Ruth Ellen Wasem
Specialist in Immigration Policy
The environmental, social, and political conditions in Haiti have long prompted congressional interest in U.S. policy on Haitian migrants, particularly those attempting to reach the United States by boat. While some observers assert that such arrivals by Haitians are a breach in border security, others maintain that these Haitians are asylum seekers following a decades old practice of Haitians coming by boat without legal immigration documents. Migrant interdiction and mandatory detention are key components of U.S. policy toward Haitian migrants, but human rights advocates express concern that Haitians are not afforded the same treatment as other asylum seekers.
The devastation caused last year by the January 12, 2010, earthquake in Haiti led Department of Homeland Security (DHS) Secretary Janet Napolitano to grant Temporary Protected Status (TPS) to Haitians in the United States at the time of the earthquake. The scale of current humanitarian crisis—estimated thousands of Haitians dead and reported total collapse of the infrastructure in the capital city of Port au Prince—resulted in this TPS announcement on January 15, 2010.
Secretary Napolitano gave humanitarian parole to Haitian children who were legally confirmed as orphans eligible for intercountry adoption by the government of Haiti and who were in the process of being adopted by U.S. residents prior to the earthquake. P.L. 111-293, the Help HAITI Act of 2010, authorizes the DHS Secretary to adjust to legal permanent residence (LPR) status those Haitian orphans who were granted parole from January 18, 2010, through April 15, 2010.
Those Haitians who are deemed Cuban-Haitian Entrants are among the subset of foreign nationals who are eligible for federal benefits and cash assistance. Those Haitians who are newly arriving legal permanent residents, however, are barred from the major federal benefits and cash assistance for the first five years after entry. The Supplemental Appropriations Act, 2010 (H.R. 4899, P.L. 111-212), includes funding to cover additional costs for federal benefits and cash assistance resulting from Haitian evacuees.
According to the U.S. Department of State (DOS), there were 54,716 Haitians who had approved petitions to immigrate to the United States at the time of the earthquake and who were waiting for visas to become available. Advocates for Haitians continue to request that Secretary Napolitano give humanitarian parole to those Haitians with approved petitions for visas. Proponents of expediting the admission of Haitians with family in the United States maintain that it would relieve at least some of the humanitarian burden in Haiti and would increase the remittances sent back to Haiti to provide critical help as the nation tries to rebuild. Those opposed to expediting the admission of Haitians assert that it would not be in the national interest, nor would it be fair to other foreign nationals waiting to reunite with their families.
More broadly, there are concerns that the crisis conditions in Haiti—most recently, the outbreak of cholera and the unexpected return of deposed dictator Jean-Claude “Baby Doc” Duvalier— may trigger mass migration from the island. Agencies within DHS that are the leads in handling a potential mass migration include the U.S. Coast Guard (interdiction); Customs and Border Protection (apprehensions and inspections); Immigration and Customs Enforcement (detention and removal); and the U.S. Citizenship and Immigration Services (credible fear determinations). The balancing of DHS’s border security and immigration control responsibilities during an ongoing humanitarian crisis poses a challenge.
Date of Report: January 21, 2011
Number of Pages: 22
Order Number: RS21349
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Andorra Bruno, Coordinator
Specialist in Immigration Policy
Karma Ester
Information Research Specialist
Margaret Mikyung Lee
Legislative Attorney
Alison Siskin
Specialist in Immigration Policy
Ruth Ellen Wasem
Specialist in Immigration Policy
The Speaker of the House and the Senate majority leader of the 111th Congress pledged to take up comprehensive immigration reform legislation, the most controversial piece of which concerns unauthorized aliens in the United States. Although the 111th Congress did not take up a comprehensive immigration bill, it did consider a narrower DREAM Act proposal to legalize the status of certain unauthorized alien students. On December 8, 2010, the House approved a version of the DREAM Act as an amendment to an unrelated bill, the Removal Clarification Act of 2010 (H.R. 5281). A cloture motion in the Senate to agree to the House DREAM Act amendment failed on a 55-41 vote on December 18, 2010.
