MEMORANDUM FOR: DIRECTOR OF NATIONAL INTELLIGENCE
FROM: INTELLIGENCE ANALYSIS UNIT, DOMESTIC POLICY DIVISION
SUBJECT: ASSESSMENT OF USCIS 2020 NATURALIZATION CIVICS TEST: INTERNAL CONFLICT, POLITICALIZATION, AND SYSTEMIC FAILURE
DATE: 10 NOVEMBER 2025

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EXECUTIVE SUMMARY

The 2020 Naturalization Civics Test, implemented by USCIS on December 1, 2020, was a politically motivated revision that introduced significant barriers to naturalization, sparked widespread internal dissent, and triggered legal and operational risks. The test was rescinded on March 1, 2021, following intense internal and external backlash. This assessment details the flawed development process, partisan content, operational disruptions, and eventual reversal—highlighting systemic vulnerabilities in agency governance and potential long-term impacts on immigration integrity.

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BACKGROUND

· Mandate: USCIS reviews the naturalization civics test every ten years. The 2020 revision was initiated under the Trump administration.
· Key Changes:
· Study questions increased from 100 to 128.
· Test length doubled from 10 to 20 questions; passing threshold raised from 6/10 to 12/20.
· Content altered to reflect conservative ideological preferences, including inaccurate representations of constitutional principles.
· Timeline:
· Development began secretly in December 2018.
· Announced publicly July 2019; implemented December 1, 2020.
· Rescinded March 1, 2021, following Biden Executive Order 14012.

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ANALYSIS

1. POLITICIZATION OF TEST CONTENT

· Misrepresentation of Representation:
· Questions 31 and 33 changed to state that senators and representatives represent only citizens, omitting non-citizen residents—a departure from the 14th Amendment and historical practice.
· Internal USCIS memo (Jan 26, 2021) acknowledged this as a “potential politicization of content.”
· Ideological Bias:
· Increased emphasis on Federalist Papers; reduced focus on civil rights and women’s suffrage.
· Notable omissions: Due process, equal protection, and other constitutional rights absent from acceptable answers.
· Media and legal scholars (e.g., POLITICO, Northwestern Law) labeled the test “conservative-biased” and “inaccurate.”

2. FLAWED DEVELOPMENT PROCESS & LACK OF TRANSPARENCY

· Secret Working Groups:
· Internal revision team formed without public disclosure or stakeholder input.
· No subject-matter experts in assessment design included.
· Failed Pilots:
· Initial pilot collapsed October 2019; second pilot involved only ~200 applicants (compared to 6,000 for 2008 test).
· Stakeholders withdrew due to excessive burden.
· APA Violations:
· Catholic Legal Immigration Network (CLINIC) argued the test should have undergone notice-and-comment rulemaking.
· USCIS provided only two weeks’ notice before implementation—compared to one year for the 2008 test.

3. OPERATIONAL & LEGAL RISKS

· Increased Denial Rates:
· Internal projections indicated a potential 5% drop in pass rates, resulting in ~40,000 additional denials annually.
· Most affected: elderly, disabled, low-income, and limited-English-proficient applicants.
· Interview Backlogs:
· Test duration doubled, reducing officer capacity and exacerbating existing processing delays.
· Field Operations Directorate expressed concern over unsustainable workloads.
· Litigation Exposure:
· USCIS counsel warned of “litigation risk” due to procedural flaws and lack of notice.

4. INTERNAL DISSENT & EXTERNAL BACKLASH

· CLINIC Opposition:
· Submitted detailed 17-page critique citing procedural, legal, and ethical failures.
· Advocated for test withdrawal and APA compliance.
· Public Outcry:
· Received ~2,500 public comments, overwhelmingly negative.
· Media scrutiny highlighted biases and errors.
· Internal Memo (Jan 26, 2021):
· USCIS leadership presented three options, with Office of Citizenship recommending full reversion to 2008 test.

5. RESCISSION & AFTERMATH

· Executive Order 14012:
· Biden administration ordered review of naturalization process; test rescinded March 1, 2021.
· Transition Period:
· Limited dual-test option offered through April 19, 2021.
· Only 110 applicants had taken 2020 test; pass rate 96%.
· Future Reviews:
· USCIS commits to decennial reviews but will involve experts and public input.

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CONCLUSION

The 2020 Naturalization Civics Test represents a case study in policy politicization, procedural failure, and institutional vulnerability. Its rapid development, ideological content, and lack of transparency undermined USCIS credibility, increased legal risk, and threatened to disenfranchise vulnerable immigrant populations. The swift reversal under new administration highlights the agency’s susceptibility to political influence and underscores the need for robust, transparent, and expert-driven policy processes.

RECOMMENDATION:
Future USCIS policy revisions must include:

1. Transparent stakeholder engagement.
2. Inclusion of subject-matter experts in civics, assessment, and language acquisition.
3. Adherence to APA rulemaking procedures.
4. Non-partisan content validation.

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