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WITHDRAWAL NOTICE

RG: 148 Exposition, Anniversary, and Memorial Commissions


SERIES: 9/11 Commission, Team 5
NND PROJECT NUMBER: 51630 FOIA CASE NUMBER: 30768

WITHDRAWAL DATE: 09/24/2008

BOX: 00025 FOLDER: 0003 TAB: 28 DOC ID: 31198794

COPIES: 1 PAGES: 7

The item identified below has been withdrawn from this file:

FOLDER TITLE: DOS Documents - NIV [3 of 5]

DOCUMENT DATE: 04/23/2004 DOCUMENT TYPE: Memorandum

FROM:

TO: Daniel Marcus

SUBJECT: Request for Docs. No 15, Refusal Statistics

This document has been withdrawn for the following reason(s):


9/11 Closed by Statute

WITHDRAWAL NOTICE
United States Secret Service

fifiFWT
Office of Investigations
Forensic Services Division
Questioned Document Branch
October 10, 2001
Federal Bureau of Investigation - Laboratory Division
Subject: Case No, , 7 5 _ g 6 5 _ 4 8 7 y o

Type of Examination- . ,u . X-Rcf ^924007


Physical Examination

Reference is made to your Forensic Science Research Request, dated September 26, 2001 .

EXHIBIT:

Ql One (1) photo identification card written in Arabic bearing the title "Saudi University"
described as item Q568. This card was found in the Pentagon rubble pile.

REQUEST:

Examine Exhibit Ql to determine the origin of the card.

RESULTS OF EXAMINATION:

Physical examinations were conducted on the questioned identification card ( E x h i b i t Ql ). There ueu-
no comparable standards available for comparison ofthe identification card; therefore the a u t h e n t i c i t y
o f t h e identification card could not be determined. The card was produced by a combination of
photography and offset lithography. This document when exposed to ultraviolet radiation displays the
word "Polaroid" which fluoresces in a hori/.onta! and vertical pattern. The type of film that contains
this feature is the Polaroid Polarcolor 100 or 669 ID Ultraviolet film. This film is sold worldwide as .1
relatively low security, generic, Identification card product. The equipment used to produce such a
photograph is the Polaroid LD2, ID3, ID4. or ID 100 camera. All these cameras utilixc a Validation
Plate that fits inside the camera to provide the layout, header and add a layer of security to the system
The demographic data is then printed on a paper card media & inserted i n t o the camera. The ID
document is then die cut and heat sealed into a plastic pouch. It should be noted that if one had aa.css
to the camera and a validation plate, one could modify and or ulili/.c the system to make other
identification documents. These types of cameras arc available through Polaroid authon/.ed
identification dealers worldwide. In conversations with the Polaroid Corporation, t h e i r exports h a v e
indicated thai it is unusual for the photograph to overlap the biographical information as i t docs on i h i -
document.
<.
The ID card u as translated to English from Arabic beginning with the front p i c t u r e side-reading top ;*•
boltom as follows^
\e Kingdom ol SaudiVvrabia

Student I d e m t t v Card
File No. 175-865-48790
Page 2 of 2

Student Number: 418009222


Nationality: Saudi
Identity Number: 21850
NOTE: Suspected to be a National ID number
Date and Origin: 1416/4/10
NOTE: Assumed to be Dale and Place of Issuance. The Place Nams is obscured. The I Jala
converts to 6 September 1995.
Blood Type: CH-
Signaturc:
NOTE: Signature is placed left to the Blood Type and is obscured
Name: MAA.I1D MISHA'N GHANIM MOWAQAD

In the upper right quadrant (just right of center) is a printed shield featuring a Palm tree above
crossed swords above an open book, encircled by the words "King Saud University", both in
English and Arabic.

The reverse side of the document contains the following text translated from Arabic to English
Important instructions for the cardholder
• This card should be submitted to the proper authorities upon request
• This card cannot be used by any other person.
• If the card is lost, the proper authorities should be notified in writing
• Should the card be lost, it should be announced in the University Letter or in one of the
local newspapers.
• The card is considered Cancelled if it is punched.

DISPOSITION OF EVIDENCE

!'he Exhibit is being returned as requested.


Examined by

Larry !•'. Stewart


Laboratory Director

i Jack 1 Johnson, Jr.


// Special Agent in Charge
United States Secret Service

REPORT Office of Investigations


Forensic Services Division
Questioned Document Branch
September 27, 2001
0- Federal Bureau of Investigation - Laboratory Division
Subject: PENTTBOMB Case No.:
175-865-48789
X-Ref. 010921019
Type of Examination: physjcal Examinalion

Reference is made to your Forensic Sc.ence Research Request, dated September 26, 2001.

EXHIBIT:

Ql One (1) identification card bearing the name, "Salem Alhazmi," described as item Q409,
collected on 9/21/2001.

REQUEST:

Examine Exhibit Ql to determine the origin of the card.

RESULTS OF EXAMINATION:

F'hysical examinations were conducted on the questioned card (Exhibit Ql). The card was produced by
a combination of two printing processes, thermal dye diffusion and thermal mass transfer. It was
produced by the USAIU Systems, Incorporated, Atlanta, Georgia (since moved to Miami, Florida), on
or about the 10Ih of July, 2001. The card was issued to "Salem Alha/ini" and was ordered through nn
affiliate in Patterson, NJ on or about hi'.y 6. 2001 - Cards from this company are utilized as
identification cards.

DISPOSITION OF EVIDENCE

The Exhibit is being returned as requested.


Examined hy

^arryr". Stewart
Laboratory Director

Ap»ro\:

(( ' •' y
, Jack L Johnson, J-f
Special Aivnt in Charge

SSF 3133 (0538


United States Secret Service

REPORT Office of Investigations


Forensic Services Division
Questioned Document Branch
September 25, 2001
To:
Federal Bureau of Investigation - Laboratory Division
Case No.:
Subject: PENTTBOMB 175-865-48768
X-Ref. 010919028
Type of Examination: n, • , r . .
n Physical Examination

Reference is made to your Forensic Science Research Request, dated September 25, 2001.

EXHIBIT:

Ql One (1) partial identification card bearing the last name, "Alhazmi," described as item 1B-
4L3, collected at the Pentagon on 9/16/2001.

REQUEST:

Examine Exhibit Ql to determine the origin of the card.

RESULTS OF EXAMINATION:

Physical examinations were conducted on the questioned card (Exhibit Ql). The card was produced by
a combination of two printing processes, thermal dye diffusion and thermal mass transfer. It was
produced by the USAID Systems, Incorporated, Atlanta, Georgia (since moved to Miami, Florida), on
or about the 10lh of July, 2001 The card was issued to "Nawaf Alhazmi" and was ordered through an
affiliate in Patterson, NJ on or about July 6, 2001. Cards from this company arc utih/.ed as
identification cards.

DISPOSITION OF EVIDENCE

The Exhibit is being returned as requested.


Examined by

. Stewart
Laboratory Director

Approved:

,
// Jack L Johnson, Jf.
/ Special A cent in Charge
fire of tljr ^ttnrncu
. (L 20530
1/2
DIST
S 17, 1995
TD
D
P
EUR
H
CA The Honorable Warren Christopher
S/S Secretary of State
WHS/ Washington, DC 20530
dsm
Dear Mr. Secretary:
This is in reply to the letter from then-Acting Secretary
Strobe Talbott in which he recommends that members of your staff
meet with Department of Justice staff concerning the nomination
of Ireland for probationary status in the Visa Waiver Pilot
Program (VWPP) . We are pleased to concur with your suggestion.
I have directed Doris Meissner, Commissioner of the
Immigration and Naturalization Service, to have members of her
staff initiate discussions with your staff. Those discussions
must account for the present policy, approved by the President,
by which visas for members of Sein Fein and the Irish Republican
Army are issued subject to certain conditions. Under the VWPP,
these conditions will have to be continued --presumably through
the INS inspection process.
Please be assured that I will ask Ms. Meissner to have her
staff continue to work closely with members of Ms. Ryan's staff
on the issue and to continue their dialogue with Congress in the
new session.

Sincerely,

Janet Reno
DEPARTMENT OF STATE
EXECUTIVE SECRETARIAT
ACTION SUP

(Clas&i ficanon / Downgrader)

ACTION ASSIGNED TO:

ACTION REQUESTED: HIGH PRIORITY ITEM

_ PREPARE A CROSS-HATCH CABLE REPLY


FORMAL STATE TO. .MEMO
FOR PRESIDENT/VICE PRES. """"""
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TO NSC OVP A _ SEND A COMEBACK COPY OF OUTGOING
r 7 STATE CABLE AND ORIGINAL WH/OVP
WITH DRAFT REPLY FOR SIGNATURE L>CORRESPONDENCE UNDER COVER OF A
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PROVIDE INFO COPY OF DIRECT REPLY ON BEHALF OF. . ALONG WITH ORIGINAL
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OF
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WITH REPLY FOR SIGNATURE BY . FOR YOUR INFORMATION
PROVIDE INFO COPY OF DIRECT REPLY TO S/S-S &.

REMARKS/SPECIAL INSTRUCTIONS:

CLEAR WITH:
COPIES TO: S/S A IO <;/ra>P
S I S/^T
*—*~^~ DONILON S/S-EX TPR M/DT.P S/<;AH
XX <;,„ ns M/FSl l^flNI/W
S/«U~ DRI M/OFM A£T)A

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(iDffire of ttje Attorney (general
"Washington. B. 0.20530 QJ^ _ , \\O I

January 19, 1995

The Honorable Warren Christopher


Secretary of State
Washington, DC 20530
Dear Mr. Secretary:
This is in reply to the letter from then-Acting Secretary
Strobe Talbott in which he recommends that we have Ms. Mary A.
Ryan, Assistant Secretary for Consular Affairs, work closely with
Ms. Doris Meissner, Commissioner of the Immigration and
Naturalization Service (INS), to resolve the issues related to
some countries having become ineligible to remain in the Visa
Waiver Pilot Program (VWPP). I am happy to follow that
reconnnendat ion.
While it is true that there are some concerns about the
overstay data maintained by the INS, the overstay rates for
Austria and Italy are consistently higher than the other
countries in Che VWPP. The legislative proposals prepared by
Ms. Ryan's and Ms. Meissner's staff, in conjunction with
interested Congressional staff, would place into a probationary
period countries whose violation rates exceed 2 percent. If the
countries that fall into the probationary category fail to
maintain an acceptable rate of immigration violations during the
fiscal year following probationary designation, they would be
removed from the VWPP.
Please be assured that I will ask Ms. Meissner to have her
staff continue to work closely with members of Ms. Ryan's staff
on the issue and to continue their dialogue with Congress in the
new session.

/ Janet Reno
Department of State
Office of the Secretary

Date:

Direct/Through S/S

Action

Due:

Action Memo/Recommendation

Action Memo/Reply for Secretary's Signature

Direct reply on behalf of S, with a comeback copy


forS

For H signature, with comeback copy for S

Provide info copy to S Staff

Speaking request: for PA's recommendation/spin

Remarks:

Anne Hall
Ext. 7-6822
PRINCIPALS CHAWWEL 9502940

UNDER SECRETARY OF STATE

FOR MANAGEMENT

WASHINGTON

m
s
TP

E February 16, 1995


M
G
NOTE TO THE SECRETARY
S/RPP
JWI- Mr. Secretary,
S/CT
S/5
I thought you would find Mary Ryan's letter to Louis Freeh on the
Visa Waiver Pilot Program interesting and informative. It is imperative
that we maintain and work to expand, where possible, the VWPP.

Mary points out the many safeguards already in place to guard


against misuse of the program. Because of these safeguards, border
security is not threatened by the VWPP. The program continues to be
^ an innovative and cooperative effort between the Department and INS.
It saves us millions of dollars a year in consular staffing costs and is a
true success story.

Richard M. Moose

cc: The Deputy Secretary


S/CT-Mr. Wilcox
I N M - M r . Gelbard
INR - Ms. Gati
DEPARTMENT OF STATE
ASSISTANT SECRETARY FOR CONSULAR AFFAIRS

WASHINGTON

Dear Mr. Freeh: J isi~^

I read with great interest your letter to Deputy


Attorney General Gorelick, published in the December 19
issue of. Interpreter Releases. In that letter, you raised
concerns over the expansion of the Visa Waiver Pilot
Program (VWPP). These concerns were based largely on the
perception that criminals and terrorists might use VWPP to
enter the United States.
The VWPP is one of the roost successful initiatives
ever undertaken by the Department of State and the U.S.
Immigration and Naturalization Service (INS). VWPP has
become essential to the orderly transaction of
international business, and literally thousands of U.S.
businesses depend on it to facilitate the travel of
customers and suppliers. VWPP has also been critical to
our compliance with the Administration's mandates on
reducing the size of the Department.
I firmly believe that these benefits have been
realized without compromising the security of our
borders. In creating the VWPP, the Department of State
and INS included several important safeguards to protect
against misuse of the program. Following are a few of
those safeguards:

All VWPP travelers are subjected to the same namecheck


at the port of entry as visa applicants experience at
our consulates. The Department shares its lookout
information with INS, enabling its inspectors to
identify potentially ineligible applicants in the same
manner used by consular officers.

The Honorable
Louis Freeh,
Director,
Department of Justice,
Federal Bureau of Investigation.
- 2 -

— The Department of State has undertaken a world-wide


effort to ensure that potential terrorists are
included in the naroecheck data base. Each embassy has
a committee to determine which persons may be security
risks, and all names are sent to the Department for
review and inclusion in the data base. This
information is available to INS officers at ports of
entry as well as to consular officers in the field.
VWPP countries must issue (or be implementing a
program to issue) machine readable passports. This
requirement provides an important safeguard against
passport alterations and photo substitutions.
Not all countries which meet the basic VWPP criteria
are recommended by the Department for inclusion in the
program. We carefully review each potential
nomination, looking at the country's citizenship laws,
its potential links to groups unfriendly to U.S.
security interests, and its own immigration controls.
No country is recommended until all of these concerns
are satisfied.
The Department of State faces continued reductions in
resources, including consular staffing. Allowing our
lowest-risk travelers to use the VWPP enables us to divert
our consular resources to more in-depth screening of
applicants who might pose a significant security risk.
I share your concerns over the security of our
borders. I will continue to demand the highest standards
of review of all countries which might be nominated for
participation in VWPP. I will also continue to monitor
our procedures for screening visa applicants to ensure
that, whatever our resource constraints, security is never
sacrificed in the visa adjudication process.

Mary A. Ry

B.C.C. - Mr. Richard M. Moose


Under Secretary for Management (M)
DISTRIBPTIQH Li
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FOR THE SYSTEM DIST DETERMINED BY: KCB


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MEMO SENT THRU INITIAL DIST DONE BY


COMPLETED ACTION MEMO REDISTRIBUTED BY /DATE
•ORIG LTR RECEIPTED TO MAIN JUSTICE BULIDING
COPIES TO:
5pDEI THE SECRETARY OF STATE
SS WASHINGTON
sss
EUR
CA
"95 APR-6 Pi:33
cah April 6. 1995

Dear Madam Attorney General:

Thank you for your letter of March 16 in which you outline


your concerns over the inclusion of Ireland in the Visa Waiver
Pilot Program (YWPP). Specifically, you seek confirmation that
individuals who are ineligible for visas, including a number of
Sinn Fein and IRA members, will continue to be required to
apply for waivers of ineligibility prior to their travel to the
United States.
Let me assure you that the Department of State shares your
concerns. Travelers who have any statutory ineligibilities for
visas are required to obtain waivers in accordance with the
procedures set forth in your letter. We rigorously adhere to
this requirement in all cases.
With respect to the conditions placed on waivers for
ineligible Sinn Fein and Loyalist individuals, I continue to
recommend that those individuals for whom we seek waivers be
granted waivers expeditiously and with conditions equivalent to
those in force for Mr. Gerry Adams, president of Sinn Fein.
Our recommendations will be given only for those individuals on
both sides who endorse the present ceasefire in Northern
Ireland and who desire to travel to the United States with the
goal of furthering the peace process. It is important that the
United States be seen as treating both communities equally, and
that uncertainties or seeming lack of timeliness in visa waiver
issuance not undercut the effectiveness of the U.S. dialogue
with parties to the peace process in Northern Ireland.