The 111th Congress also considered other immigration issues and enacted a number of targeted immigration provisions. It passed legislation (P.L. 111-8, P.L. 111-9, P.L. 111-68, P.L. 111-83) to extend the life of several immigration programs—the E-Verify electronic employment eligibility verification system, the Immigrant Investor Regional Center Program, the Conrad State J-1 Waiver Program, and the special immigrant visa for religious workers—until September 30, 2012. Among the other subjects of legislation enacted by the 111th Congress were border security (P.L. 111-5, P.L. 111-32, P.L. 111-83, P.L. 111-230, P.L. 111-281, P.L. 111-376), refugees (P.L. 111-8, P.L. 111-117), and Haitian migrants (P.L. 111-212, P.L. 111-293).
This report discusses these and other immigration-related issues that have received legislative action or are of significant congressional interest. Department of Homeland Security (DHS) appropriations are addressed in CRS Report R40642, Homeland Security Department: FY2010 Appropriations, and, for the most part, are not covered here.
Date of Report: January 18, 2011
Number of Pages: 20
Order Number: R40848
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Alison Siskin
Specialist in Immigration Policy
Since the events of September 11, 2001, concerns have been raised about the ability of terrorists to enter the United States under the visa waiver program (VWP), because the VWP bypasses the first step by which foreign visitors are screened for admissibility to enter the United States. Nonetheless, the inclusion of countries in the VWP may help foster positive relations between the United States and those countries, promote tourism and commerce, facilitate information sharing, and ease consular office workloads abroad. The VWP allows nationals from certain countries to enter the United States as temporary visitors (nonimmigrants) for business or pleasure without first obtaining a visa from a U.S. consulate abroad. Temporary visitors for business or pleasure from non-VWP countries must obtain a visa from Department of State (DOS) officers at a consular post abroad before coming to the United States. As of January 2011, 36 countries participate in the VWP.
In FY2009, 16.2 million visitors entered the United States under this program, constituting 50.5% of all overseas visitors. To qualify for the VWP, statute specifies that a country must offer reciprocal privileges to U.S. citizens; have had a nonimmigrant refusal rate of less than 3% for the previous year or an average of no more than 2% over the past two fiscal years with neither year going above 2.5%; issue their nationals machine-readable passports that incorporate biometric identifiers; certify that it is developing a program to issue tamper-resident, machine-readable visa documents that incorporate biometric identifiers which are verifiable at the country’s port of entry; and not compromise the law enforcement or security interests of the United States by its inclusion in the program. Countries can be terminated from the VWP if an emergency occurs that threatens the United States’ security interests.
P.L. 110-53 added new requirements to participate in the VWP, and provided the Secretary of the Department of Homeland Security (DHS) the authority to waive the nonimmigrant refusal rate requirement. The waiver became available in October 2008; however, it was suspended on July 1, 2009.
All aliens entering under the VWP must present machine-readable passports. In addition, passports issued between October 26, 2005, and October 25, 2006, must have a digitized photo on the data page, while passports issued after October 25, 2006, must contained electronic data chips (e-passports). Under DHS regulations, travelers who seek to enter the United States through the VWP are subject to the biometric requirements of the US-VISIT program. In addition, aliens entering under the VWP must get an approval from the Electronic System for Travel Authorization (ESTA), a web-based system that checks the alien’s information against relevant law enforcement and security databases, before they can board a plane to the United States. ESTA became operational for all VWP countries on January 12, 2009.
In 2008, eight new countries were added to the VWP who needed the nonimmigrant refusal rate waiver to be part of the program. There are other countries (e.g., Poland, Romania, Taiwan) that have expressed interest in being a part of the VWP. The nonimmigrant refusal rate waiver authority was suspended on June 30, 2009, because DHS did not implement an air-exit system that incorporates biometric identifiers. It is unknown when a biometric exit system will be implemented.
Date of Report: January 4, 2011
Number of Pages: 24
Order Number: RL32221
Price: $29.95
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William A. Kandel
Analyst in Immigration Policy
This report offers context for consideration of immigration policy options by presenting data on key geographic, demographic, social, and economic characteristics of the foreign-born population residing in the United States. Interest in the U.S. foreign-born population stems in part from the changing demographic profile of the United States as well as the rapidity of such change, and how both of these trends correspond to U.S. immigration policy. Although the foreign born are relatively small in absolute terms—38 million people representing 12.5% of the total U.S. population of 304.1 million in 2008—they are growing far more rapidly than the native-born population. Between 2000 and 2008, the foreign born contributed 30% of the total U.S. population increase and almost all of the prime 25-54 working age group increase. Close to 30% of the foreign born arrived in the United States since 2000, and roughly 29% were residing illegally in the United States in 2009.
