THE REPORT TO THE CONGRESS ON PROPOSED REFUGEE ADMISSIONS AND ALLOCATIONS FOR FISCAL YEAR 1991 is submitted in compliance with Section 207(e) of the Immigration and Nationality Act. The Act requires that before the start of the fiscal year and, to the extent possible, at least two weeks prior to Consultations on refugee admissions, members of the Committees on the Judiciary of the Senate and the House of Representatives be provided with the following information: (1) A description of the nature of the refugee situation. (2) (3) (4) (5) (6) (7) A description of the number and allocation of the refugees to be admitted and an analysis of conditions within the countries from which they came. A description of the proposed plans for their movement and resettlement and the estimated cost of their movement and resettlement. An analysis of the anticipated social, economic, and demographic impact of their admission to the United States. A description of the extent to which other countries will admit and assist in the resettlement of such refugees. An analysis of the impact of the participation of the United States in the resettlement of such refugees on the foreign policy interests of the United States. Such additional information as may be appropriate or requested by such members. III. PAGE NEW ARRIVALS IN TEN LEADING STATES FY 1989 and 1990 . 43 VI. ESTIMATED CUMULATIVE STATE 45 NON-INDOCHINESE REFUGEES: ARRIVALS BY STATE 46 VIII. ESTIMATED COST OF REFUGEE PROCESSING, MOVEMENT AND RESETTLEMENT. 51 INTRODUCTION 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 The U.S. Coordinator for Refugee Affairs and other officials of the Administration 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. Coordinator has weekly meetings with representatives from the Department of State's Bureau for Refugee Programs and Bureau for Human Rights and Humanitarian Assistance, the Department of Justice's Immigration and Naturalization Service and the Department of Health and Human Service's Office of Refugee Resettlement, among others. In addition, consultations are held with representatives of state and local governments, public interest groups, private voluntary organizations and other organizations concerned with refugees. A Policy Coordinating Committee, with representatives of Federal Agencies involved in refugee-related issues, including refugee admissions, meets to ensure that policy and program issues requiring interagency attention receive prompt and systematic consideration. 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 in recent years 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 Fiscal Year 1991. 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 levels and allocations for Fiscal Year 1991. I. PROPOSED REFUGEE ADMISSIONS PROGRAM FOR FY 1991 A. United States 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 |