In preparation for the inclusion of Ireland in vwpp. we


have compiled a list of all Irish citizens who are shown in our
computer data base as possibly ineligible for visas. We are
making that entire list available to INS for its use at ports
of entry. This will ensure that ineligible persons who might
attempt to travel on VWPP can be intercepted by INS.

The Honorable
Janet Reno,
Attorney General
-2-

We are also actively publicizing the requirements for


VWPP travel in Ireland. Our announcements remind travelers
of the need to apply for waivers if they have any statutory
ineligibilities for visas.
We believe this will meet all of your concerns and
appreciate the efforts of the Department of Justice and INS
in making the inclusion of Ireland a reality.
Sincerely,

Warren Christopher
S/ES 200316281/14

United States Department of State

Washington, D.C. 20520

September 3, 2003

UNCLASSIFIED when separated from attachments

MEMORANDUM FOR DANIEL MARCUS


GENERAL COUNSEL
NATIONAL COMMISSION ON TERRORIST ATTACKS UPON THE UNITED STATES

SUBJECT: National Commission on Terrorist Attacks Upon the


United States Request for Documents Request No. 2

This is in response to the National Commission on Terrorist


Attacks Upon the United States' request for Department of State
documents.

Attached is the sixth installment of documents in response


to the Commission's Request No. 2, specifically items number 2-
5, 11-14, 16 and 18, This installment consists primarily of
cables and memoranda.

Under Executive Order 12958, the Department of State may


not disseminate classified information outside the Executive
Branch except under conditions that ensure that afforded to such
information within the Executive Branch. We ask that only
appropriate cleared members of staff be granted access to the
material and that it be protected by applying standards at least
as stringent as E.G. 12958 on the handling of classified
information.

Although some material is not classified, the designation


as "Sensitive But Unclassified" requires special handling.
Therefore we request that all of these documents be protected
from unauthorized disclosure.

J»BCRET '
UNCLASSIFIED when separated from attachments
gseRET
UNCLASSIFIED when separated from attachments
2
We hope this information is useful to you. As always,
please do not hesitate to contact us if you have further
questions.

Karl Hofmann
Executive Secretary

Attachments:
1. Documents Responsive to Request No. 2, specifically
questions number 2-5, 11-14, 16 and 18.

2. Incoming request.

£ EjggRET
UNCLASSIFIED when separated from attachments
United States Department of State

Washington, D.C. 20520

(Allow room for date)

CLASSIFICATION
DECL: Date

MEMORANDUM FOR MR. TOM ELDRIDGE


NATIONAL COMMISSION ON TERRORIST ATTACKS UPON THE UNITED STATES

SUBJECT: Sample format


Memoranda must be neat. No strikeovers or tapeovers are
permitted. Use a Courier New 12 point font for Microsoft WORD.

Put drafting and clearing information on a separate page.


Submit the original and four copies to S/ES-CR, Room 7241. Allow
at least four lines between last paragraph and signature block.
Center the signature block.

Karl Hofmann
Executive Secretary

Attachments:
1. State Department Documents,
2. Incoming memoranda

CLASSIFICATION
Classified by: (name)(title)
Reason: E.O. 12958 (justification)
9/11 Commission
SES #200317214/IPS #8200300005

SESCR007
49 Documents
WITHDRAWAL NOTICE

RG: 148 Exposition, Anniversary, and Memorial Commissions


SERIES: 9/11 Commission, Team 5
NND PROJECT NUMBER: 51630 FOIA CASE NUMBER: 30768

WITHDRAWAL DATE: 09/24/2008

BOX: 00025 FOLDER: 0003 TAB: 29 DOC ID: 31198795

COPIES: 1 PAGES: 8

The item identified below has been withdrawn from this file:

FOLDER TITLE: DOS Documents - NIV [3 of 5]

DOCUMENT DATE: DOCUMENT TYPE: Index

FROM:

TO:

SUBJECT: Index of Docs, to the Commission

This document has been withdrawn for the following reason(s):


9/11 Classified Information

WITHDRAWAL NOTICE
WITHDRAWAL NOTICE

RG: 148 Exposition, Anniversary, and Memorial Commissions


SERIES: 9/11 Commission, Team 5
NND PROJECT NUMBER: 51630 FOIA CASE NUMBER: 30768

WITHDRAWAL DATE: 09/24/2008

BOX: 00025 FOLDER: 0003 TAB: 30 DOC ID: 31198796

COPIES: 1 PAGES: 7

ACCESS
_^_ ___ ___
RESTRICTED I
The item identified below has been withdrawn from this file:

FOLDER TITLE: DOS Documents - NIV [3 of 5]

DOCUMENT DATE: 09/29/1994 DOCUMENT TYPE: Memorandum

FROM: Talbott

TO: Panetta

SUBJECT: Weekly Reprot from the Department of State

This document has been withdrawn for the following reason(s):


9/11 Classified Information

WITHDRAWAL NOTICE
WITHDRAWAL NOTICE

RG: 148 Exposition, Anniversary, and Memorial Commissions


SERIES: 9/11 Commission, Team 5
NND PROJECT NUMBER: 51630 FOIA CASE NUMBER: 30768

WITHDRAWAL DATE: 09/24/2008

BOX: 00025 FOLDER: 0003 TAB: 31 DOC ID: 31198797

COPIES: 1 PAGES: 4

ACCESS
The item identified below has been withdrawn from this file:

FOLDER TITLE: DOS Documents - NIV [3 of 5]

DOCUMENT DATE: 09/30/1994 DOCUMENT TYPE: Memorandum

FROM: Richard Moose

TO: Secretary

SUBJECT: Memorandum for the Secretary

This document has been withdrawn for the following reason(s):


9/11 Classified Information

WITHDRAWAL NOTICE
WITHDRAWAL NOTICE

RG: 148 Exposition, Anniversary, and Memorial Commissions


SERIES: 9/11 Commission, Team 5
NND PROJECT NUMBER: 51630 FOIA CASE NUMBER: 30768

WITHDRAWAL DATE: 09/24/2008

BOX: 00025 FOLDER: 0003 TAB: 32 DOC ID: 31198798

COPIES: 1 PAGES: 4

_ACCESS RESTJUCTED
The item identified below has been withdrawn from this file:

FOLDER TITLE: DOS Documents - NIV [3 of 5]

DOCUMENT DATE: 03/19/1996 DOCUMENT TYPE: Memorandum

FROM: Talbot

TO: Secretary

SUBJECT: Daily Activity Report

This document has been withdrawn for the following reason(s):


9/11 Classified Information

WITHDRAWAL NOTICE
United States Department of State

Washington, D. C. 2052$

June 3, 1991

INFORMATION MEMORANDUM^*
S/S '
9109975
TO: D - Mr/. Eagleburger
\: M - Mr. Ivan Selin

FROM: CA - James\L. Ward, Acting

SUBJECT: Visa Waiver rogram and ^Document Screening"

REF: Letter to you f\om Deputy Attorney General Barr

I have read the above-ref ereYiced proposal which seems to


be nothing more than a rehasrV. of where we were over a
month ago. It has been no better fleshed out or
documented than it was earlier\d remains a patently
obvious foot in the door for Justice for their large
prescreening programs overseas. \ do not know where this
proposal stands, but would like t q m a k e the following
comments on behalf of the CA Bureati. Although Assistant
Secretary Tamposi is presently abro\ on official
business, I have discussed the proposal with her, and she
fully concurs with the contents of th\ memorandum.

o The letter states that "In tnt course of these


discussions our staff reached ^agreement in
principle." I have attended, tto my knowledge,
most of the meetings with INS and DOJ officials
as well as with NSC representatives. At no time
was there ever an agreement in principle on our
willingness to accept document screening, or any
other program, in exchange for the qontinuation
and the expansion of the Visa Waiver\Program.
Our position has always been that theke two
matters are totally separate and shoulNj not be
linked.
- 2 -

The letter states that it is "likely that an INS


document screening presence at an overseas
airport will have a significant security benefit
and will fill an important gap in our security
system." To date, in spite of repeated
requests, the Department of Justice has never
documented the positive results of such document
screening, even the temporary document screening
program that took place during the Gulf War. As
far as any "important gap in our security
system" no such gap has ever been identified by
our own DS or S/CT experts.
We do not deny the usefulness of training
airline personnel and foreign immigration
personnel. Our consular officers overseas have
been doing this on an ongoing basis for several
years. It is by no means, however, full-time
employment.
The memorandum goes on to discuss the savings to
the government in the form of "detention and
removal costs of aliens claiming asylum".
Although I do not pretend to have exact figures
in this area it would appear on an anecdotal
basis that the great bulk of it would be asylees
coming to the U.S. from such places as Haiti,
Cuba, Nicaragua, El Salvador, Guatemala, etc.
Few, if any, of these would-be asylees pass
through the major tourist destinations in
Western Europe where INS proposed to locate its
document screeners.
The right of asylum is a long standing human
rights benefit which has a history of strong
congressional support. I seriously wonder if
there will be favorable congressional reaction
to a plan that purports to deny asylum benefits
to a significant number of people.
- 3 -

Finally, in looking at this proposal from an overall


management perspective, it is not only bureaucratic
blackmail, it is simply not a good deal. While Consular
operations stand to benefit the most from expansion of the
Visa Waiver Program, from an overall Department
perspective, the fact is that in the countries to which we
plan to expand the program we anticipate a net savings of
not more than 7 officer positions and 12 to 14 FSN
positions. Compared to the 24 additional officer
positions that INS intends to place abroad, it is simply
not a rational trade-off from the management perspective.
When you consider this as an opening wedge in INS's
attempt to get hundreds of inspectors overseas on their
ambitious preinspection program, the amount of State
resources that will go into supporting a program of this
magnitude make this a very bad deal indeed.
In conclusion, we should reject this proposal even if it
means giving up our plans to expand the Visa Waiver
Program as Congress intended. CA does not take this
position lightly, but considering the resource elements
involved, and also frankly looking at the sharp reductions
in consular and other services we are presently embarking
on in Western Europe, I believe this is the rational
answer to the DOJ proposal.

S/S:

Attached memo OBE'd by


9110489 (Principals
Channel).

Wang 0045e
draft: JWard; Robin
06/03/91 M Staff Aast.
6/11
DRAFT

JDlj vlobU
The Honorable Lawrence 5. Eagleburger
Deputy Secretary of State
Department of State
2201 C Street, NW
Washington, D.C. 20520

Visa Waiver Program and Document Screening


Dear Larry:
As you know, our staffs have been discussing a Justice Department
paper prepared for the National Security Council concerning
State's proposal to expand the visa vaiver program and Justice's
insistence that any such expansion be coupled with an overseas
IKS presence for security purposes. I understand that in the
course of these discussions our staffs reached agreement in
principle, subject to our approval, on a resolution of this
natter. This letter outlines Justice's proposal, consistent with
our understanding of this agreement:
1. Justice agrees to expansion of the visa waiver program to
the countries indicated in your January 28, 1991, letter
the Attorney General, with the exception of Qatar (while
do not object to the inclusion of Australia, I understand
that they ere unli3cely to accept the necessary reciprocity).
IKS will work with State to impleaent this expansion
expeditiously.
2. State agrees in principle to support the creation of a pilot
overseas IKS document screening program. Justice, NSC,
State and the appropriate Ambassadors will determine the
precise scope and location of the program based on.more
extensive discussions between our agencies. To begin the
discussions, Justice proposes a trial program involving 24
inspectors stationed in five cities: 8 in London, 5 in
Frankfurt, 4 in Rome, 4 in Amsterdam, and 3 in Brussels.1
(Host governments would have to agree to the INS presence,
but IKS believes that the governments concerned would be
receptive.) These inspectors would help train airpcrt

fXiiat might betedded/are^ Paris' (J


inspectors), Ztiriaa (4) ,/Stockhola (3), Spain (4) ,\Austria (4J ,
Denmark
/
(4JV ,/New
/
Ze\lanQ
^ S
( 4 ) V\ / \/
\ f
/ V

DRAFT
UO'OU/Ml

DRAFT
personnel in detecting document fraud and doing security
screening, would do spot checking of passengers and
documents, and would coordinate with FAA and other DSG
personnel on security matters overseas. They woulc". have lap
top computers with access to information in the INS computer
svstem, updated frequently. The document screeners wculd
also work with airport and host government personnel on the
implementation of APIS and efforts to eventually move
towards more automated security screening.
When the details of the proposal for a particular country
are worked out/ State will send a cable to ths appropriate
Ambassador recommending his or her approval and requesting
assistance in negotiating the necessary agreements with the
host governments. State will work with the NSC, INS and
Justice to finalize the details of the document screening
program as soon as possible. Experience with the document
screening program would be evaluated after twelve months
using criteria for evaluation agreed to in advance by our
agencies. Expansion, reduction or modification of the
program will be considered at that tina.
3. This agreement is without prejudice to either State's or
Justice's position on pre-inspection. If we believe the
report on the London pre-inspection experiment warrants it,
we will recommend that a pre-inspection program be
implemented in London, and perhaps elsewhere.

While it is difficult to predict with certainty the security


benefits of document screening, based on INS experience tc d&te
we believe that it is likely that an INS document screening
presence at overseas airports will have a significant security
benefit and will fill an important gap in our security system.
Prior experience with training airline personnel in detecting
document fraud shows the benefits of a continuous, limited INS
presence to train new personnel (turnover rates are high), to
provide refresher and updated training, and ro keep the fraud
issue high on the airlines' agenda. Moreover, a visible INS
presence in overseas airport can be expected to have a deterrent
effect preventing people from evan attempting to board planes.
Finally, keeping these individuals out of the country hae
probably saved INS millions of dollars, since the detention and
removal costs for aliens claiming asylum average over $25,000
each. These cost savings significantly exceed the extra costs,
government-wide, of stationing document screeners overseas.

DRAFT
05/30'Bl II :i9 ZTZDZ 514 0467 DAG

DRAFT
Please let me know if you agree with the above points. If BO, we
will provide our concurrence in the visa waiver program expansion
ae set forth above.

Sincerely,

William P. Barr

DRAFT
06/10/1991 06/10/1991

LSE
I^HM
Selin, Ivan

Deputy Secretary Eagleburger signed a letter replying to Deputy


Attorney General Barr's 5/31 letter regarding the expansion of the. Uisa
Waiver Pilot Program (UWPP) and the.proposed INS document screening
program.
NUMBER GIUEH TO S/S (DIANE) OUER THE PHONE
FLIMSV TO S/S-IRM NODIS FILE

07/22/1993
06/11/1991
nited States Department of State

Washington, D. C. 20520

P- /K
L /

INFORMATION MEMORANDUM
S/S
UNCLASSIFIED Q11A9SA
TO: D - Mr. Eagleburger >^ QCT-09 3:^8 PH
THROUGH: M - Ms. Jill E. Kent, Acting
FROM: CA - Elizabeth M. Tamposi
SUBJECT: Expansion of the Visa Waiver Pilot Program and INS
Document Screening Proposal

SUMMARY
On October 1, the expanded Visa Waiver Pilot Program went
into effect with the addition of 13 countries to the 8 already
participating in the program. In exchange for the Justice
Department's agreement to expansion of the program, you agreed
in principle to a limited pilot program for document screening
by INS officers at several hub airports in Europe. In July,
Justice made an informal proposal for a document screening
program which raised a number of concerns on our part. We
communicated these concerns to Justice and they are revising
their proposal prior to its formal submission to the Department
DISCUSSION
On October 1, the visa Waiver Pilot Program (VWpp) was
expanded from 8 to 21 participating countries with the addition
of 13 new countries to the program. The new participants are
Andorra, Austria, Belgium, Denmark, Finland, Iceland,
Liechtenstein, Luxembourg, Monaco, New Zealand, Norway, San
Marino and Spain. Original participants are France, Germany,
Italy, Japan, the Netherlands, Sweden, Switzerland and the
United Kingdom.
The VWPP permits travelers from these countries to enter
the United States for up to 90 days without a visa if the
purpose of the visit is tourism or business. The program
originally applied only to travelers arriving by air or sea.
It was extended on July 18 to visitors entering the United
States at land border points, further increasing the number of
travelers eligible to participate.
- 2-
The program has been
countries ports of entry.