Geographic origins of the foreign born have shifted from Europe (74% in 1960) to Latin America and Asia (80% in 2008). In recent years, many foreign born have settled in new urban and rural destinations, often in response to employment opportunities in construction, manufacturing, and low-skilled services. Yet, as in previous decades, at least two-thirds of the foreign born remain concentrated in just six states: California, New York, Florida, Texas, Illinois, and New Jersey.
Several measures of marital status and household structure show little difference between the native born and foreign born. The foreign born have lower average educational attainment, but the proportion with at least a bachelor’s degree matches that of the native born.
In 2008, the foreign born accounted for 15.7% of all workers, with higher labor force participation rates among men and lower rates among women compared to native-born workers. With exceptions, native- and foreign-born workers generally resemble each other in their distribution across broad industrial and occupational sectors. Among specific occupations, however, glaring differences occur, with native-born workers dominating occupations such as construction inspectors and librarians, and foreign-born workers dominating occupations such as agricultural laborers and tailors.
Lower education levels and differences in industrial sector and occupational distributions explain in part why foreign-born workers have lower median incomes and higher poverty rates than native-born workers. Earnings differences are minimal for those with a four-year college degree. Among the foreign born, median incomes of naturalized citizens are 60% higher than those of noncitizens, reflecting higher education levels, older ages, and greater U.S. labor market experience. Poverty status is linked to the lack of citizenship, a difference that is magnified after including the “near-poor,” who earn between 100% and 200% of the poverty threshold.
Although foreign-born population growth and transformation often occur because of factors beyond the control of Congress—including political turmoil and natural disasters in neighboring countries and social and economic processes of globalization—the way that Congress crafts immigration law does influence the size and character of resulting immigration flows to the United States.
Date of Report: January 18, 2011
Number of Pages: 38
Order Number: R41592
Price: $29.95
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Andorra Bruno
Specialist in Immigration Policy
In recent years, the United States has admitted an increasingly diverse group of refugees and other humanitarian cases with a diverse set of needs. There seems to be broad consensus that the U.S. refugee resettlement assistance system is not adequately meeting the needs of these new arrivals and is ripe for reform. The National Security Council is leading an interagency review of refugee resettlement, the forthcoming results of which may further energize reform efforts. To help inform possible future efforts to reform the refugee resettlement assistance system, this report discusses existing resettlement assistance programs, key challenges and issues in providing effective assistance, and policy options to reform the current system.
To assist newly arriving refugees, the Department of State (DOS) administers a program of initial resettlement known as the Reception and Placement Program. Under this program, public and private, nonprofit entities provide new refugees with initial resettlement services and referrals to other services, as needed.
A separate set of refugee resettlement assistance programs, administered by the Office of Refugee Resettlement (ORR) in the Department of Health and Human Services’ Administration for Children and Families (HHS/ACF), provides transitional assistance to refugees and other designated groups. These groups include individuals granted asylum, Cuban and Haitian entrants, trafficking victims, Amerasians, and Iraqi and Afghan special immigrants. The ORR programs— which provide mainly cash assistance, medical assistance, and employment-related services—are intended to help the beneficiaries (who are referred to collectively as “refugees” in this report) achieve economic self-sufficiency as soon as possible after their arrival in the United States.
Many observers argue that the DOS and ORR programs and the refugee resettlement assistance system more broadly are in need of reform. A number of reports have identified perceived shortcomings in the existing system and have offered recommendations for change. Several of these reports have focused, in particular, on the recent experience of Iraqi refugees resettled in the United States.
Among the broad challenges facing the refugee resettlement assistance system are interagency coordination and information sharing, and funding. Critics also question the system’s selfsufficiency model, which requires refugees to secure employment as quickly as possible. Key issues include financial assistance to refugees, which is widely viewed as insufficient, and the “lottery effect,” whereby refugees resettled in different parts of the United States receive different levels of financial assistance and services. Growing out of these challenges and issues are a variety of options for reforming the existing system with respect to administration and planning and the ORR programs.
Date of Report: January 4, 2011
Number of Pages: 26
Order Number: R41570
Price: $29.95
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