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Institute for Workplace Studies----------------- Professor Samuel B. Bacharach
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16 East 34th Street, 4th floor---------------------- Stuart Basefsky
New York, NY 10016 -------------------------------Director, IWS News Bureau
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Congressional Research Service (CRS)

 

Immigration Visa Issuances and Grounds for  Exclusion: Policy and Trends

Ruth Ellen Wasem, Specialist in Immigration Policy

March 10, 2010

http://opencrs.com/document/R41104/2010-03-10/download/1013/

[full-text, 31 pages]

 

Summary

The conventional wisdom is that the terrorist attacks on September 11, 2001, prompted a

substantive change in U.S. immigration policy on visa issuances and the grounds for excluding

foreign nationals from the United States. A series of laws enacted in the 1990s, however, may

have done as much or more to set current U.S. visa policy and the legal grounds for exclusion.

This report’s review of the legislative developments in visa policy over the past 20 years and

analysis of the statistical trends in visa issuances and denials provide a nuanced study of U.S. visa

policy and the grounds for exclusion.

 

Foreign nationals not already legally residing in the United States who wish to come to the United

States generally must obtain a visa to be admitted. Those admitted on a permanent basis are

known as immigrants or legal permanent residents (LPRs), while those admitted on a temporary

basis are known as nonimmigrants (such as tourists, foreign students, diplomats, temporary

agricultural workers, and exchange visitors). They must first meet a set of criteria specified in the

Immigration and Nationality Act (INA) that determine whether they are eligible for admission.

 

The burden of proof is on the foreign national to establish eligibility for a visa. Conversely,

foreign nationals also must not be deemed inadmissible according to other specified grounds in

§212(a) of the INA. These §212(a) inadmissibility criteria are health-related grounds; criminal

history; security and terrorist concerns; public charge (e.g., indigence); seeking to work without

proper labor certification; illegal entrants and immigration law violations; ineligible for

citizenship; and aliens illegally present or previously removed.

 

The number of aliens excluded on the basis of §212(a) of the INA has fluctuated over the years.

In FY2008, §212(a) exclusions of prospective nonimmigrants hit 35,403 and surpassed the prior

high point of 34,750 in FY1998. For prospective LPRs, §212(a) exclusions peaked in FY1998

and FY1999, reaching over 89,000 in both years. The §212(a) exclusions of prospective LPRs fell

from FY2000 through FY2003, then began climbing to reach 77,080 in FY2008.

 

Most LPR petitioners who were excluded on §212(a) grounds from FY1994 through FY2004

were rejected because the Department of State (DOS) determined that the aliens were

inadmissible as likely public charges. By FY2004, the proportion of public charge exclusions had

fallen but remained the top basis for denial. The lack of proper labor certification was another

leading ground for exclusion from FY1994 through FY2004. By FY2008, however, illegal

presence and previous orders of removal from the United States was the leading ground.

 

Exclusions of nonimmigrant petitions have a somewhat different pattern than that of immigrant

petitions. Violations of immigration law were the leading category from FY1994 through

FY2006, but fell to the second ranking by FY2008. Illegal presence and prior removal became the

leading ground in FY2008. Over time, criminal activity has become a more common ground for

refusal, and has represented a larger portion of exclusions among nonimmigrant petitioners than it

was for immigrant petitioners.

 

Legislation aimed at comprehensive immigration reform may take a fresh look at the grounds for

excluding foreign nationals enacted over the past two decades. Expanding the grounds for

inadmissibility, conversely, might be part of the legislative agenda among those who support

more restrictive immigration reform policies. More specifically, the case of Umar Farouk

Abdulmutallab, who allegedly attempted to ignite an explosive device on Northwest Airlines

Flight 253 on December 25, 2009, has heightened scrutiny of the visa process and grounds for

exclusion. This report will be updated as warranted.

 

Contents

Introduction ...............................................................................................................................1

Policy Context ......................................................................................................................1

Background ..........................................................................................................................1

Visa Issuance Policy....................................................................................................................2

§221(g) Disqualification .................................................................................................2

§212(a) Exclusion ...........................................................................................................3

Permanent Admissions (Immigrant Visas) .............................................................................3

Procedures ......................................................................................................................4

Trends............................................................................................................................4

Temporary Admissions (Nonimmigrant Visas).......................................................................5

Procedures ......................................................................................................................5

§214(b) Presumption.......................................................................................................6

Trends............................................................................................................................6

Grounds for Exclusion ................................................................................................................9

Brief Legislative History.......................................................................................................9

Communicable Diseases §212(a)(1) ....................................................................................10

Criminal History §212(a)(2)................................................................................................12

Security and Terrorist Concerns §212(a)(3) .........................................................................13

Public Charge §212(a)(4) ....................................................................................................14

Labor Market Protections §212(a)(5)...................................................................................15

Illegal Entrants and Immigration Law Violations §212(a)(6&7)...........................................15

Ineligible for Citizenship §212(a)(8) ...................................................................................16

Illegal Presence or Previously Removed §212(a)(9).............................................................16

Analysis of Visa Inadmissibility Determinations........................................................................18

Inadmissible Immigrants .....................................................................................................18

Inadmissible Nonimmigrants...............................................................................................20

Concluding Observations ..........................................................................................................22

 

Figures

Figure 1. Initial Determinations on Immigrants Excluded, Disqualified, or Issued Visas, FY1994-FY2008........................5

Figure 2. Initial Determinations on Nonimmigrants Disqualified, Presumed Immigrant, or Issued Visas, FY1994-FY2008 .....................7

Figure 3. Trends in Initial Determinations of §212(a) Ineligibility for LPR and Nonimmigrant Visa Applicants, FY1994-FY2008 .............8

Figure 4. Initial Determinations of LPRs Excluded by Grounds in FY1996, FY2000, FY2004, and FY2008.........................................19

Figure 5. Trends in Initial Determinations of LPR Exclusions for Top 3 Grounds, FY1994-FY2008......................................20

Figure 6. Initial Determinations of Nonimmigrants Excluded by Grounds in FY1996, FY2000, FY2004 and FY2008 ............21

Figure 7. Trends in Initial Determinations of Nonimmigrant Exclusions for Top 4 Grounds, FY1994-FY2008.......................22

 

Appendixes

Appendix A. Consular Databases for Screening.........................................................................24

Appendix B. Exceptions to the Visa Requirements ....................................................................26

 

Contacts

Author Contact Information ......................................................................................................27

________________________________________________________________________

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Stuart Basefsky                   
Director, IWS News Bureau                
Institute for Workplace Studies 
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16 E. 34th Street, 4th Floor             
New York, NY 10016                        
                                   
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