July 1988.)
The
limitation on the number of statistics are

howevet-
leaves Greece, Portugal

excluded. Turkey jf j£2r ;lBi refusal rates than is


h 1

in return for the

proposal for document our concerns about

justice also agreed that


test
^ ,ne £slsbof the'reluT^-o
program which ended in J a n u a r y .
cooperation between State and INS at
implementing the agreed-upon "P"'1™e° n concerned that
p 5 ~ t screening program as

"^continued support o«
the VWPP.
- 3 -

Drafted: CA/VO/F/P: JEGarne^ Clearances: CA/VO: JHAaajasJYo'


10/4/91 ext 3125CT CA/VOtBHolmes*'/!''-*
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v United Slates Department of btate_

<*% ^£&*%LL
V 3 VV, /
1 n" 1&SZ}/
HAY 1

Dear Mr. Blaz:


Thank you for your March 17 letter to the Secretary
a.ki5 ?« «» support for the inclusion of Taiwan in the
Guam Visa Waiver.
»i«-hmiah the
Although the Department
u_ pa has ^^
someWconcerns regarding
a i v e C r as you k n o w f r o m
Taiwan's inclusion in t Consular A f f a i r s '
^n[or € Dlputy Ass^t^nt Secretary, Kr . James L ward, we are
Senior Depucy h recommendations of the
Migration a n d ^ a t u r a l i z a t i o n Service ( I N S ) w i t h respect to
this matter.
T appreciate the points you have raised on page two of
Correspondence to the Secretary, and I am t a k i n g the

*
y r f o r w a r d i n g a copy o f your letter t o o f f i c i a l s a t

Guam Visa waj.vci. t i-w-^^-....


decision is l i k e l y to be reached s h o r t l y .
Sincerely,

Janet Hj. Mullins


Assistant Secretary
Legislative Affairs

The Honorable
Ben Garrido Blaz,
House of Representatives
Thank you for your March 17 letter to the Secretary
asking ?or his support for the inclusion of Taiwan in the
Guam Visa Waiver.
Although the Departnent has some concerns regarding
TaiwJn^linclusion in the Guam Visa waiver, a. you know fro.
your recent meeting with the Bureau of Consular Jffairs
Senior Deputy Assistant Secretary, Mr. Jaaes L. Ward, we are
nreoared to be quided by the recommendations of the
?!£igration and'Saturalization Service (INS) with respect to
this natter.
I appreciate the points you have raised on page two of
your correspondence to the secretary, and I am taking the
liberty of forwarding a copy of your letter to °fficjai^at
INS so that they may be made a part of their deliberations
on this matter. As you know, INS is compiling its
evaluation on the impact of the inclusion of Taiwan in the
Guam Visa Waiver Program. We have been advised that a final
decision is likely to be reached shortly.
Sincerely,

Janet G. Kullins
Assistant Secretary
Legislative Affairs

The Honorable
Ben Garrido Blaz,
House of Representatives

D r a f t e d bv f t \:
?A/VO/?:RLAckJ?:jt VO/F/P:FLide
663-1229, 03/30/92 VO/P:DBloch

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03/17/92 15:12 ®202 225 0080 CONG.

COUMfTTEEON ARMED SERVICES


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The Honoratole Janes. A. Baker III


Secretary :
U.S. Department of State
2201 C Street, N.W.
WashdLngton, D.C. 20520
Dear Mr. Secretary:
I would like to enlist your support for the inclusion of the
Republic of China in the Guam visa waiver program. The visa
waiver program for Guam allows aliens to visit Guam for fifteen
days" or less for business or pleasure without a visa; Travellers
to Guam under this program cannot travel onward to the united
States. This program has been in operation for several years and
has an outstanding record of success. It has contributed to the
economic success of Guam through increased foreign investment in
and travel to my District, while not compromising in any regard
the safety, welfare or security of the united States. The program
currently encompasses the citizens of Japan, Hong Kong/ South
Korea, Australia, New Zealand, Indonesia, Malaysia, several
European countries and many Pacific island nations.
My effort to have Taiwan included on the list of countries
participating in the visa waiver program has led roe to meet with
the Department of State's Consular Affairs Office and the
Immigration and Naturalization Service as well as Taiwan's
Ministry of Foreign Affairs here in Washington, Taipei and Guam.
At this juncture, the sol« remaining impediment to Taiwan's
inclusion in posed by the Anti-Fraud Unit with State's Consular
Affairs Office. That office believes that pre-April, 1991
Taiwanese passport, which are either fraudulent or stolen, may be
used to gain entry to Guam by citizens of the People's Republic of
china for the purposes of seeking political asylum. I believe
firmly that procedural steps can be taken to reduce substantially
the likelihood of asylum claims.
The visa waiver could be applied solely to flights originating
out of the Republic of China. This would eliminate the
possibility that non-Taiwanese citizens could use counterfeit or
stolen Taiwanese passports to enter Guam from Hong Kong, Japan,
South Korea or any other country. Although this has not been done
in the past, neither the law nor the regulations prevent it. It
has the added advantage of flexibility to meet the problem at
minimal cost to the United States and the airlines.
As a condition to Taiwan's participation, the United States
could require that Taiwan screen all passports of passengers
departing from Taiwan for Guam nrior to departure to ensure that
only valid Taiwanese passports are honored. This could include a
requirement that Taiwan screen the passports of transit passengers
en route from elsewhere to Guam via Taiwan. To the extent that
Taiwan's current screening procedures are not adequate to prevent
the use of invalid passports, the United States could require
sufficient improvements as a prerequisite to participation. It is
my impression that Taiwan will do all that is required to assuage
any concerns that the United States may have.
The operating tariffs for all airlines serving Guam could be
amended to reflect the safeguards outlined above. Although
current policy militates against requiring airlines to assume a
share of the risk associated with asylum claimants, I believe that
this policy does not square with the circumstances surrounding
Guam's visa waiver program. Guam is firmly centered in the Asian
air traffic market - the world's most dynamic and profitable.
Guam's unique position in this regard argues for a different
policy in favor of shared private and public responsibility.
Taiwan's assistance in this regard cannot be discounted.
Guam's successful track record with regard to the visa waiver
program argues in favor of its continued expansion. Although the
problem of asylum seekers from the People's Republic of China is
serious, it is not insurmountable and can be met with appropriate
precautions. Taiwan's problem with passports stems from the
political uncertainties in the People's Republic of China coupled
with its proximity to south China. By limiting the availability
of the visa waiver to a strictly controlled point of origin and
coupling it with sufficient fiscal protections, the United States
can be provided with the security it requires while allowing Guam
room to grow.
Mr. Secretary, Guam can be the linchpin to America's presence
in the Pacific, a model for this s t i l l troubled region. It is in
recognition of this potential that I seek ycur assistance.
Sincere

Kenber of Congress
MAR-
U.S. PEPARTMENT OF STATE DATE:
EXECUTIVE SECRETARIAT
S/S CONTROL NUMBER

ACTION ASSIGNED TO:

ACTION REQUESTED:
WITH DRAFT REPLY FOR SIGNATURE
BY:
STATE TO MEMO
WITH COMMENT/RECOMMENDATION
PRESIDENTIAL
IF NO SIGNED ORIGINAL IS NECESSARY.
CONGRESSIONAL PREPARE CROSS-HATCH CABLE.

AFTER CROSS-HATCHING. SEND A


HIGH PRIORITY ITEM COMEBACK COPY OF OUTGOING STATE CABLE
AND ORIGINAL WH CORRESPONDENCE.
STATE TRANSMITTAL FORM UNDER COVER OF TRANSMITTAL FORM.
TO NSCS OVP
TRAVEL AUTHORIZATION IF NO REPLY IS NECESSARY. RETURN
PROVIDE INFO COPY OF ORIGINAL WH CORRESPONDENCE UNDER
DIRECT REPLY COVER OF A TRANSMITTAL FORM.

PROVIDE COMEBACK FOR

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WITH REPLY FOR SIGNATURE BY.

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CLEAR WITH: "" 'f £


COPIES TO:
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EXT: 7-8062/8063/8839/8348 ,fc804y5805/8338/8349
03/25/82 13:31 t*202 225 OOSfl CONG. BLAZ

BENBLAZ ' A COMMrnSONARUSJSBMCES

£ongras of the__ Hinted States COUMTTKCKKTBFBOR


HOUSE Of TUilLUtlliatiDCS ANDMSlLARAfFVURS
QMiULDMaSITESM ^ B0BTM>H«

17 1992
'

The Honorable James A. Baker III


Secretary
U.S. Department of State
2201 C Street, N.W.
Washington, D.c. 20520

Dear Mr. Secretary:

I would like to enlist your support for the inclusion of the


Republic of CT-n'na in the Guam visa waiver program. The visa
waiver program for Guam allows aliens to visit Guam for fifteen
days or less for business or pleasure without a visa. Travellers
to Guam under this program cannot travel onward to the United
States. This program has been in operation for several years and
has an outstanding record of success. It has contributed to the
economic success of Guam through increased foreign investment in
and travel to my District, while not compromising in any regard
the safety, welfare or security of the United States. Th« program
currently encompasses the citizens of Japan, Hong Kong, South
Korea, Australia, New Zealand, Indonesia, Malaysia, several
European countries and many Pacific island nations.
My effort to have Taiwan included on the list of countries
participating in the visa waiver program has led me to meet with
the Department of State's Consular Affairs Office and the
Immigration and Naturalization Service as well as Taiwan's
Ministry of Foreign Affairs here in Washington, Taipei and Guam.
At this juncture, the sole remaining impediment to Taiwan's
inclusion imposed by the Anti-Fraud Unit with State's Consular
Affairs Office. That office believes that pre-April, 1991
Taiwanese passports, which are either fraudulent or stolen, may be
used to gain entry to Guam by citizens of the People's Republic of
China for the purposes of seeking political asylum. I believe
firmly that procedural steps can be taken to reduce substantially
the likelihood of asylum claims.
03/25/02 13:32 TT202 225 0086 CONG. BLA.Z BJ003

- TUB visa, waiver could be applied solely to flights originating


out of the Republic of China. This would eliminate the
possibility that non-Taiwanese citizens could use counterfeit or
stolen Taiwanese passport* to enter Guam from _Hong Kong, Japan,
South Korea or any other country. Although this boa not been done
in the past, neither the lav nor the regulations prevent it. It
has the added advantage of flexibility to meet the problem at
minimal cost to the United States and the airline*.
As a condition to Taiwan's participation, the United States
could require that Taiwan screen all passports of passengers
departing from Taiwan for Guam prior to departure to ensure that
only valid Taiwanese passports are nonored. This could include a
requirement that Taiwan screen the passports of transit passengers
en route from elsewhere to Guam via Taiwan. To the extent that
Taiwan's current screening procedures are not adequate to prevent
the use of invalid passports, the United States could require
sufficient improvements as a prerequisite to participation. It is
my impression that Taiwan will do all that is required to assuage
any concerns that the United States may have.
The operating tariffs for all airlines serving Guam could be
amended to reflect the safeguards outlined above. Although
current policy militates against requiring airlines to assume a
share of the risk associated with asylum claimants, I believe that
this policy does not square with the circumstances surrounding
Guam's visa waiver program. Guam is firmly centered in the-Asian
air traffic market - the world's most dynamic and profitable.
Guam's unique position in this regard argues for a different
policy in favor of shared private and public responsibility.
Taiwan's assistance in this regard cannot be discounted.
Guam's successful trade record with regard to the visa waiver
program argues in favor of its continued expansion. Although the
problem of asylum seekers from the People's Republic of ChIna is
serious, it is not insurmountable and can be met with appropriate
precautions. Taiwan's problem with passports stems from the
political uncertainties in the People's Republic of China coupled
with its proximity to south China. By limiting the availability
of "Hi«» visa waiver to. a strictly controlled point of origin and
coupling it with sufficient fiscal protections, the United States
can be provided with the security it requires while allowing Guam
room to grow.
Mr. Secretary, Guam can be the linchpin to America's presence
in the Pacific, a model for this still troubled region. It is in
recognition of this potential that I seek your assistance.

cerely.

BIAZ
Member of Con/Eat ess
-V3. DEPARTMENT OF STATE DATE:
. EXECUTIVE SECRETARIAT DATEDUEINS^BY
S/S CONTROL NUMBER

ACTION ASSIGNED TOW flag 18 PK):42

ACTION REQUESTED:
WITH DRAFT REPLY FOR SIGNATURE
BY:
STATE TO MEMO
WITH COMMENT/RECOMMENDATION
PRESIDENTIAL
IF NO SIGNED ORIGINAL IS NECESSARY.
^CONGRESSIONAL PREPARE CROSS-HATCH CABLE.

AFTER CROSS-HATCHING, SEND A


HIGH PRIORITY ITEM ,r COMEBACK COPY OF OUTGOING STATE CABLE
" ~• ' AAND ORIGINAL WH CORRESPONDENCE.
STATE TRANSMITTAL FOR A (INDER COVER OF TRANSMITTAL FORM.
TONSCS OVP_ i; •
TRAVEL AUTHOR ZAT ON — _ 1I: NO REPLY IS NECESSARY. RETURN
PROVIDE INFO CfcPY DP 'i >RIGINAL WH CORRESPONDENCE UNDER
DIRECT REPLY ii :OVER OF A TRANSMITTAL FORM.

PROVIDE COMEBACK FOR

DIRECT REPLY ON BEHALF OE_ M*


REPLY FOR SIGNATURE RV / '
O
RECOMMENDATION FOR UNDER COVER OF AN ACTION MEMO

WITH REPLY FOR SIGNATURE


oo
FOR APPROPRIATE HANDLING -FOR YOUR INFORMATION

REMARKS/SPECIAL INSTRUCTIONS: re

CLEAR WITH:
COPIES TO:
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R/RT:HED_ s/s-o a IL NST 1
n R/S-FX CA 10 OES 1
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ACTION ASSIGNED TO.'CP fljp j y P1Q:42

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BY:
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IF NO SIGNED ORIGINAL IS NECESSARY.
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AFTER CROSS-HATCHING. SEND A


HIGH PRIORITY ITEM
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COMEBACK COPY OF OUTGOING STATE CABLE
AND
f ORIGINAL WH CORRESPONDENCE,
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Hardi 17, 1992 SEHTTCCMiniHONAGNG

The Honorable James A. Baker III


Secretary
U.S. Department of State
2201 C Stre*t, N.W.
Washington, D.C. 20520

Dear Mr. Secretary:

I would like to enlist your support for the inclusion of the


Republic of China in the Guam visa waiver program. The visa
waiver program for Guam allows aliens to visit Guam for fifteen
days or less for business or pleasure without a visa. Travellers,
to Guam under this program cannot travel onward to the united
States. This program has been in operation for several years and
has an outstanding record of success. It has contributed to the
economic success of Guam through increased foreign investment in
and travel to my District, while not compromising in any regard
the safety, welfare or security of the united States. The program
currently encompasses the citizens of Japan, Hong Kong, South
Korea, Australia, New Zealand, Indonesia, Malaysia, several
European countries and many Pacific island nations.

