CONGRESSIONAL CONSULTATIONS ON FY 89 "REFUGEE ADMISSIONS"

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90M00005R000800010004-4
• Release Decision: RIPPUB
• Original Classification: U
• Document Page Count: 5
• Document Creation Date: December 27, 2016
• Document Release Date: August 29, 2012
• Sequence Number: 4
• Publication Date: September 1, 1988
• Content Type: CABLE

Declassified in Part - Sanitized Copy Approved for Release 2012/08/29: CIA-RDP90M00005R000800010004-4
UNCLASSIFIED
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BT
UNCLAS STATE 301235
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E.O. 12365: N/A
TAGS: PREF
SUBJECT: CONGRE-SSIONAL CONSULTATIONS ON FY 89"REFUGEE':
ADMISSIONS --~._..._ ~__.~,_~.
REF: (A) USIA WIRELESS FILE DTD 9/14/88
1. ON. SEPTEMBER 13,?BEFORE`~THE SSE TE.JUDICIARY
~~OMMITTE_E~ THE $ECREI'ARY PRESENTED~THE,~PRESIDENT''S
~1N~L~-S~ ~ ~ 6 ~~
OCA
INCOMING
.STAY
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UNCLASSIFIED
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PROPOSAL FOR REFUGEE ADMISSIONS FOR FY 89. AN EXCERPT
OF HIS TESTIMONY ON THE PROPOSED ADMISSIONS CEILINGS
FOLLOWS PARA 4. FURTHER EXCERPTS WERE PROVIDED REF A.
2. THE HOUSE-JUDICIARY COMMITTEE HEARING IS-SCHEDULED
FOR LEPTEMBER,..15,-WITH AN INTERAGENCY PANEL HEADED BY
THE US COORDINATOR FOR REFUGEE AFFAIRS PRESENTING THE
ADMINISTRATION'S PROPOSAL.
3. POSTS SHOULD REMEMBER THAT UNTIL THE CONSULTATIONS
ARE COMPLETED AND A PRESIDENTIAL DETERMINATION IS SIGNED
AND TRANSMITTED TO POSTS, NO REFUGEE MAY BE ADMITTED
INTO THE U.S. UNDER THE FY 1989 CEILINGS. ON A SEPARATE
TRACK, THE HOUSE-SENATE CONFERENCE ON THE APPROPRIATIONS
FOR THE MIGRATION AND REFUGEE ASSISTANCE ACCOUNT WILL BE
A DETERMINANT OF THE FINAL OPERATIONAL ADMISSIONS PLAN,
AS DESCRIBED IN THE TESTIMONY BELOW.
4. BEGIN EXCERPT OF SECRETARY'S TESTIMONY.
MR. CHAIRMAN, WE ARE HERE THIS MORNING TO ADDRESS
THE PRESIDENT'S PROPOSED CEILINGS FOR REFUGEE ADMISSIONS
FOR FISCAL YEAR 1989.
THE REFUGEE ACT OF 1980,. WHICH ESTABLISHED THIS
CONSULTATIVE PROCESS, STATES, QUOTE THE PRESIDENT SHALL
REPORT TO THE COMMITTEES ON THE JUDICIARY OF THE HOUSE
OF REPRESENTATIVES AND OF THE SENATE REGARDING THE
FORESEEABLE NUMBER OF REFUGEES WHO WILL BE IN NEED OF
RESETTLEMENT DURING THE FISCAL YEAR AND THE ANTICIPATED
ALLOCATION OF REFUGEE ADMISSIONS DURING THE FISCAL
YEAR. UNQUOTE
LAST YEAR, DURING BOTH THE REGULAR AND THE EMERGENCY
CONSULTATIONS, WE SET REFUGEE ADMISSIONS NUMBERS THAT
WERE HIGHER THAN THE FUNDS AVAILABLE FOR THE ADMISSIONS
PROGRAM. THIS LED TO CONFUSION AND DISAPPOINTMENT AS
THE YEAR WENT ON AND THE MONEY RAN OUT. I AM,
THEREFORE, VERY RELUCTANT TO BEGIN THE FISCAL YEAR WITH
AN ADMISSIONS PROGRAM CEILING HIGHER THAN THAT FOR WHICH
FUNDS WILL BE AVAILABLE.
