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In 1996, the National Institute ofJustice commissioned a "white paper" on INS detention in order to consider the limitations of the INS's current detention strategies and to explore possible improvements and alternatives. With the concurrence of the Georgetown Immigration Law Journal, I have decided to publish this paper in the form in which I submitted it to the N/J rather than adopting the traditional scholarlyformat ofa law journal article. This paper was submitted to N/J in February 1997; it has not been updated.

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