My effort to have Taiwan included on the list of countries


participating in the visa waiver program has led me to meet with
the Department of State's Consular Affairs Office and the
Immigration and Naturalization Service as well as Taiwan's
Ministry of Foreign Affairs here in Washington, Taipei and Guam.
At this juncture, the sole remaining impediment to Taiwan's
inclusion in posed by the Anti-Fraud Unit with state's Consular
Affairs Office. That office believes that pre-April, 1991
Taiwanese passport, which are either fraudulent or stolen, may be
used to gain entry to Guam by citizens of the People's Republic of
China for the purposes of seeking political asylum. I believe
firmly that procedural steps can be taken to reduce substantially
the likelihood of asylum claims.
The visa waiver could be applied solely to flights originating
out of the Republic of China. This would eliminate the
possibility that non-Taiwanese citizens could use counterfeit or
stolen Taiwanese passports to enter Guam from Hong Kong, Japan,
South Korea or any other country. Although this has not been done
in the past, neither the law nor the regulations- prevent it. It
has the added advantage of flexibility to meet the problem at
minimal cost to the United States and the airlines.
As a condition to Taiwan's participation, the United States
could require that Taiwan screen all passports of passengers
departing from Taiwan for Guam prior to departure to ensure that
only valid Taiwanese passports are honored. This could include a
requirement that Taiwan screen the passports of transit passengers
en route from elsewhere to Guam via Taiwan. To the extent that
Taiwan's current screening procedures are not adequate to prevent
the use of invalid passports, the United States could require
sufficient improvements as a prerequisite to participation. It is
my impression that Taiwan will do all that is required to assuage
any concerns that the United States may have.
The operating tariffs for all airlines serving Guam could be
amended to reflect the safeguards outlined above. Although
current policy militates against requiring airlines to assume a
share of the risk associated with asylum claimants, I believe that
this policy does not square with the circumstances surrounding
Guam's visa waiver program. Guam is firmly centered in the Asian
air traffic market - the world's most dynamic and profitable.
Guam's unique position in this regard argues for a different
policy in favor of shared private and public responsibility.
Taiwan's assistance in this regard cannot be discounted.
Guam's successful track record with regard to *the visa waiver
program argues in favor of its continued expansion. Although the
problem of asylum seekers from the People's Republic of China is
serious, it is not insurmountable and can be met with appropriate
precautions. Taiwan's problem with passports stems from the
political uncertainties in the People's Republic of China coupled
with its proximity to south China. By limiting the availability
of the visa waiver to a strictly controlled point of origin and
coupling it with sufficient fiscal protections, the United States
can be provided with the security it requires while allowing Guam
room to grow.
Mr. Secretary, Guam can be the linchpin to America's presence
in the Pacific, a model for this still troubled region. It is in
recognition of this potential that I seek your assistance.
Sincere 1

/Member 'of Congress


DEPARTMENT OF STATE
EXECUTIVE SECRETARIAT
DATE:.
DATE
^r
ACTION SLIP INS7SBY:

(Classification/Do wngrader)

ACTION ASSIGNED TO: x A-


v 6
9412103
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REMARKS/SPECIAL INSTRUCTIONS:
r\
CLEAR WITH:
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./S S/S-O CA L USUN/W
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D XX s/S-S CPK M/FS1 ACDA
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CABCX HJKL»*»G* April 18, 1994

UMOWTT LlAOER

«. WtD
UKOTTY HOO» LtAOf«
The Honorable Warren M. Christopher
Secretary of State of the United States
Department of State
FIRST DlSTRC'
KXCUON 2201 C Street, NW
SECOND OISIRCI Washington, D.C. 20520
U UATVLAAA

Dear Mr. Secretary:


KX^TM DISTRICT
•OSAiVX BWUt I have the honor to transmit herewith Senate
JOt

SOOM
Resolution No. 205, S.D. 1, which was this day adopted
•o *tn
SfVtNlH DlSTFt by the Senate of the Seventeenth Legislature of the
U«M FtnNM

FJGMTM DIS1RCT
DOM*» «cfl>
State of Hawaii, Regular Session of 1994.
MMTH BSTRXTT

MHTIUNO KOM'

T. David Woo, Jr.


Clerk of the Senate
MQAWAN MI7UCUC»«

NTH DISTRICT
•IV Enclosure
fLOSf

GHTtfN
HAND* "MASt

BC"
MAKASAIO

TWEN'V StCCtO !>S»H;-1


Ct<W.D 1 WA&'NC

1WEN*-. TMiRC t'STR.C'


U«[ McC»»lNf •

FOU" - SIS'". 1
f 1 I «W

C^'.t C-EB-
' O*vO WOO

- * V'
STANDING COMMITTEE REPORT NO

Honolulu,, Hawaii '- -


APR 15 W , 1994

Honorable Norman Mizuguchi


President of the Senate
Seventeenth State Legislature
Regular Session of 1934
State of Hawaii
Sir:
RE: S.R. No. 205
Your Committees on Tourism and Recreation and Judiciary, to
which was referred S.R. No. 205 entitled:
"SENATE RESOLUTION REQUESTING ESTABLISHMENT OF A VISA WAIVER
PROGRAM FOR HAWAII SIMILAR TO THAT WHICH PERTAINS TO ALIENS
ENTERING GUAM,"
beg leave to report as follows:
The purpose of this Resolution is to request the Hawaii's
Attorney General to establish a visa waiver program for Hawaii
similar to that which pertains to aliens entering Guam.
Your Committees find that present federal law prohibits
certain Asian visitors to enter Hawaii without a visa, whereas
these same visitors may enter Guam without a visa. Your
Committees further find that the visa waiver program operating in
Guam could easily be implemented in Hawaii and thereby encourage
certain foreign travellers to visit Hawaii.
Testimony in support of this measure was submitted by the
Department of Business, Economic Development, and Tourism and the
Hawaii Visitors Bureau.
Your Committees have amended this Resolution by indicating
that the target groups to receive visa waivers would be
Singaporeans and Malaysians.
Your Committees on Tourism and Recreation and Judiciary
concur with the intent and purpose of S.R. No. 205, as amended

SSCR SR205 SD1 SMA FFS1964


STANDING COMMITTEE REPORT NO.
Page 2

herein, and recommend its adoption in the form attached hereto as


S.R. No. 205, S.D. 1.
Respectfully submitted,

COMMITTEE ON JUDICIARY COMMITTEE ON TOURISM AND


RECREATION

REY OR&ULTY, JOE TANAKA,

MATT MATSUNAGA', Vice QKfeir MALAMA SOLOMON, Vice Chair

ROSALYN &&KER, Member

THONY yf. 'U. CHANG, M^Thber LEHUA FERNANDES SALLING,


Menber

E, Member MILTON HOLT, Member

ANN KOBAYASHr> Member DONNA R. IKEDA, Member

ANDREW LEVIN, Member N KOBAYASHU Me/jfcer

SSCR SR205 SD1 SMA RFS1964


STANDING COMMITTEE REPORT NO.
Page 3

TSUURA, Member BERTRAND KOBAYASHffJ Member

STAN KOKI, Member —T5ENNIS M. NAKASATO, Member

MARY

SSCR SR205 SD1 SMA RFS1964


r

THE SENATE
SEVENTEENTH LEGISLATURE, 1994
S.R.NO. 205
S.D. 1
STATE OF HAWAII

SENATE RESOLUTION
REQUESTING ESTABLISHMENT OF A VISA WAIVER PROGRAM FOR HAWAII
SIMILAR TO THAT WHICH PERTAINS TO ALIENS ENTERING GUAM.

1 WHEREAS, obtaining a visa to visit Hawaii is a major


2 impediment to visitation by alien tourists; and
3
4 WHEREAS, a program of visa waiver for tourists visiting
5 Hawaii similar to that which pertains to Guam (Sec. 14,
6 P.L. 99-396) could result in a very large increase in tourist
7 arrivals in Hawaii; and
8
9 WHEREAS, the waiver program in effect for Guam provides
10 that no visa is required of an alien visiting for business or
11 pleasure for a period not to exceed fifteen days and having a
12 round trip non-refundable non-transferable airline ticket; and
13
14 WHEREAS, United States Senator Daniel Akaka has
15 introduced legislation in Congress to provide for such a visa
16 waiver program specifically for Singaporeans and Malaysians
17 visiting Hawaii; now, therefore,
18
19 BE IT RESOLVED by the Senate of the Seventeenth
20 Legislature of the State of Hawaii, Regular Session of 1994,
21 that the Attorney General is requested to undertake a project
22 together with the Director of Business, Economic Development,
23 and Tourism, Hawaii's Congressional Delegation, relevant state
24 and federal legislative committees, the United States
25 Department of State, the tourist industry, and organizations
26 and individuals active in the field of federal Immigration law
27 and policy, to establish a visa waiver program for Hawaii
28 similar to that which pertains to aliens entering Guam; and
29
30 BE IT FURTHER RESOLVED that the Attorney General is
31 requested to report to the Legislature, no later than twenty
32 days prior to the convening of the 1995 Regular Session, on
33 progress made pursuant to this Resolution; and
34

RFS1964 SR205 SD1 SMA


7/m:CABLE SENT TO SUO AT 52:QO HRS/DEE
ORIG ACTMEM TO OIS
COPIES TO: -~
S-2
..
United States Department of Mate
DONILON
D-2 Washington-. D. C. 2052O
P '93 til 14 ^,1:18
T LIMITED OFFICIAL -1 D ^
E
C
M ACTION MEMORANDUM July 7, 1993
S/P
S/S-2
s/s
S/S-S DI% 0 . The Secretary
EUR
CA
H
THROUGH: P - Mr. Tarnoff • * 1
RF/baa EUR: EUR - Alexander Vershbow, Acting /r»
CA - Mary A. Ryap^^* •—
SUBJECT: Response to FM Durao Barroso's request that
Portugal be included in the visa waiver program

During his meeting with you in June 10, Portuguese


f^ V • I «3 II J

Foreign Minister Durao Barr^e" asked that his country be


included in the visa waiver agreed to look into
the issue and to respond
The GOP has raised this issue with us on several occasions,
most recently during the seventh round of Lajes base talks in
...Lisbon on June 25. The Portuguese negotiator repeated the GOP
case along familiar lines and said that, in addition to local
public opinion, the foreign minister was taking a personal
interest in this matter, while we would like to be supportive,
we cannot offer a positive response since the visa refusal rate
in Portugal — which has declined sharply recently -- still
continues to be above that mandated by law. The refusal rate
in Portugal is approximately 4.6 percent versus the mandated
maximum of 2 percent.
The attached letter to Durao Barroso states that we are
sympathetic to Portugal's request but that our flexibility is
constrained by legislative requirements. We have also taken
this opportunity to comment on Lajes base talks.

RECOMMENDATION
That you *prove the attached message to Portugese Foreign
Minister Dur Baijoso.
(i*/*X
Approve: Disapprove:
Attachment:
Suggested respfonse to Durao Barroso

LIMITED OFFICIAL USE


S.R. NO. 205
S.D. 1

1 BE IT FURTHER RESOLVED that certified copies of this


2 Resolution be transmitted to the Attorney General, each member
3 of Hawaii's Congressional Delegation, the Secretary of State of
4 the United States, the Director of Business, Economic
5 Development, and Tourism, and the President of the Hawaii
6 Visitors Bureau.

I hereby certify that th« foregoing if •


and c^r.cr* cory o' Senate Resolution No.2-QJJ—SD1
which w*i d*ily adopted by.the S«njte of th« State
... ..
of n«w«n on
4-18-9^

RFS1964 SR205 SD1 SMA


Art ion memo to thf Secretary:_ Message tQ Portugal's FM

Dr a f. ted : EUR/WE : NAhmed '<-'-


SEWE-10825 7-1419 7/1/93

C lea red:EUR:JBindenage 1
CA/VO: JGarner.^ (j
H:DCurran
OUTGOING TELEGRAM

D E P A R T M E N T OF STATE

LIHITED OFFICIAL USE

EUR/UE:N£HMED, CA/VO:JGARNER:NA
07/01/^3 7-1M11 S E U E 1DSM7
THE SECRETARY

EUR: A V E R S H B O k 1 CA:MARY4N
H:DCURRAN " S/S:RLUlLSON
S/S-0:SEISENBRAUN

PRIORITY LISBON

ROUTINE PONTA DELC.ADA. SECfEF

E-0. lE35b: N/A

TAGS: CVIS, PREL, PO

SUBJECT: H E S S A G E FROT, T H E S t C R E T t R I T O FH T U R A C B A R R O S O

REF: S E C T O 11DEH

1- EMBASSY LISBON SHOULD DELIVER HESSAGC IN PARA H


THE SECRETARY TO FOREIGN MINISTER DURiC B i R R O S O AT THE
EARLIEST OPPORTUNITY. THERE WILL BE NO/NO SIGNED O R I G I N A L
2- BEGIN TEXT:
DEAR MR. MINISTER:
IT WAS A PLEASURE TO MEET WITH YOU IN ATHENS RECENTLY AND
I APPRECIATED THE OPPORTUNITY TO REVIEW ISSUES OF MUTUAL
INTEREST. IT IS PARTICULARLY GRATIFYING TO LEARN THAT THE
LATEST ROUND OF LAJES BASE NEGOTIATIONS ARE PROCEEDING
SMOOTHLY. GIVEN THE CONSTRUCTIVE SPIRIT IN UHICH THESE
TALKS ARE BEING HELD, OUR TUO SIDES SHOULD BE ABLE TO
RESOLVE THE FEU OUTSTANDING ISSUES EXPEDITIOUSLY .
REGARDING YOUR REQUEST THAT PORTUGAL BE INCLUDED IN THE
VISA UAIVER PROGRAM, LET ME SAY THAT I AM SENSITIVE TO THE

LIMITED O F F I C I A L USE
LIMITED OFFICIAL USE

POINTS YOU RAISED UITH HE AND THE SPIKIT IN WHICH THEY


UERE O F F E R E D - REGRETTABLY, THE UNITED STATES CONGRESS-
STATUTORY CONDITIONS GOVERNING THE P R O G R A M C O N S I D E R A B L Y
LIHIT OUR ABILITY TO OFFER A M O R E POSITIVE RESPONSE AT
THIS TIME.

IN ORDER FOR A COUNTRY TO BE CONSIDERED FOR


INCLUSION IN THE PILOT P R O G R A M , THE LAU REQUIRES THAT THE
COUNTRY'S NATIONALS HAVE AN A V E R A G E VISITOR VISA REFUSAL
RATE OF LESS THAN TUO PERCENT FOR THE PREVIOUS T W O - Y E A R
PERIOD. AND LESS THAN 5 - 5 PERCENT FOR ANY ONE OF THOSE
Y E A R S - UNFORTUNATELY, THE RATES FOR PORTUGAL DURING THE
PAST TUO Y E A R S EXCEEDED THE A C C E P T A B L E LIMIT.

UE H A V E NO DISCRETION, ABSENT A C H A N G E IN THE


C O N G R E S S I O N A L STATUTE, TO ALTER OR U A I v E THIS R E Q U I R E M E N T
FOR ANY COUNTRY. I NOTE* H O W E V E R - THAT THE R E F U S A L R A T E
FOR PORTUGUESE CITIZENS HAS BEEN DECLINING IN RECENT Y E A R S
AND FELL TO M.bS PERCENT IN 1^5- IF THIS
TREND CONTINUES, THE RATE COULD F A L L TO A STATUTORIH
ACCEPTABLE L E V E L , THUS ALLOWING PORTUGAL TO BECOME
ELIGIBLE FOR THE VISA W A I V E R P R O G R A M .

