Law: Paper, Paper and More Paper

The room is as wide as a tennis court and as long as a football field. Along one end are tiers of metal drawers, jam-packed with filing cards. Each card represents a file that is not there because there is not enough room. These absent files have been sent to New Jersey, but 25,000 of them are hauled back every year. Near the door stand rows of shopping carts full of files in transit.

Welcome to the headquarters of the Immigration and Naturalization Service in New York City. Its 2.1 million files, according to a devastating new report by the National...

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