FOREWORD

The annual Congressional consultations on refugee admissions provide a unique opportunity for the Congress and the Administration to focus on the domestic and international implications of the U.S. refugee policy, and mark the culmination of a many-faceted consultative process.

The U.S. Coordinator for Refugee Affairs and other Administration officials have periodic discussions with Members and staff of the House and Senate Judiciary Committees, the Senate Foreign Relations Committee, the House Foreign Affairs Committee, the House and Senate Appropriations Committees and other interested Congressional committees. The Coordinator chairs interagency meetings which include representatives from bureaus of the Department of State including the Bureau for Refugee Programs and the Bureau for Human Rights and Humanitarian Affairs, the Department of Justice's Immigration and Naturalization Service, the Department of Health and Human Service's Office of Refugee Resettlement, the Office of Management and Budget, and the National Security Council. In addition, consultations are held with representatives of state and local governments, public interest groups, private voluntary organizations, mutual assistance associations, and other organizations concerned with refugees.

The Administration is committed to strengthening and implementing the U.S. refugee admissions and assistance policy consistent with domestic and international concerns within a humanitarian framework. The task of balancing these concerns has become increasingly difficult because of growing numbers of refugees and constrained budgets. Nevertheless, we continue to admit select numbers to our country as refugees. At the same time, we contribute to life-saving assistance programs which impact on millions of the world's refugees who are not eligible for our admissions program.

This document presents the President's admissions proposals for FY 1993. It is intended to initiate the Congressional consultations process set out in Section 207 of the Refugee Act of 1980 and to elicit responses from the House and Senate Judiciary Committees and others interested in refugee policies and programs. After receiving the views of the Congress, the President will determine refugee admissions levels and allocations for FY 1993.

I. PROPOSED REFUGEE ADMISSIONS PROGRAM FOR FY 1993

A. OVERVIEW OF U.S. REFUGEE POLICY

In the resolution of refugee problems, the United States gives highest priority to the safe, voluntary return of refugees to their homelands. This policy, embodied in the Refugee Act of 1980, is also the first priority for the United Nations High Commissioner for Refugees (UNHCR). If safe, voluntary repatriation is not feasible, settlement in countries of asylum within the region is sought as the next preferred alternative. Often, however, political differences, lack of economic resources to support large numbers of additional people, or ethnic, religious or other deep-rooted animosities prevent this option from being exercised. Finally, consideration is given to resettlement in third countries, including the United States.

The United States considers for admission persons of special humanitarian concern who can establish persecution or a well-founded fear of persecution on account of race, religion, nationality, membership in a particular social group, or political opinion. The legal basis of the refugee admissions program is the Refugee Act of 1980 which embodies the American tradition of granting refuge to diverse groups suffering or fearing persecution. The Act adopted, for the purpose of our refugee admissions program, the definition of "refugee" contained in the United Nations Convention and Protocol relating to the Status of Refugees. The definition which may be found in Section 101 (a) (42) of the Immigration and Nationality Act (INA), as amended by the Refugee Act, is as follows:

"The term "refugee" means (A) any person who is outside
any country of such person's nationality or, in the case of a
person having no nationality, is outside any country in which
such person last habitually resided, and who is unable or
unwilling to return to, and is unable or unwilling to avail
himself or herself of the protection of, that country because of
persecution or a well-founded fear of persecution on account
of race, religion, nationality, membership in a particular
social group, or political opinion, or (B) in such

circumstances as the President after appropriate consultation
(as defined in section 207 (e) of this Act) may specify, any
person who is within the country of such person's nationality
or, in the case of a person having no nationality, within the
country in which such person is habitually residing, and who
is persecuted or who has a well-founded fear of persecution
on account of race, religion, nationality, membership in a
particular social group, or political opinion. The term
"refugee" does not include any person who ordered, incited,
assisted, or otherwise participated in the persecution of any
person on account of race, religion, nationality, membership
in a particular social group, or political opinion."

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The estimated world population of refugees and externally displaced persons is over 16 million; persons dísplaced within their own countries by war, famine and civil unrest may equal that number. The United States works with other governments, and international and private organizations to protect refugees and displaced persons and strives to ensure that survival needs for food, health care and shelter are met. Under the authority contained in the Migration and Refugee Assistance Act of 1962, as amended, the United States contributes to the international activities of the UNHCR, the International Committee of the Red Cross (ICRC) and other international and private organizations which provide ongoing relief and assistance for refugees and displaced persons. (For example, the United States in FY 1990 contributed $74 million, 21 percent of the total General Program Budget of the UNHCR for Calendar Year (CY) 1990, plus $53 million, 23 percent of the UNHCR's total Special Programs Budget for CY 1990.) The United States has been instrumental in mobilizing a community of nations to work through these and other organizations in alleviating the misery and suffering of refugees throughout the world.

The United States, aware that more than 75 percent of the world's refugees are women and young children, recognizes the special needs of these vulnerable groups, particularly in the areas of protection and assistance. The United States supports the UNHCR and other relevant international, governmental and non-governmental organizations in their efforts to involve refugee women in implementing programs on their own behalf, and also supports the assigning of women officers to positions where they can impact favorably on the protection and well-being of women and children refugees.

We continue to press for the most effective use of international resources directed to the urgent needs of refugees and displaced persons. During FY 1992, the United States supported major relief programs in Africa, Central America, Southeast Asia, South Asia and the Near East, including the Gulf region. Contributions for these funds were made through organizations including the UNHCR, the United Nations World Food Program (WFP), the ICRC, the United Nations Children's Fund (UNICEF), and the United Nations Relief and Works Agency for Palestine Refugees (UNRWA). This support averted further human tragedy and helped sustain life by providing food and other assistance to meet the basic human needs of refugees. Details are provided in the World Refugee Report.

With regard to refugees resettled in the United States, the U.S. Government aims to promote economic self-sufficiency as quickly as possible, limiting the need for public assistance and encouraging refugees to contribute to the diversity and enrichment of our country as previous newcomers have done. To this end, short-term English language and cultural orientation programs for certain groups of refugees have been established overseas to initiate the process of adapting to our complex society. Particular attention is paid to the health of refugees to ensure that communicable diseases are controlled before entry into the United States. Federally funded programs administered by the States have provided cash and medical assistance, training programs, employment and other support services to many refugees soon after arrival in the United States. A variety of institutional providers have performed these services, including private voluntary agencies who also perform initial reception and placement services under cooperative agreements with the Department of State. All of these benefits are intended for short-term utilization during a refugee's transition to an independent, contributing member of the national economy and of American society.

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TABLE I

REFUGEE ADMISSIONS IN FY 1992

Publicly funded refugee admissions to the United States for FY 1992 are expected to be approximately 129,700. Total admissions, including privately funded, are expected to be approximately 131,200.

The President proposes to respond to the humanitarian needs of refugees by establishing for FY 1993 an admissions ceiling of 132,000 refugees for permanent resettlement in the United States. Proposed allocations within this ceiling are shown in Table II below:

*Includes Amerasian immigrants and their families who enter as immigrants under a special statutory provision but receive benefits as refugees.