UHILE LEGISLATIVE CONSTRAINTS M A K E IT IMPOSSIBLE FOR ME TO


OFFER A POSITIVE RESPONSE, SHOULD C I R C U M S T A N C E S C H A N G E , UE
WILL GIVE YOUR REQUEST OUR PROMPT AND SYMPATHETIC
CONSIDERATION-

I LOOK F O R W A R D TO W O R K I N G WITH YOU IN THE Y E A R S TO C O M L -

SINCERELY,

/S/

W A R R E N CHRISTOPHER

HIS EXCELLENCY
JOSE MANUEL D U R A O B A R R O S O
MINISTER OF FOREIGN AFFAIRS OF PORTUGAL
LISBON \D OFFICIAL USE
WITHDRAWAL NOTICE

RG: 148 Exposition, Anniversary, and Memorial Commissions


SERIES: 9/11 Commission, Team 5
NND PROJECT NUMBER: 51630 FOIA CASE NUMBER: 30768

WITHDRAWAL DATE: 09/24/2008

BOX: 00025 FOLDER: 0003 TAB: 33 DOC ID: 31198799

COPIES: 1 PAGES: 4

The item identified below has been withdrawn from this file:

FOLDER TITLE: DOS Documents - NIV [3 of 5]

DOCUMENT DATE: 08/05/1994 DOCUMENT TYPE: Letter

FROM: Warren Christopher

TO: Janet Reno

SUBJECT: Visa Waiver Pilot Program, List of Countries Not Recommended

This document has been withdrawn for the following reason(s):


9/11 Classified Information

WITHDRAWAL NOTICE
WITHDRAWAL NOTICE

RG: 148 Exposition, Anniversary, and Memorial Commissions


SERIES: 9/11 Commission, Team 5
NND PROJECT NUMBER: 51630 FOIA CASE NUMBER: 30768

WITHDRAWAL DATE: 09/24/2008

BOX: 00025 FOLDER: 0003 TAB: 34 DOC ID: 31198806

COPIES: 1 PAGES: 4

The item identified below has been withdrawn from this file:

FOLDER TITLE: DOS Documents - NIV [3 of 5]

DOCUMENT DATE: 08/03/1994 DOCUMENT TYPE: Memorandum

FROM: Mary Ryan, CA

TO: The Secretary

SUBJECT: Visa Waiver Pilot Program

This document has been withdrawn for the following reason(s):


9/11 Classified Information

WITHDRAWAL NOTICE
WITHDRAWAL NOTICE

RG: 148 Exposition, Anniversary, and Memorial Commissions


SERIES: 9/11 Commission, Team 5
NND PROJECT NUMBER: 51630 FOIA CASE NUMBER: 30768

WITHDRAWAL DATE: 09/24/2008

BOX: 00025 FOLDER: 0003 TAB: 35 DOC ID: 31198807

COPIES: 1 PAGES: 4

The item identified below has been withdrawn from this file:

FOLDER TITLE: DOS Documents - NIV [3 of 5]

DOCUMENT DATE: 08/09/1994 DOCUMENT TYPE: Memorandum

FROM: Richard Moose

TO: The Secretary

SUBJECT: Memorandum for the Secretary

This document has been withdrawn for the following reason(s):


9/11 Classified Information

WITHDRAWAL NOTICE
DTSTRIBOTIQg LIST

S/S: 9420614

FOR THE SYSTEM DIST DETERMINED BY? KB


EXDIS MNR
NOD IS MRL .
PERSONNEL CHANNEL , ^ CB (L^>
PRINCIPALS CHANNEL \S LSG
NOT FOR THE SYSTEM WLN

COPIES TO:

AF EB CA OES OTHER
Pi
TD ARA H S/RPP OIG ^S/S^
EAP INR DS PA S/S-IRM/RMD
V
E
EUR

NEA
IO

DSUN/W
DRL

INM
PRM S/S-S

S/CPR S/S-EX
T SA S/SAH M/DGP S/CT S/S-0
S/NIS PM M/FSI L
G SMEC S/P A ACDA
^
S/DG AID

MEMO SENT THRU INITIAL DIST DONE BY i/f^ /DATE ///


COMPLETED ACTION MEMO REDISTRIBUTED BY (J f
/DATE

08/94
Ori«j- Itrs. sent to "H" to be handcarried 9421966
to the Hill, 9/27. Receipt *V 2590467.

S THE SECRETARY OF STATE

?D WASH.NGTON
D-2 - -

•« SET 27 * •- 27. 1994

Dear Senator Kennedy:


s/s~s We seek your help in ensuring expeditious and favorable
CA Senate action on the Immigration and Nationality Technical
H Corrections Act of 1994, recently passed by the House as
L H.R. 783. This bill contains two provisions of critical
S/RPP importance to the Department of State. Section 210 authorizes
M/LEG extension of the visa waiver pilot program, and Section 101 will
Wiis/rds correct a long-standing inequity between the rights of men and
women to transmit U.S. citizenship to children born abroad
before May 24, 1934 .
The visa waiver pilot program has been invaluable both in
eliminating the unwarranted expenditure of public resources and
in promoting the U.S. travel and tourism industries which are
our nation's top foreign exchange earners. Forty-three percent
of all travelers to the United States enter under the visa
waiver pilot program; . near iy 1C million visitors will enter in
FY 1994 alone. Should the program be allowed to lapse, the
effect on the travel industry would be devastating. Hundreds
of thousands of visitors from 21 countries comprising our
closest allies and most active trading partners would encounter
delays and find it a much more time-consuming process to travel
to the United States.
Moreover, resuming visitor visa issuance in program
countries would come at a significant cost. Based or. a 1991
consular study, it would cost SI 53, 294 , 997 to issue visas to
visitors who entered with visa wa:vers in FY 92. There would
also be indirect costs such as diverting resources from other
important embassy functions, including American citizen
services. H.R. 783 does not make the program permanent but
will give us an urgently needed extension. Both the Department
of State and the Immigration and Naturalization Service are
eager to work with the Congress on developing a permanent
program that addresses the addition and deletion of countries.

The Honorable
Edward M. Kennedy, Chairman,
Subcommittee on Immigration and Refugee Affairs,
Committee on the Judiciary,
United States Senate.
-2-

Let me also underscore the Department's continuing interest


in Section 101 of H.R. 783. This provisioo^wpuld retroactively
abolish the gender differentiation in an old law that permitted
U.S. citizen fathers, but not U.S. citizen mothers, to transmit
U.S. citizenship to their children born abroad. In Hauchope v.
Department of State. 985 F.2d 1407 (9th Cir. 1993), the Ninth
Circuit found this law to be unconstitutional and chose, as a
remedy, to extend its grant of citizenship to the plaintiffs,
both children of U.S. citizen mothers. The Wauchope case thus
created a non-uniform citizenship law with regard to children
born abroad before May 24, 1934, to a U.S. citizen mother and
an alien father. This result is particularly troubling in
light of the Constitution's Article I, S B , Cl. 4 command that
Congress establish a uniform rule regarding the citizenship of
those not born in the United States.
In view of the importance of Sections 210 and 101 to the
Department of State, I would be grateful for your help in
expediting passage of this legislation.
Sincerely,

Warrer. Christopher
THE SECRETARY OF STATE
WASHINGTON

September 27, 1994

Dear Senator Simpson:


We seek your.help in ensuring expeditious and favorable
Senate action on the Immigration and Nationality Technical
Corrections Act of 1994, recently passed by the House as
H.R. "783. This bill contains two provisions of critical
importance to the Department of State. Section 210 authorizes
extension of the visa waiver pilot program and Section 101 will
correct a long-standing inequity between the rights of men and
women to transmit U.S. citizenship to children born abroad
before May 24, 1934.
The visa waiver pilot program has been invaluable both in
eliminating the unwarranted expenditure of public resources and
in promoting the U.S. travel and tourisr. industries which are
our nation's top foreign exchange earners. Forty-three percent
of all travelers to the United States enter under the visa
waiver pilot program; nearly 10 million visitors will enter in
FY 1994 alone. Should the program be allowed to lapse, the
effect on the travel industry would be devastating. Hundreds
of thousands of visitors from 22 countries comprising our "'
closest allies and most active trading partners would encounter
delays and find it a much mere time-consuming process to travel
to the United States.
Moreover, resuming visitor visa issuance in program
countries would come at a significant cost. Based or. a 1991
consular study, it wojld cost 5153,294,99"? to issue visas to
visitors who entered with visa waivers in FY 92. There would
also be indirect costs such as diverting resources from other
important embassy functions, including American citizen
services. H.R. 783 does not make the program permanent but
will give us an urgently needed extension. Both the Department
of State and the Immigration and Naturalization Service are
eager to work with the Congress on developing a permanent
program that addresses the addition and deletion of countries.

The Honorable
Alan K. Simpson,
United States Senate.
-2-

Let ire also underscore the Department's continuing interest


in Section 101 of H.R. 783. This provision_would retroactively
abolish the gender differentiation in an old law that permitted
U.S. citizen fathers, but not U.S. citizen mothers, to transmit
U.S. citizenship to their children born abroad. In Wauchope v.
Department of State. 985 F.2d 1407 (9th Cir. 1993), the Ninth
Circuit found this law to be unconstitutional and chose, as a
remedy, to extend its grant of citizenship to the plaintiffs,
both children of U.S. citizen mothers. The Wauchope case thus
created a non-uniforrr. citizenship law with regard to children
born abroad before May 24, 1934, to a U.S. citizen mother and
an alien father. This result is particularly troubling in
light of the Constitution's Axticle I, S B, Cl. 4 command that
Congress establish a uniform rule regarding the citizenship of
those not born in the United States.
In view of the importance of Sections 210 ana 101 to the
Department of State, I would be grateful for your help in
expediting passage of this legislation.
Sincerely,

Warren Christopher
9421966
United Slates Department of State

Washington. D. C. 20520

SEP 2 6 1994
ACTION MEMORANDUM
UNCLASSIFIED ^^

TO: The_Secretary
FROM: CA - Mary A. K/au^ ^.
H - Wendy R. Shermari^

SUBJECT: Support for Consular Efficiency B i l l

ISSUE FOR DECISION:

Whether to sign letters to Senator Kennedy and Senator


Simpson asking their cooperation in passing H.R. 783.

ESSENTIAL FACTORS:

We urgently need to ensure that a long-terrri extension of


the visa waiver pilot program is passed. H.R. 783, which
passed the House Septerr-.ber 20, contains a two-year extension of
the program. It also contains other c r u c i a l p r o v i s i o n s on
citizenship and n a t i o n a l i t y .

Senator Kennedy supports the b i l l because it contains a


provision that allows citizens of Ireland to q u a l i f y for the
visa waiver program. Senator Simpson, however, is less
enthusiastic about expanding i m m g r a t i o n provisions but is not
opposed to extending the waiver program. A letter from you
could make the difference by emphasiring how c r i t i c a l the
passage of this bill is to the Administration.
RECOMMENDATION:

That you sign the attached letters.

Approve V X*^ V TfUM ^ Disapprove

Tab 1 - Letter to Senator Kennedy


Tab 2 - Letter to Senator Simpson
DEPARTMENT OF STATE
EXECUTIVE SECRETARIAT DATE:.
ACTION SLIP
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EXT: 7-8062/8063/S339/8338/5348/5349ft804/5805
(Office of % Attorney (ieneral
. B. (C. 20530 —
October 20, 1994

The Honorable Warren Christopher


The Secretary of State
Washington, D.C. 20520
Dear Mr. Secretary:
I apologize for the delay in responding to your
August 5, 1994, letter. As you know, H.R. 783, which extends
the Visa Waiver Pilot Program through September 30, 1996,
passed both houses of Congress and new awaits the President's
signature .
I am pleased that our staffs were able to work together to
secure the enactment of this bill and to ensure the appropriate
extension of this program which is vital to American tourism.
Sincerely,

Janet Reno
9426164

V3131660 DEPARTMENT OF STATE


nrn - WASHINGTON

December 5, 1994

DIST:
s Dear Madam Attorney General:
TD
D Thank you for your letter of November 4, 1994, to Secretary
p Christopher concerning the removal of Andorra, Austria, Italy,
E and Monaco from the list of countries whose nationals may
T benefit from the waiver of the visitor visa requirement under
M the Visa Waiver Pilot Program (VWPP). We fully share your
G concern about illegal immigration and want to assure you that
s/p the Department of State will continue to do everything in its
power to ensure that visas are not issued to those who are not
S/S-S entitled to them. Countries with excessive rates of refusal at
EUR port of entry and excessive numbers of nationals who stay too
CA long in the United States should not be permitted to
H participate in the visa waiver program. If the four countries
L identified in your letter are no longer eligible, we should
RF:rw take appropriate steps to address this problem.
I understand, however, that there is a significant question
whether these countries should be terminated that arises in
part from the program's statutory requirements and the currency
and quality of the data available about pot t-of-entry refusals
and overstayers. Assistant Secretary for Consular Affairs
Mary A. Ryan also informs me that, earlier this year, members
of her staff worked with members of Commissioner Meissner's
staff to formulate proposed amendments to the VWPP that would
address some of these issues and ensure an orderly process for
dropping countries from the program. Although these amendments
were not enacted, we should seriously consider continuing the
Administration's dialogue with Congress on this issue in the
new session.

The Honorable
Janet Reno,
Attorney General
- 2-

I am therefore asking Ms. Ryan to continue-working with


Ms. Meissner on the legislative issues, to consult with the new
Congress, and to review with INS the status of the four
countries you have identified in light of more current INS data
and their relationship to the statutory requirements for
continuing the present program. We can then decide how best to
proceed.

Sincerely,

albott
Acting Secretary
- 3 -

Drafted: *A
L/CA:CWBrow&y-l 1/3 0/94 SELCA 2058

cleared:

CA:MARyan
CArDDillard
EUR/AGS :DCavin
EUR/WE : v^,
of % Attorney (irncral
, 13. (1L 20530

November A, 1994

The Honorable Warren Christopher


Secretary of State
Washington, DC 20520
Dear Mr. Secretary:
As required by the provisions of the Immigration Act of 1990
(IMMACT 90), the Immigration and Naturalization Service (INS) is
preparing to issue a report to the Congress on the Visa Waiver
Pilot Program (VWPP). In that report, INS will note that
approximately 2.9, 2.29, 2.22 and 2.24 percent of nationals of
the countries of Andorra, Austria, Italy, and Monaco,
respectively, who sought admission to the United States during
fiscal year 1992, were refused admission, withdrew their
application for admission, or violated the terms of their
admission.
Section 217 (c) (3) (A) of the Immigration and Nationality Act
specifies the criteria for continuing qualification as a VWPP
country. Continued designation is precluded when the sum of:
the total number of nationals of that country who were
excluded from admission or withdrew their application
for admission during such previous fiscal year as a
nonimmigrant visitor, and
the total number of nationals of that country who were
"-• admitted as nonimmigrant visitors during such previous
fiscal year and who violated the terms of such
admission,

is more than 2 percent of the total number of nationals of that


country who applied for admission as nonimmigrant visitors during
such previous fiscal year.
Therefore, Andorra, Austria, Italy, and Monaco are no longer
eligible for continued designation as Visa Waiver Pilot Program
countries. To effect the removal of these countries from the
list of designated VWPP countries, rules must be published by
both the Attorney General and the Secretary of State in the
-2-

State in the Federal Register. I have directed the Commissioner


of INS to publish the rule on my behalf. I request that you
direct the appropriate section of the Department of State to do
the same.

