paragraph_id": "para_133" }, { "text": "appropriate licensing or credentials to make—and speculation as to ensuing", "paragraph_id": "para_134" }, { "text": "mental health hardship as a result of a respondent’s removal is generally not", "paragraph_id": "para_135" }, { "text": "a sufficient substitute for expert evidence, especially where the qualifying", "paragraph_id": "para_136" }, { "text": "relative has sought medical or psychological treatment, and evidence of such", "paragraph_id": "para_137" }, { "text": "treatment should be reasonably available. See Matter of J-J-G-, 27 I&N", "paragraph_id": "para_138" }, { "text": "Dec. 808, 811–12 (BIA 2020) (“Generally, an applicant will lack the", "paragraph_id": "para_139" }, { "text": "firsthand knowledge and medical expertise needed to provide persuasive and", "paragraph_id": "para_140" }, { "text": "sufficiently specific testimony regarding the seriousness of a qualifying", "paragraph_id": "para_141" }, { "text": "relative’s medical condition . . . .”); see also Garland v. Ming Dai,", "paragraph_id": "para_142" }, { "text": "593 U.S. 357, 371 (2021) (holding that “even if the BIA treats an alien’s", "paragraph_id": "para_143" }, { "text": "evidence as credible, the agency need not find his evidence persuasive or", "paragraph_id": "para_144" }, { "text": "sufficient to meet the burden of proof”); Yali Wang v. Sessions,", "paragraph_id": "para_145" }, { "text": "861 F.3d 1003, 1009 (9th Cir. 2017) (“If the testimony is not sufficient by", "paragraph_id": "para_146" }, { "text": "itself, then the [Immigration Judge] may require corroborative evidence.”).", "paragraph_id": "para_147" }, { "text": "The Board’s decision in Matter of Y-S-L-C-, 26 I&N Dec. 688", "paragraph_id": "para_148" }, { "text": "(BIA 2015), does not dictate otherwise. In Matter of Y-S-L-C-, the Board", "paragraph_id": "para_149" }, { "text": "held that a respondent’s testimony as to what she or he experienced is", "paragraph_id": "para_150" }, { "text": "admissible and does not require the respondent to be an expert in a certain", "paragraph_id": "para_151" }, { "text": "scientific field. 26 I&N Dec. at 690. That case, however, involved the", "paragraph_id": "para_152" }, { "text": "admission of evidence and did not speak to whether such evidence would", "paragraph_id": "para_153" }, { "text": "have been sufficient to satisfy the respondent’s burden of proof.", "paragraph_id": "para_154" }, { "text": "Moreover, the Board’s analysis mischaracterized the purpose behind the", "paragraph_id": "para_155" }, { "text": "Immigration Judge’s line of questioning. In that case, the respondent’s", "paragraph_id": "para_156" }, { "text": "Board also takes administrative notice of 45 C.F.R. § 164.502(g)(1) and (3) (2026), which", "paragraph_id": "para_157" }, { "text": "requires a minor’s parent to be considered a “personal representative” and treated like the", "paragraph_id": "para_158" }, { "text": "individual whose records are at issue, subject to various exceptions.", "paragraph_id": "para_159" }, { "text": "Cite as 29 I&N Dec. 542 (BIA 2026) Interim Decision #4179", "paragraph_id": "para_160" }, { "text": "page", "paragraph_id": "para_161" }, { "text": "546", "paragraph_id": "para_162" }, { "text": "attorney asked the respondent whether past events caused the respondent", "paragraph_id": "para_163", "court_paragraph": 546 }, { "text": "“any psychological issues.” Id. at 689. It was appropriate for the", "paragraph_id": "para_164" }, { "text": "Immigration Judge to preclude nonexpert testimony from being elicited on", "paragraph_id": "para_165" }, { "text": "any issues that required psychiatric expertise. Thus, that decision was", "paragraph_id": "para_166" }, { "text": "overbroad and incorrect.", "paragraph_id": "para_167" }, { "text": "Whether a qualifying relative suffers from a serious medical condition is", "paragraph_id": "para_168" }, { "text": "reviewed on appeal under the clear error standard. Matter of J-J-G-, 27 I&N", "paragraph_id": "para_169" }, { "text": "Dec. at 811. A respondent’s or qualifying relative’s testimony, even if it is", "paragraph_id": "para_170" }, { "text": "admissible and a credible account of personal experiences, may not", "paragraph_id": "para_171" }, { "text": "ultimately be persuasive or sufficient to meet the requisite burden of proof", "paragraph_id": "para_172" }, { "text": "for cancellation of removal and may be insufficient where an expert’s", "paragraph_id": "para_173" }, { "text": "opinion and diagnosis are available but not submitted as evidence. See id. at", "paragraph_id": "para_174" }, { "text": "811–12 (observing that lay testimony about a qualifying relative’s medical", "paragraph_id": "para_175" }, { "text": "condition will often need to be corroborated to meet the burden of proof). A", "paragraph_id": "para_176" }, { "text": "respondent’s or qualifying relative’s testimony about a medical or mental", "paragraph_id": "para_177" }, { "text": "health condition will generally be insufficient to establish exceptional and", "paragraph_id": "para_178" }, { "text": "extremely unusual hardship where expert testimony, reports, or medical", "paragraph_id": "para_179" }, { "text": "evidence exist and could reasonably have been produced.", "paragraph_id": "para_180" }, { "text": "In this case, the record does not establish that the respondent’s eldest