Sincerely,

Janet Reno
VISA WAIVER PROGRAM FOR CERTAIN VISITORS

SEC. 217 [8 U.S.C. 1187] (a). ESTABLISHMENT OF PROGRAM.--The


Attorney General and the Secretary of State are authorized to
establish a program (hereinafter in this section referred to as
the "program") under which the requirement of paragraph .
(7)(B)(i)(II) of 8 U.S.C. 1182 (a) may be waived by the Attorney
General and the Secretary of State, acting jointly and in
accordance with this section, in the case of an alien who meets
the following requirements:
(1) SEEKING ENTRY AS A VISITOR FOR 90 DAYS OR LESS.--
The alien is applying for admission as a nonimmigrant
visitor (as defined in section 101(a)(15)(B)) for a
period not exceeding 90 days.
(2) NATIONAL OF A DESIGNATED COUNTRY.--The alien is a
national of a designated visa waiver program country.
(3) ENTRY INTO THE UNITED STATES.--If arriving by sea
or air, the alien arrives at the port of entry into th*>
United States on a carrier which has entered into an
agreement with the Service (unless this requirement is
waived pursuant to regulations .promulgated by the
Attorney General under this section.)
(4), NOT A SAFETY THREAT.--The alien has been
determined not to represent a threat to the welfare,
health, safety, or security of the United States.
(5) NO PREVIOUS VIOLATION.--If the alien has
previously been admitted to the United States, the
alien must not have failed to comply with the
conditions of any previous admission.
(6) OTHERWISE ADMISSIBLE.--The alien is otherwise
admissible to the United States.
(b) EXCLUSION AND DEPORTATION OF APPLICANTS FOR ADMISSION AND
ALIENS ADMITTED UNDER THE VISA WAIVER PROGRAM.--

(1) EXCLUSION.--
(A) Notwithstanding any other provision of law, an
immigration officer's determination that an applicant
for admission under this section is not clearly and
beyond a doubt entitled to land shall constitute a
final order of exclusion and deportation, enforceable
pursuant to section 237 and such regulations as the
Attorney General may prescribe. Pending such a
determination, the Attorney General may maintain such
applicant in custody or may in the exercise of
discretion refuse admission and permit euch applicant
to withdraw the application for admission.
IB) The provisions of section 236, except subsection
(e), shall not apply to an applicant Cor admission
under this section or to an order issued under this
paragraph.
(2) DEPORTATION.--
\) Notwithstanding any other provisionof law,an

immigration officer's determination chat an alien


admitted to-the United States with a waiver under this
section is deportable shall constitute a final order
of deportation enforceable pursuant to section 243 and
such regulations as the Attorney General may prescribe.
Pending such determination, the Attorney General may
maintain such alien in custody.
IB) The provisions of section 242, except subsections
(a) (2)(A) and (f), including subsection (a)(2)(B),
shall not apply to an alien admitted to the United
States with a waiver under this section or to an order
issued under this paragraph.
(3) REVIEW.--Notwithstanding any other provision of law or
the failure of a carrier to provide tha notice described in
subsection (g)(1)(D), an alien who is an applicant for
admission to the United States or was admitted to the United
States with a waiver under this section shall not be
entitled to contest, subject to paragraph 14} , any action
for exclusion or deportation against the alien, or to review
or appeal of an immigration officer's determination of
excludability or deportability under paragraphs (1) or (2).
(4) ASYLUM.--An alien who is an applicant for admission to
the United States or is admitted to the United States with a
waiver under this section may apply for asylum as provided
in section 208 of the Act.
(5) TREATMENT OF NATIONALS OP VISA WAIVER COUNTRIES WHO ARE
APPLICANTS FOR ADMISSION.--An alien applicant for admission
who- -
(A) ia a national of a visa waiver program country or
claims to be a national of a visa waiver program
country, and
(8) is not in possession of a valid visa, shall be
considered to h*» an applicant for admission under this
section.
(r) INITIAL DESIGNATION OP VISA WAIVER PROGRAM COUNTRIES.--
(1) IN GENERAL.--The Attorney General and the Secretary of
State acting jointly may designate any country as either a
permanent program country or a probationary program country
OB U 94 18:21 tJ2u2 514 8 3 4 5 HO INS-1>C 2)nrn

if Chat country meets the following requirements, applicable


to both programs, as well as the requirements of the
specific program to which designated:
(A) MACHINE READABLE PASSPORT PROGRAM. - -The
of the country issues, or certifies that it will begin
issuing within five calendar 'years of designation,
machine readable passports to its citirer.s.
(B) LAW ENFORCEMENT INTERESTS .-- The Attorney General
determines that United States law enforcement interests
would not be compromised by the designation of the
country.
(C) LOW VIOLATION RATE.--

(i) the total o£ the number of nationals of that


country who were excluded from admission or withdrew
their application for admission during the most recent
fiscal year for which data is available, and
(ii) the total number of nationals of that country
who were admitted aa nonimmigrant visitors during such
previous fiscal year and who violated the terms of such
admission,
was less than 2 percent of the total number of
nationals of that country who applied for admission as
nonimmigrant visitors during such previous fiscal year.
(2) PERMANENT PROGRAM.- -A country may be designated as a
permanent program country if the following requirements in
addition to those in paragraph (1) above are met:
(A) LOW NONIMMIGRANT VISA REFUSAL RATE FOR THE
PREVIOUS 2 YEAR PERIOD. --The average number of refusals
of nonimmigrant visitor visas for nationals of that
country during the two previous full fiscal years was
less than 2.0 percent of the total number of
nonimmigrant visitor visas for nationals of that
country which were granted or refused during those
years .
(B) LOW NONIMMIGRANT VISA REFUSAL RATE FOR SACK OP THB
PREVIOUS 2 YEAR PERIOD. --The number of refusals of
nonimmigrant visitor visas for nationals of that
country during each of the two previous full fiscal
years was less than 2.5 percent of the total number of
nonimmigrant visitor visas for nationals of that
country which were granted or refused during each year.
(3) PROBATIONARY PROGRAM.- -A country which was not
previously designated as a permanent program country may not
be designated as a probationary program country unless the
1^1'in 5

'ollowing requirements in addition to those in paragraph (1)


bova *r« mat:
(A) LOW NONIMMIGRANT VISA REFUSAL RATE FOR THE
PREVIOUS 2 YEAR PERIOD.--The average number of refusals
of nonimmigrant visitor visas for nationals of. that
country during the two previous full fiscal years was
less than 3.5 percent of the total number of
nonimmigrant visitor visas for nationals of that
country which were granted or refused during those
years.
(B) LOW NONIMMIGRANT VISA REFUSAL RATE FOR THE
PREVIOUS YEAR.--The number or refusals of nonimmigrant
visitor visas Cor nationals of that country during the
previous full fiscal year was less than 3.0 percent of
the total number of nonimmigrant visitor visas for
nationals of that country which were granted or refused
during that year.
Designation as a probationary program country aha.ll be for a
period of time not to exceed three fiscal years not inclusive of
the year of designation. No country may be redesignated as a
probationary program country unless two full fiscal years have
elapsed since the termination of the previous period of
designation in the probationary program.
(d) TERMINATION OF DESIGNATION.--Information concerning
arrivals, departures, refusals, enforcement actions, and
violation of status by nonimmigrant visitors shall be obtained
from the automated data arrival and departure control system 3"rf
any other system(s) the Attorney General may designate.
(1) Permanent Program. -- 'upon determination by the
Attorney General that a country's violation rate, as
determined pursuant to subsection (c) CD (C) of this section,
is 2 percent or more, the Secretary of State and the
Attorney General, acting jointly, may:
(A) terminate the country's designation at the start of
the fiscal year following a full fiscal year after the
Attorney General's determination, or
(B) designate the country as a country designated in
the probationary program, notwithstanding the
requirements of subsection (c)(3) of this section, for
a period not to exceed three fiscal years, not
inclusive of the year in which designated.
(2) Probationary Program.--Upon determination by the
Attorney General that a country designated as a probationary
program country has not met the requirement of paragraph
(e), the Attorney General and Secretary of State, acting
jointly, shall exercise the authority conferred by paragraph
09 14 94 16:22 O202 514 *345 HQI\S-I>C

(C) and terminate th* designation of the country in the


probationary program.
(3) Upon expiration of designator, in either prcgrar., ere
Secretary of State shall begin issuing visas at the start of
the fiscal year following a"full fiscal year after the
Attorney General's notification. Until that date, nationals
of the country affected may continue to have the visa
requirement for admission waived, as authorized by this
section.
(4) The provisions of this paragraph shall not apply unless
the total number of nationals of a designated country, as
described in subsection (c) (1)(C), are in excess of ICO
violators.
(e) DESIGNATION OP A PROBATIONARY COUNTRY AS A PERMANENT PROGRAM
COUNTRY.--A probationary country may be designated by the
Attorney General and the Secretary of State, acting jointly, as a
permanent program country: if the violation rate as described in
subsection (c)(l)(C) has not been 2 percent or more for the first
full fiscal year after designation in the probationary program.
(f) AUTHORITY. -Notwithstanding any other provision of this
section, the Attorney General and the Secretary of State, acting
jointly, may for any reason (including national security or
failure to meet any other requirement of this section) refrain
from waiving the visa requirement in respect to nationals of any
country which may otherwise qualify for designation or may, at
any time, rescind any waiver of visa requirements under section
21*7. or designation previously granted under this section.
(g) CARRIER AGREEMENTS.--
(1) IN GENERAL.--The agreement referred to in subsection
(a)(3) is an agreement between a carrier and the
Commissioner under which the carrier agrees, in
consideration of the waiver of the visa requirement with
respect to a nonimmigrant visitor under either the permanent
or probationary program--
(A) to indemnify the United States against any costs
for the transportation of the nonimmigrant visitor from
the United States if the nonimmigrant visitor is
refused admission to the United States or violates the
terms under which they were admitted to the United
States.
(B) to submit daily to immigration officers any
immigration forms received with respect to nonimmigrant
visitors provided a waiver under this section and to
provide a departure manifest, as required by
regulations promulgated by the Attorney General, in
either an electronic or machine readable format.
su «« HOINS-P<-

(C) notwithstanding any other provision of law, to be


subject to the imposition of any applicable fines
resulting from the transporting into the United States
of a nonimmigrant visitor'.
(D) to provide passengers who are applicants Tor
admission to the United States under this section with
written'notification that they are not entitled to
contest or to any appeal or review under this Act of an
immigration officer's determination or excludability or
deportability under this section, except as related to
an application for asylum as provided for in paragraph
(b)(4), and that they will be excluded and deported
upon such a determination.
(E) to comply with any other condition as required by
regulations promulgated by the Attorney General.
(2) TERMINATION OP AGRSBMBNTS^. --The Attorney General may
terminate an agreement under paragraph (1) with five days
notice to the carrier for the carrier's failure to meet the
terms of such agreement. •' '*"-*

(3) APPLICABILITY.--No carrier, unless authorized pursuant


to regulations promulgated by the Attorney General, may
transport any alien who is an applicant for admission to the
United States under this section unless that carrier has
entered into an agreement with the Attorney General to do
so. Notwithstanding any other provision of law, any carrier
which transports such aliens without being signatory to such
an agreement is subject to the imposition of fines pursuant
to other sections of this Act or regulations promulgated by
the Attorney General.

(h) EFFECTIVE DATE.--The effective date of this section will be


six months from the date of enactment or that date upon which the
Attorney General and the Secretary of State, acting jointly,
promulgate regulations designating a country or countries for
either the permanent or probationary programs, whichever occurs
first. Dntil that date, the Visa Waiver Pilot Program (P.L. 101-
649, Nov. 29, 1990, 104 Stat. 5012)-remains in effect.

EXCLUSION OP ALIENS.--Section 235(b) of this Act is amended by


striking "in section 273 (d)," and inserting "in sections 217(a)
and 273(d),".
CLERICAL AMENDMENT.--The item in the table of contents of this
Act relating to section 217 is amended to read as follows:
"Sec. 217. Visa waiver program for certain visitors".

DRAFT Version 2.7 September 14, 1994 (4:17pm)


H:\...\rjhayB\vwpp\»«c2l7.ina
9426164/W

United States Department of Slate

Washington, D. C. 20520

December 1, 1994\l of Four Countries from t

ACTION MEMORANDUM »* \D &$ (V7

TO: The Acting Secretary


THROUGH: M - Mr . Moos
FROM: CA - Mary A.
SUBJECT:
Pilot Program

ISSUE FOR DECISION


Whether to agree to a request from the Attorney
General that four countries, including Italy and Austria,
be removed from the Visa Waiver Pilot Program (VWPP).
ESSENTIAL FACTORS
Section 217 of the INA establishes the Visa Waiver
Pilot Program under which visitors from certain countries
entering for less than 90 days may do so without visas.
There are 22 countries in the program, including Italy and
Austria.
The basic qualifying test for entry into the program
is a low visa refusal rate. There is also a qualifying
test for continuing in the program from year to year — a
low rate of refusals of entry and of violation of status
by visitors from the country. The law specifies that, if
the rate exceeds 2% in a year, the country must be dropped
for the next year. Conceptually, this requirement makes
sense, but it has been impossible to implement since the
Immigration and Naturalization Service (INS) cannot
collect, compile, and analyze the necessary statistical
data in time to take action as contemplated by the statute,

UNCLASSIFIED
IJNCIASSIFIED
-2-

The Attorney General's letter of November 4 (copy at


Tab 2) requesting that the Secretary agree to remove four
countries from the program is a classic example of this
problem. The Attorney General is citing statistics from
Fiscal Year 1992 as the basis for her request. Those
statistics, had they been available at the time, might
have formed a basis for removing the countries for Fiscal
Year 1993. But both FY 1993 and FY 1994 have come and
gone. Vie have no idea what the FY 93 or FY 94 statistics
might indicate about the four countries nor, we believe,
does INS. Also, ±here are many in Congress who doubt the
validity of INS statistics, in any event.
In addition, sudden removal of two major countries
such as Austria and Italy would create very grave policy
and operational problems for us. It would be impossible
to re-staff posts in Italy and Austria to cope with the
sudden avalanche of visa applications by travellers no
longer able to use the VWPP. Relations with both
countries would likely be damaged by the "insult" of being
dropped from the program, aggravated by our inability to
provide timely service to those forced to apply for visas.
Earlier this year, as we were working to get the VWPP
made permanent or, at least, extended, my staff and INS
.Commissioner Meissner's staff worked together to produce a
legislative proposal which would make the program
permanent, would amend the provision for removal of
countries to create a system we both could live with, and
make other technical changes desired by INS. A copy of
the legislative proposal is enclosed at Tab 3. Sadly, we
were unable to persuade the Congress to accept our
package. The program was extended for two years and a
probationary status was added, but no substantive changes
were made.
Making the visa waiver program permanent and
obtaining the substantive changes we agreed upon with INS
several months ago remains a top priority legislative item
for us. I believe that our reply to the Attorney General
should politely decline to act on the data she has cited
and invite her to join us in a continuing effort to
achieve the changes INS Commissioner Meissner and I agreed
upon. The proposed reply makes both points. While some
may argue that we are obstructing Justice's efforts to
control illegal aliens, there are both legal and program
management arguments for taking this position.

UNCLASSIFIED
-3-

Recomroendation
That you sign the letter to the Attorney General Reno
at Tab 1.
Approve t-^/ ->/S'/^cf ^X Disapprove

Attachments:
Tab 1 - Proposed reply.
Tab 2 - Letter from the Attorney General.
Tab 3 - Legislative proposal.
Removal of Four Countries from the Visa Waiver Pilot
Program
Drafted: CA/VO/LrCDScullyllI:cds <%_ L—
11/10/94 1844A X31184 D

Cleared: CA/VO:DDillard
CA/EX:METruitt
HrWNesbitt
L/CA:CBrown
EUR/AGS:DCavin
EUR/WE:ECosgrove
12/5/94
REO.STEREO:

FROM: DIRECTOR. S/S IR/4 RMD. 7512 n.S.


JUSTICE - Mr. Robert M. Yahn
TO; Room 4414
Main Justice Building
10th and Const. Ave. N.W.
THIS PART IS TO Bt A O O D C S S t O BV StNOCR AND ' I X F D TO INVFLOPC
MOISTEN REVERSE SIOE FOR PASTING TO ENVELOPE OR PACKAGE

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BUT NOT F l x e O 1O CNVELOPC
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TO Bt SIONEO BV RECIPIENT ANO R E T U R N E D BV
MESSENGER TO C E N T R A L MESSENGER UNIT
R E T A I N E D FOR ] V E A R S
v 3131660
ORIG LETTER TO ADDRESSEE VIA COURIER
UNDER RECEIPT • 3130409
ORIG ACTMEM/COPY OF LETTER TO OIS
9427281
fe/f
COPIES TO:
5
TD DEPARTMENT OF STATE
D WASHINGTON
p *c.j pep _o p, o/
' ' LL . O I i -^M

T Decenber B, 1994
M
G
S/P Dear Madam Attorney General:
SS
SSS DIR Section 217(g) of the Immigration and Nationality Act,
EUR recently enacted by Congress, authorizes" us jointly to
CA designate countries for inclusion in the Visa Waiver Pilot
DS Program (VWPP) with probationary status.
EB
H Visa refusal statistics for fiscal years 1993 and 1994 and
L overstay rates provided by INS for fiscal year 1992 indicate
S/CT that Ireland meets the statistical criteria for inclusion in
RF/baa the probationary program. Consistent with Section
217 (g) (2) (D), the Government of Ireland has advised the U.S.
Embassy in Dublin that it issues machine-readable passports.
Because Ireland therefore meets the qualifications for initial
inclusion, we propose that Ireland be selected for
participation in the probationary program.
There is no doubt that the Visa Waiver Pilot Program has
been an important public relations asset for the United States
and has succeeded in its objectives of facilitating tourist and
"business travel to the United States while conserving our
consular resources. In the last year alone, approximately
ten million foreign visitors entered the United States on the
program. The inclusion of Ireland will expand the program to
include a country with which we have both close historical
links and a growing commercial and cultural exchange.
We would be pleased to discuss with your staff any
questions concerning our recommendation of Ireland for
probationary status in the Visa Waiver Program. Please let us
know at your earliest convenience whether you concur in our
proposal.

Jtrobe Talbott
Acting Secretary

The Honorable
Janet Reno,
Attorney General.
Drafted by: CA/VO/F/P:PForai^|(
10/12/94; doc #9742P
,C
Cleared by: CA:MARyan H*WNesbittV*-**
CA/VO -.DDillard^v.-, DS:ACEQuaintonK e ^
CA/VO:MLHancockp7^jA S/CT:PWilcox C^>
CA/VO/F:ASMarwitz<T EUR:RCHolbrooke ^
CA/VO/L :CDScully£'9-? L/CA:CBrownc3
P:BLucas
United tale

ACTION MEMORANDUM
UNCLASSIFIED &S

TO: The Acting Secretary


.^

THROUGH: M - Mr.~Moose

FROM: CA - Mary A. Ry
SUBJECT: Further Expansion of the Visa Waiver Pilot
Program

ISSUE FOR DECISION


That you recommend to the Attorney General the inclusion of
Ireland as a probationary participant in the Visa Waiver Pilot
Program (VWPP).
ESSENTIAL FACTORS

Congress recently passed legislation which extends the VWPP


until September 30, 1996, and provides for the inclusion of new
program participants with probationary status. Ireland is the
only country which presently meets all statutory requirements
for inclusion in the new probationary program.

Inclusion of Ireland would bring the total number of VWPP


countries to 23. In addition to the positive effects such
inclusion would have on our bilateral relationship with
Ireland, we anticipate that our visitor visa workload in Dublin
would decline by as many as 60,000 applications per year. This
is particularly important in an era of declining Department
resources. Under t^he new legislation, however, Ireland must
both maintain its eligibility for probationary status and
qualify for non-probationary inclusion in the regular Visa
Waiver Program within three fiscal years of its designation for
probationary participation.

RECOMMENDATION

That you sign the attached letter to Attorney General Peno


at Tab 1.
APPROVE ISAPPROVE

UNCLASSIFIED
Attachmenti

Tab 1 - Proposed letter.


INTERAGENCY DOCUMENT
DEPARTMENT OF STATE
EXECUTIVE SECRETARIAT
$tf
942866s
ACTION: CA T! P r 21 ! '"' '- S/S

INFO COPIES TO: DATE 12/21/94

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COPY ADVANCED TO: Visa Waiver Pilot Program — Report to Congress

ACTION REQUESTED: REMARKS:

MEMORANDUM FOR:

XX APPROPRIATE HANDLING

FOR YOUR INFORMATION

.OTHER

VOA EDITORIAL NO:

CLEARANCE/COMMENTS TO:

DUE DATE IN S/S : AUTHORIZED BY Saadia Sarkls


S/S-S. ROOM 7241
EXT. 7-6545

YOUR RESPONSE SHOULD BE ACCOMPANIED BY A COPY OF THIS TASKER.


($ffirf af tfyr Attorney (General

December 20. 1994

The Honorable Warren Christopher


Secretary of State
Washington, DC 20520
Dear Mr. Secretary:
Section 201(c) of Public Law 101-649 requires that the
Attorney General, in consultation with the Secretary of State,
submit to the Committees on the Judiciary of the House of
Representatives and Senate a report on the operation of the
automated data arrival and departure control system for foreign
visitors and on admission refusals and overstays for such
visitors who have entered under the visa waiver program.
Enclosed is a copy of the proposed report for your review.
I have appointed Assistant Chief Inspector Ronald J. Hays of the
Immigration and Naturalization Service as the point of contact
for this report. Mr. Hays may be contacted at (202) 514-0912.
Sincerely,

Janet Reno

Enclosure
VISA WAIVER PILOT PROGRAM

REPORT TO CONGRESS

Prepared by:
Office of Inspections
Xnmigration and Naturalization Service
June 1994
VISA WAIVER PILOT PROGRAM

REPORT TO CONGRESS

Introduction

The nonimmigrant Visa Waiver Pilot Program {VWPP), which has been
incorporated into 8 U.S.C. as Section 217 of the Immigration and
Nationality Act (INA) , was implemented as a result of the
Immigration Reform and Control Act (IRCA) of 1986. The program
permits nationals of countries designated by the Attorney General
and the Secretary of State to apply for admission to the United
States as visitors for business or pleasure for up to 90 days
without having to obtain nonimmigrant visitor visas from U.S.
embassies and consulates. Participation in the program was
originally limited to eight countries which met the following
criteria: 1) offered reciprocal privileges to citizens and
nationals of the United States; 2) had a total nonimmigrant visa
refusal rate of less than 2 percent for the two previous
consecutive full fiscal years; 3) had a visa refusal rate of less
than 2.5 percent for each of such years, and 4) that nationals of
countries granted.designation must not pose a threat to the health,
safety, welfare, or security of the United States.
Implementation of the program required certification by the
Attorney General that an automated nonimmigrant arrival/departure
control system was operational. The Attorney General certified
that the Nonimmigrant Information System (NIIS) met that
requirement.

The VWPP was implemented in 1988 when the United Kingdom was
designated on July l as a participating country and was followed by
Japan on December 15. Six additional countries: Prance, The
Federal Republic of Germany, Italy, the Netherlands, Sweden, and
Switzerland were designated in July 1989.
The IRCA limited eligibility for the program to visitors who arrive
in the United States on transportation carriers which have entered
into agreements with the Immigration and Naturalization Service
(INS). An applicant for admission under the program must meet the
following conditions: 1) not be excludable from the United States;
2) be visiting for 90 days or less; 3) be a nonimmigrant visitor
for business or pleasure; 4) not change his or her nonimmigrant
status; and 5) not obtain permanent residence in the United States
unless a spouse, child, or parent of a United States Citizen. The
IRCA requires that travelers wishing to participate in the program
sign a waiver of any right to review or appeal from a decision of
the immigration officer to refuse admission under the VWPP other
than on the basis of an application for asylum. Finally, IRCA
limited the duration of the program to 3 years and required a
report to Congress evaluating the program after 2 years.
When this report was submitted to Congress, it recorwnended that the
program be extended for another 3 years. It also recommended that
the program be expanded to allow VWPP visitors to apply for
admission at land border Ports-of-Entry, that there be no
limitation on the number of countries to be designated for the
program, and that carrier liability under the INA be amended to
include liability for transporting to the United States a national
of a designated country without a valid passport.
The Immigration Act of 1990 (IMMACT 90) incorporated these
recommended changes into the program. The IMMACT 90 removed the
numerical limitation on designated countries. The IMMACT 90 also
added the requirement that a country must issue or have plans to
issue machine-readable passports before it could be designated as
a participating country. The program was further expanded on
July 18, 1991, to include entry to the United States at land border
Ports-of-Entry. The IMMACT 90 also limited continuation in the
program to countries which had a less than 2 percent immigration
"violation" rate (interpreted as the ratio of the sum of that
country's nationals who were excluded from admission or withdrew
their application for admission during the previous fiscal year,
plus the number of nationals who were admitted as nonimmigrant
visitors who violated the terms of their admission compared with
*t-fce number of nationals who applied for admission as nonimmigrant-
visitors during that fiscal year.) This resulted in the addition
of 13 countries: Andorra, Austria, Belgium, Denmark, Finland,
Iceland, Liechtenstein, Luxembourg, Monaco, New Zealand, Norway,
San Marino, and Spain. On July 27, 1993 Brunei was designated.
These countries were added to the program under the amended
criteria established in the IMMACT 90.
The Immigration and Nationality Technical Amendments Act of 1994
extended the expiration date of the Pilot Program until September
30, 1996 and authorized the creation of a probationary program
within the pilot program. To date, no country has been designated
for the probationary program.
Operation of the automated arrival and departure control system
for foreign visitors
The NIIS has been in operation for 11 years. It now contains over
200 million nonimmigrant arrival/departure records. In addition to
recording and tracking the arrival and departure information of
nonimmigrants, NIIS supports the legislative requirements of IRCA
and IMMACT 90 for the Visa Waiver Pilot Program. The NIIS also
supports the statistical reporting requirements for INS in
generating annual reports and also other official statistics that
are provided to Congress and other government entities. Tailored
management reports which support mission goals and various
functional units within INS and other Federal agencies in matters
ranging from routine administrative actions to national security
matters are also provided by NIIS.
Information for NIIS is obtained from the Arrival/Departure Form
(Forms 1-94, I-94T and I-94W), which, in the case of travelers
arriving by air or sea, also satisfies the arrival manifest
requirement of Section 231 of the INA. As there is no formal INS
inspection of those departing from the United States, departure
control is through information obtained from the carrier pursuant
to the departure manifest requirement which also is contained in
Section 231. There is no requirement for an alien who does not use
a common carrier to depart the United States to surrender the
I-94/I-94W.
There have been a number of problems with the NIIS that have caused
the reliability of the data produced to be questioned. These
problems are related to the data collection procedure problem
indicated above which, to compensate, has required the INS
Statistical Branch to estimate the extent of system error; i.e.,
the degree to which the apparent overstay rate reflects the failure
to collect the departure portion of the I-94/W/T. The Commissioner
of the Immigration and Naturalization Service has recommended to
the Congress that it consider requiring carriers to supply the
departure manifest in an electronic or machine readable format.
Additionally, overstay data for 1990 and 1993 are not available due
to the data entry contractor having lost a number of computer
tapes. INS has changed contractors and established an electronic
link between the new contractor and the NIIS which will preclude a
repetition of this problem.
Admission refusals and overstays for such visitors who have
entered under the visa waiver pilot program
Information has been compiled for all countries currently
designated for the program. This report includes statistics for
deportations, overstays, apprehensions, withdrawals of applications
for admission, and exclusion hearings for individuals with
nonimmigrant visas, admission refusals under the VWPP as well as
statistics for those admitted under the VWPP and the equivalent
nonimmigrant visitor for business or pleasure categories for
applicants possessing visas.
Statistical information for this section of the report has been
retrieved from NIIS. Several explanatory points should be made
prior to the presentation of the data.
First, as indicated in a previous section of this report, some
countries have been in the VWPP program longer than others. For
example, the United Kingdom, as the first VWPP country, has
participated in the program since its inception in July 1988.
Switzerland, on the other hand, has been a designated country since
July 1989. Therefore, no data is reported for Switzerland before
that date.
Likewise, other countries have been designated after the beginning
of a fiscal year. The data for that country for that year is
incomplete if it is compared to a country which had been in the
program for the entire fiscal year. For example, Table 1 shows
that Switzerland in Fiscal Year 1989 had 15,626 participants in the
VWPP while Japan had 1,549,604. In addition to the obvious
difference in the size of the traveling population, a portion of
the relative disparity was due to Switzerland only participating
for 3 months in FY 1989. The following year, with a full year of
participation, 102,247 Swiss citizens entered the United States
under the VWPP.
Second, as indicated above, the transportation companies and
vessels are the collecting agency for the departure portion of the
I-94/I-94W. Occasionally, some of these forms are misplaced prior
to delivery to INS and, therefore, the departure of the aliens on
whom the records pertain is not recorded. Further, not every alien
who enters the United States on a participating carrier departs by
air. Some aliens depart by ship or at land border Ports-of -Entry.
Since the United States does not perform departure inspection, the
departure of these aliens is not recorded every time.
As displayed on the sumvary page of Table 1, between FY 1988 and
the end of FY 1992, 41,855,873 nonimmigrants from VWPP countries
were admitted to the United States. Of these, 39,468,742 were
nonimmigrant visitors which included 21,588,641 who were VWPP
participants.
Table 2 shows that between the start of the VWPP and the end of
FY 1992, the last year for which complete data is available, 21,016
applicants for admission from VWPP countries were refused, withdrew
their application for admission, were excluded from admission,
deported, or required to depart. Of this number, 5,454 were
applicants for admission under the VWPP. Thus, between the start
of the program and the end of FY 1992, only 0.03 per cent of all
applicants for admission under the VWPP were determined to be mala
fide.
As shown in Table 3, 121,684 nationals of VWPP countries are
estimated to have overstayed their period of authorized admission
during FY 1991 and 1992. Particular attention should be paid to
countries of Andorra, Austria, Italy, Monaco, and San Marino. When
combined with the mala fide totals shown in Table 2, each of these
designated VWPP countries had a violation rate in FY 1992 that
exceeded 2 percent of nonimmigrant admissions. These countries are
statutorily ineligible for continuing designation as Visa Waiver
Pilot Program countries. The Attorney General has recommended to
the Secretary of State that he join with INS in publishing a
regulation to remove these countries from the VWPP.
Difficulties
-~« t-v>A Anjup which causes problems to~ some ai.xeii
One feature of the vwrf wn1^ £~e requirement that the alien who
° • air or sea do so on

S
fee which the alien must pay.
There remain some procedural

s.3£ r
train to enter the United States.
Mditi—lly. the requirement that alien. »hoeeeK to

consider amending the INA.to reflect tn* contain a visa


o 1 t
have knowingly waived hie or her
C h
-
d t h e WPP an, t o

Meiers of the
Policies (OIAP) h a v e r p e ^ e "! t h ewlto their advantage. For
criminals and terrorists ^.^^^en may be a citizen of a
example, although an und e8irij>le all en .^ay ^p ^ could
country which does 5°tparticipate^n hiB citizens?lp ±
nonetheless use false doc^\" etO ^ averting the necessity of
a country which does ^^^^ states, and thereby avoiding
aex^sfonrin S

Bother problem is that there^s no .jj-ni. to .«^«2 55SS


designation from a c™**'* '**t£ Department of State to reassign
Pilot Program has been to allow c"«"e^ n de8ignated countries.
a number of consular o^^^Vc^untry these consular officers

Service ana the


Assistant Secretary of State for Consular Affairs have jointly
recommended to the Congress a proposed mechanism that will allow
the efficient removal of countries which are no longer eligible for
continuing designation.
Finally, a recent survey by the Department of State has found that
several designated countries are not issuing machine readable
passports and have no plans to do so. While IMMACT 90 required a
country proposed for designation to attest that it plans to issue
machine readable passports as a condition for designation, there is
no mechanism for sanction if the country does not do so. Both INS
and the Department of State have recommended to the Congress that
it consider establishing a time limit within which a designated
country begin to issue machine readable passports or have its
designation removed.
TABLES