son", "paragraph_id": "para_181" }, { "text": "currently receives mental health treatment or that he has any mental health", "paragraph_id": "para_182" }, { "text": "diagnosis. Even if the record did show he received current mental health", "paragraph_id": "para_183" }, { "text": "treatment, he could continue to receive such care in the United States because", "paragraph_id": "para_184" }, { "text": "he would not move to Mexico with the respondent.", "paragraph_id": "para_185" }, { "text": "Regarding financial hardship, the respondent has not established that his", "paragraph_id": "para_186" }, { "text": "ex-wife would be unable to work full-time hours instead of 3 days per week", "paragraph_id": "para_187" }, { "text": "and does not counter DHS’ argument regarding this issue on appeal.", "paragraph_id": "para_188" }, { "text": "Moreover, the Immigration Judge’s finding that the respondent’s children", "paragraph_id": "para_189" }, { "text": "would be unable to play soccer on a travel team if the respondent were", "paragraph_id": "para_190" }, { "text": "removed was speculative. Likewise, it was improper for the Immigration", "paragraph_id": "para_191" }, { "text": "Judge to speculate regarding the possibility of the respondent’s ex-wife’s", "paragraph_id": "para_192" }, { "text": "removal from the United States. See Matter of Calderon-Hernandez, 25 I&N", "paragraph_id": "para_193" }, { "text": "Dec. 885, 886–87 (BIA 2012) (holding that where the record reflects the", "paragraph_id": "para_194" }, { "text": "qualifying relative children would remain in the United States under the care", "paragraph_id": "para_195" }, { "text": "of a parent without legal status, it is improper to speculate on the likelihood", "paragraph_id": "para_196" }, { "text": "that the remaining parent would be placed in removal proceedings).", "paragraph_id": "para_197" }, { "text": "Considering the hardship factors in the aggregate, we conclude that the", "paragraph_id": "para_198" }, { "text": "respondent did not demonstrate that his removal would result in exceptional", "paragraph_id": "para_199" }, { "text": "Cite as 29 I&N Dec. 542 (BIA 2026) Interim Decision #4179", "paragraph_id": "para_200" }, { "text": "page", "paragraph_id": "para_201" }, { "text": "547", "paragraph_id": "para_202" }, { "text": "and extremely unusual hardship to a qualifying relative.3 See Matter of", "paragraph_id": "para_203", "court_paragraph": 547 }, { "text": "Monreal, 23 I&N Dec. at 62–64 (defining exceptional and extremely unusual", "paragraph_id": "para_204" }, { "text": "hardship and describing relevant factors to consider). Thus, the respondent", "paragraph_id": "para_205" }, { "text": "has not established eligibility for cancellation of removal under", "paragraph_id": "para_206" }, { "text": "section 240A(b)(1) of the INA, 8 U.S.C. § 1229b(b)(1). Accordingly, we", "paragraph_id": "para_207" }, { "text": "will sustain DHS’ appeal and order the respondent removed to Mexico.", "paragraph_id": "para_208" }, { "text": "ORDER: DHS’ appeal is sustained.", "paragraph_id": "para_209" }, { "text": "FURTHER ORDER: The Immigration Judge’s August 11, 2025,", "paragraph_id": "para_210" }, { "text": "order granting relief is vacated, and the respondent is ordered removed from", "paragraph_id": "para_211" }, { "text": "the United States to Mexico.", "paragraph_id": "para_212" }, { "text": "NOTICE: If a respondent is subject to a final order of removal and", "paragraph_id": "para_213" }, { "text": "willfully fails or refuses to depart from the United States pursuant to the", "paragraph_id": "para_214" }, { "text": "order, to make timely application in good faith for travel or other documents", "paragraph_id": "para_215" }, { "text": "necessary to depart the United States, or to present himself or herself at the", "paragraph_id": "para_216" }, { "text": "time and place required for removal by DHS, or conspires to or takes any", "paragraph_id": "para_217" }, { "text": "action designed to prevent or hamper the respondent’s departure pursuant to", "paragraph_id": "para_218" }, { "text": "the order of removal, the respondent shall be subject to a civil monetary", "paragraph_id": "para_219" }, { "text": "penalty of up to $998 for each day the respondent is in violation. See INA", "paragraph_id": "para_220" }, { "text": "§ 274D, 8 U.S.C. § 1324d (2024); 8 C.F.R. § 280.53(b)(14) (2026). Further,", "paragraph_id": "para_221" }, { "text": "any respondent that has been denied admission to, removed from, or has", "paragraph_id": "para_222" }, { "text": "departed the United States while an order of exclusion, deportation, or", "paragraph_id": "para_223" }, { "text": "removal is outstanding and thereafter enters, attempts to enter, or is at any", "paragraph_id": "para_224" }, { "text": "time found in the United States shall be fined or imprisoned not more than", "paragraph_id": "para_225" }, { "text": "two years, or both. See INA § 276(a), 8 U.S.C. § 1326(a) (2024).", "paragraph_id": "para_226" }, { "text": "3 We note the Immigration Judge considered in the hardship equation several factors that", "paragraph_id": "para_227" }, { "text": "would only be relevant if the children were to accompany the respondent to Mexico, which", "paragraph_id": "para_228" }, { "text": "the Immigration Judge explicitly found is not the case here. 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