Table 1 Visa Waiver Pilot Program Admissions By Country By Year


Table 2 Visa Waiver Pilot Program Mala fide By Country By Year
Table 3 Visa Waiver Pilot Program Overstays by Country, PY 1991
and FY 1992
NONIMMIGRANT ARRIVALS OF NATIONALS OF VISA WAIVER PILOT COUNTRIES

COUNTRY TOTAL NON- TOTAL * VWPP B1/B2 TOURIST WT 82 BUSINESS WB 81


IMMIGRANTS VISITORS ADMISSIONS VISITORS VISITORS VISITORS BUSINESS

FISCAL YEAR 88
UNITED K1NOOOM 1.931,177 1.830.602 69.242 1,771.320 1,472,876 66,407 1,417,408 367.087 1.836 363,862

FISCAL YEAR 89
FRANCE 710.987 046.242 U9.996 666.247 610.698 86.288 426,410 134,644 4.707 129,837

GERMANY i 1,134.291 1.008.737 66,022 1.013.116 896,663 62.841 842.712 173,184 2,781 170.403

ITALV •' 409.019 376.610 38.007 330.849 296.982 37.217 268.706 79,634 1.460 78.084

JAPAN 2,988.064 2.790,731 1,649,004 1.241.127 2.470,677 1,497.086 978.962 814.094 61.919 202.176

NETHERLANDS 304.690 282.636 13.919 208.010 209.900 12,366 197,606 72.076 1.604 71.111

SWEDEN 284.317 200.939 11.484 286.466 207.458 10.329 197,127 69,4*3 1.166 68.328

SWITZERLAND 262.766 246.280 16.020 229,000 206.386 14.795 191.890 38.001 831 37.770
UNITED KJNODOM 2,368.906 2.242,194 003.929 1.678.206 1.809.238 029.127 1.240.111 372.960 34.802 338,164

VWPP COUNTRIES 0. 402.936 7.917.180 2.438.940 6.478.334 0.072.109 2.339.037 4.332.472 1.246,071 99.209 1.146,802

FISCAL YEAR 90
FRANCE 781,243 726,393 374.381 361.012 689,720 340.0O8 249.118 136.007 33.773 101,894

GERMANY 1,208,939 1.161.413 451,968 699,466 980,919 426,863 656.006 170,494 26,106 144.389

ITALY 439,076 410,267 220,738 189.619 334,726 204.649 130,177 75,631 10,189 69,342

JAPAN 3.301.20ft 3.166.086 2.369,920 795,106 2,844.673 2.241.193 003,380 310,612 118,727 191,786

NETHERLANDS 334.208 313,266 130.080 182,669 240,263 116.352 124,901 73.002 16,334 67.008

SWEDEN 300.069 289,090 137,807 161,889 230,916 120,694 104,321 68,781 11.213 47.608

SWITZERLAND 278.179 201,077 102.247 159,430 223.966 90,200 127.086 37.722 6.987 31,736

UMTED KINGDOM 2.493.909 2.371,800 1.024,161 1.347.709 1.989.641 968,464 1,031.087 382,319 06.097 310.622

VWPP COUNTRIES 9.203.477 8,078.030 4.801.888 3.870.748 7.434.008 4,608,803 2,926,746 1,244,028 283.026 961,003

•n rt««Mri«n attain* from «M UMi-trnirtUiji* Womwboo tyiran INttl TABUS 1, PAGE 1


NONIMMIGRANT ARRIVALS OF NATIONALS OF VISA WAIVtH MLU Iuuum nico
COUNTRY TOTAL NON- TOTAL » VWPP B1/B2 TOURIST WT B2 BUSINESS WB B1
IMMIGRANTS VISITORS ADMISSIONS VISITORS VISITORS VISITORS BUSINESS
FISCAL YEAR 91
FRANCE 818.104 784.621 474.978 3O9.642 666.927 410.636 226.181 127.684 44,441 81,261
GERMANY t, 442,608 1,174,801 721.469 661.114 1,216.171 686.769 629.412 166.812 17,710 121.922
ITALY 618,116 480,647 108.226 182.422 419.792 288.201 111.681 70.666 20,024 60.811
JAPAN 1.422.668 1,206,100 2.644.491 661.609 2.828.716 2.497.076 411.641 277.184 147.416 129.968
NETHERLANDS 171.172 362,304 179.844 172.161 281.488 169.014 122.484 70.806 20,929 48.877
SWEDEN 287,902 269,761 118.066 1 30.707 219.010 127,781 91,228 6O.761 11.276 18.478
SWITZERLAND ( 282,961 276,978 122,620 164.168 241.944 116.347 126.697 16.014 7.471 27.661
UNITED KMQOOM 2.696.028 2.669,406 1,117,778 1.261.628 2,216.202 1.219,266 876.816 161.2O4 78.612 274.882

VWPP COUHTRtC* 9.872.761 9,324.622 6.910.761 1.411.861 8.179.260 6.642.979 2.616.281 1,146.162 288.270 6O2.S88

FISCAL YEAR 92
ANDORRA 487 447 109 116 408 296 110 16 11 26
AUSTRIA 164.768 167.442 86,616 71.4O8 119.474 81.269 67.2O6 18.460 4.246 14.2O4
BELGIUM 161.261 164.223 80.862 72.410 122.966 71.840 49.126 10.406 7.122 21.284
DENMARK 117.79O 107,006 61.668 64.866 84.187 46.492 •7,686 22.127 6.167 17,160
FMLANO 102.778 94,629 66.076 16.090 79.214 61.170 27,844 14.962 4.706 10.246
FRANCE 866.461 811.797 682.469 227.681 681.847 626.702 166,146 126.121 66.787 71.616
| GERMANY 1.708.278 1.646.104 1.078.866 668.807 1,470.248 1.021.966 448.282 167.426 66.9OO 110.626
ICELAND 17.662 16.211 4,882 10.146 12.996 4.460 8.616 2.212 422 1.810
ITALY 644,321 618.748 46O.649 166,096 641.266 422.812 118.464 74.478 27.817 46.641
JAPAN 1,948,386 3.741,790 3,187,407 326,940 3,462,608 3,211.611 261.087 261.719 176.896 761,841
UECHTENSTEIN 942 884 322 666 757 304 463 121 18 101
LUXEMBOURG 9,989 9,626 4,213 6.373 8.357 4.012 4.346 1,229 201 1,028
MONACO 487 456 173 279 367 167 230 66 6 48
NETHERLANDS 400.172 381.193 242,651 137.018 304,891 212.930 91.961 74,680 29,621 46,067
NEW ZEALAND 162.943 147,222 67.209 89.342 126,960 64,218 72,742 19.691 2,991 10.600
NORWAY 118,130 104.386 47,219 66.884 81,268 42.191 J9.077 22.836 6.028 1 7,807
SAN MARINO 399 388 244 144 365 237 128 21 7 16
SPAIN 376.777 346,939 194,341 160,905 306,281 186,069 121.212 38,965 9.272 29,693
SWEDEN 292.126 274,098 161,982 111,298 222.793 146,912 76.881 60,487 16.070 36.417
SWITZERLAND 308.918 293.296 164,477 127,746 267.611 164.489 103,022 14,712 9.988 24.724
UNITED KINGDOM 2.989.186 2.873,362 1.726,367 1,134,626 2.482.167 1,614,439 867.718 378,726 111.918 266,808

VWPP COUNTRIES 12,386.631 11,780.267 8,377,904 3.339,838 10,386.960 7,864.688 2,631,262 1,331,792 623.216 1,484,576
TABLE 1. PAGE 2 Prapmt W O» «fto« tt tMp,

i
NONIMMIGRANT ARRIVALS OF NATIONALS OF VISA WAIVER PILOT COUNTRIES
FISCAL YEARS 1988 - 1992 FOR ALL DESIGNATED COUNTRIES

TOTAL NON- TOTAL* VWPP B1/B2 TOURIST WT B2 BUSINESS WB B1


IMMIGRANTS VISITORS ADMISSIONS VISITORS VISITORS VISITORS BUSWESS

41,855,873 ,39,468,742 21,588,641 16,593,034 35,431,869 20,301,574 13,843,228 4,036,873 1,287,067 2,749,806

TOTAL NONIMMIGRANTS - Refers to the total number of nonimmigrants admitted in all classes of admission.
VWPP - Refera to nonimmigrant visitors admitted under Section 217 of the Immigration and Nationality Act.
WB - Refers to visitors for business admitted under Section 217.
WT - Refers to visitors for pleasure admitted under Section 217.
B1/B2 - Refers to nonimmigrant visitors admitted under Section 1 0 1 ( a ) ( 1 5 ) ( B ) of the Immigration and Nationality Act.
Bl - Refera to visitors for business admitted under Section 101.
B2 - Refera to visitors for pleasure admitted under Section 101.

MI MomMkon oMmd tram the Narv*rn*gnnl M«iratton ftyttmi IMS) TABLE 1, PAGE 3
NONIMMIGRANT MALA FIDE NATIONALS OF VISA WAIVER PILOT COUNTRIES

COUNTRY VWPP VISA VISA REQUIRED


TOTAL REFUSALS WITHDRAWALS EXCLUDED DEPORTED DEPARTUF
FISCAL YEAR B8
UNTTB) KINGDOM 1473 66 1201 36 71 101

FISCAL YEAR 89
'FRAMCf 666 29 343 6 29 149

GERMANY BOB 21 644 16 41 87

ITALY 367 16 266 12 17 48

JAPAN 738 86 346 41 28 239

NtTHBtLANM 198 11 ISO 6 10 21

BWEDEN 126 8 87 2 4 24

SWITZERLAND 96 2 60 1 12 21

UMTED KINGDOM 1807 281 1191 21 126 189

VWfP COUNTWE* 4.616 462 3.086 103 266 778

FISCAL YEAR 90
FRANCE 660 146 323 4 29 66

GERMANY 762 113 668 6 33 42

rTALY 324 68 206 6 20 26

JAPAN 1098 296 610 18 86 189

NETHERLANDS 237 62 149 7 16 14

SWEDEN 160 37 98 1 3 11

8VMTZBUAND 104 17 74 1 3 8

UNITED KMOOOM 1644 638 711 27 134 134

VWPP COUNTRIES 4.766 1,266 2.628 70 323 479

•boo MMUm INUI TABLE 2. PAQE 1 *•»>•rWfcr»»omMWi


NONIMMIGRANT MALA FIDE NATIONALS OF VISA WAIVER PILOT COUNTRIES

VWPP VISA VISA REQUIRED


COUNTRY
TOTAL REFUSALS WITHDRAWALS EXCLUDED DEPtmikui DEPARTURES

RSCAL YEAR 91
141 331 4 26 36
FRANCE 630
273 273 0 28 30
oeUIAMY 010
440 260 141 0 24 16
ITALY
377 18 74 87
JAPAN 1231 076
110 100 7 7 13
NETHERLANDS 243
109 27 71 1 6 6
SWEDEN
43 63 1 4 12
SWITZERLAND 113
020 020 27 149 86

1.867 2.270 70 310 282


VWPP COUNTRIES 4,801

FISCAL YEAR 92
0 0 0 0 0
ANDORRA 04
71 24 S3 0 3 1
AUSTRIA
27 4O 2 4 6
BELGIUM 94
22 30 0 0 7
DENMARK 66
FINLAND 346 18 30 1 a 2
161 284 6 62 38
FRAMCC 632
242 230 341 11 61 28
GERMANY
234 1 6 0 6 1
ICELAND
631 197 199 22 30 12
ITALY
244 270 10 41 48
JAPAN i 244
0 0 0 1 0
LIECHTENSTEIN 2
0 0 2 0 0 0
LUXEMBOURG
0 0 0 0 0
MONACO 114
116 93 7 10 14
NETHERLANDS 189
21 62 4 10 18
NEW ZEALAND 260
10 234 1 3 0
NORWAY 10
0 0 0 0 0
SAN MARINO 143
4O 132 6 10 0
SPAIN 116
61 09 0 10 0
SWEDEN 103
33 49 1 7 2
SWITZERLAND 810
700 40 166 71

1,816 2.089 116 413 200


VWPP COUNTRIES 6.292

TABLE 2, PAGE 2 Pr•f*n4 bf tt» Otfk»» at IMMQI


OTMtan •mtwn INMI
NONIMMIGRANT MALA FIDE NATIONALS OF VISA WAIVER PILOT COUNTRIES
FISCAL YEARS 1988 - 1992 FOR ALL DESIGNATED COUNTRIES

VWPP VISA VISA REQUIRED


TOTAL REFUSALS WITHDRAWALS EXCLUDED DEPORTED DEPARTURES

21.016 6.454 11.880 393 1.389 1.900

VWPP REFUSALS • Refer* to applicant! (of admiaeion under Section 217 ol the Immigration and Nationality Act who war* refuaed admlaaioa to the United State*.
VISA WITHDRAWALS/EXCLUDED • Refer* to appecant* for admiaeion under Section 101|e)(15)(BI of the Immgration and Nationality Act who ware not admitted to the United Statee.
DEPORTED • Refer* to alien* removed from the United State* under either Section 217 or 242 of the Immigraoon and Nationality Act.
REQUIRED DEPARTURES • Refer* to aliana directed to depart from the Untied Statee without an order of deportation. The departure may be voluntary or Involuntary and may or may not have
been preceded by a hearing before an Immigration Judge.

en Mennattoo»b«*ln»« 1mm *» H~r*,**v** WemudMi »y*«m INtS) TABLE 2. PAGE 1 PraooW by MM (Mtto* •UrayMtton. VSH*
NONIMMIGRANT OVERSTAYS OF NATIONALS OF VISA WAIVER PILOT COUNTRIES
TOTAL NON- TOTAL! OVERSTAYS
COUNTRY
IMMIGRANTS VISITORS

FISCAL YEAR 91
784.621 7.894
FRANCE 838.1O4
1.442.606 • 1.174.603 46
GERMANY
490.647 17.627
ITALY 618.316
3.422.668 1.2O6.tOO 0
JAPAN
173.172 362.104 • 33
NETHERLANDS
287.902 209.70 1,664
SWEDEN
276.978 1
SWITZERLAND 292.963
2.669.406 •.•76
UNTTED KMOOOM 2.M6.028

• ,•72.761 9.124.622 37.930


VWPP COUNTRKS

FISCAL YEAR 82

497 447 12
ANDORRA
164.768 167.442 6.M»
AUSTRIA
163.263 164.223 •22
SELOIUM
117,790 107.008 1.982
DENMARK
102.77« 94.62* 661
FINLAND
•66.463 • 11.797 11.011
FRANCE
1.708.279 1.646.104 7.832
OEXMANY
17.662 16.231 137
ICELAND
618.748 2O.179
ITALY 646.321
3,741.790 0.620
JAPAN 3.948.386
942 884 7
UECHTENSTEJN
9.989 9.626 66
LUXEMBOURO
487 460 12
MONACO
381.193 2.447
NETHERLANDS 400.372
162.943 147.222 1,434
NEW ZEALAND
118.130 104,386 1,761
NORWAY
388 8
SANMAMNO 399
340,939 4,458
SPAIN 376.777
274,098 4,746
SWEDEN 292,326
308.918 293,296 1,764
SWITZERLAND
2.873,362 12.236
UNITED KMOOOM 2.989.186

11,7«0,267 •3.764
VWPP COUNTRIES 12,386.633

TABLES >Si»«fii« b/ Ito (Mth» •< In^woUan. USMS IQflM


MlM* •MM MM Una hiMihasad sniiMstMthMn tuattaaTi IMI&I

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