UNFORTUNATELY, WE DO NOT YET KNOW WHAT FUNDS WE WILL
HAVE AVAILABLE FOR FY 1989. NEITHER THE APPROPRIATIONS
FOR HHS NOR FOR THE STATE DEPARTMENT HAS BEEN ENACTED.
THE HHS FY 1989 APPROPRIATIONS BILL PROVIDES FUNDING TO
SUPPORT UP TO 90,000 REFUGEE AND AMERASIAN ADMISSIONS
FOR 24 MONTHS.
IN THE CURRENT FISCAL YEAR THE STATE DEPARTMENT HAD
USDOLS 338,450,000 AVAILABLE FOR REFUGEE PROGRAMS FUNDED
OUT OF THE MIGRATION AND REFUGEE ASSISTANCE ACCOUNT,
INCLUDING REFUGEE ADMISSIONS AND ASSISTANCE PROGRAMS.
THE PRESIDENT'S BUDGET REQUEST FOR REFUGEES FOR FY 1989
-- CONSTRAINED AS IT IS BY GRAMM-RUDMAN-HOLLINGS AND THE
BIPARTISAN BUDGET AGREEMENT -- IS USDOLS 340,000,000.
THE BILL ADOPTED BY THE HOUSE PROVIDES USDOLS
361,950,000, 8UT REQUIRES THAT USDOLS 23,500,000 BE
TRANSFERRED TO HHS, LEAVING A NET AMOUNT OF USDOLS
338,450,000. THE SENATE BILL PROVIDES THE SAME USDOLS
361,950,000. THE SENATE BILL DOES NOT REQUIRE A
TRANSFER TO HHS BUT DOES EARMARK USDOLS 140,000,000 FOR
REFUGEE AND AMERASIAN IMMIGRANT ADMISSIONS. THE
CONFERENCE ON THE TWO BILLS IS SCHEDULED TO BEGIN NEXT
WEEK.
UNCLASS 1 F I ED
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USDOLS 338,450,000, THE SAME AMOUNT AS LAST YEAR, WE._:-~'.,.
WILL HAVE NEW FUNDS TO BRING IN ONLY 68,500 PERSONS. IF
THE FINAL BILL PROVIDES USDOLS 361,950,000, INCLUDING>
THE USDOLS 140,000,000 EARMARK FOR ADMISSIONS, WE WILL
HAVE NEW FUNDS TO BRING IN 82,000 REFUGEES AND AMER'ASfiAN
IMMIGRANTS. IN ADDITION, WE ESTIMATE THAT CARRY-OVER:x.
FUNDS FROM THE FISCAL YEAR 1988 DIRE EMERGENCY
SUPPLEMENTAL WILL BE AVAILABLE TO FUND AN ADDITIONAL '
2,000 REFUGEE ADMISSIONS. THEREFORE, THE POTENTIAL
FULLY-FUNDED ADMISSIONS LEVEL IS BETWEEN 70,500 AND_:.:
84,000, DEPENDING ON THE FINAL APPROPRIATION. WITH
REGARD TO FULLY FUNDED ADMISSIONS, AT NO TIME WILL WE`.
OPERATE AT A RATE HIGHER THAN THAT FOR WHICH FUNDS ARE
AVAILABLE IN THE MRA ACCOUNT.
ESTABLISHING THE CEILING REQUIRES BALANCING OUR
HUMANITARIAN AND FOREIGN POLICY GOALS, REFUGEE
ELIGIBILITY REQUIREMENTS, DOMESTIC RESETTLEMENT
CAPACITY, AND ESTIMATED COSTS. FOR FY 1989, THEREFORE,
DESPITE MY MISGIVINGS AND MY DESIRE TO BE ABSOLUTELY
CLEAR TO THE CONGRESS AND NOT TO MISLEAD ANYONE ABOUT
ACTUAL ADMISSIONS LEVELS, WE ARE PROPOSING AN AGGREGATE,
WORLDWIDE CEILING FOR REFUGEE AND AMERASIAN IMMIGRANT
ADMISSIONS OF 94,000. IT IS COMPRISED OF THREE
ELEMENTS: UP TO 84,000 FULLY-FUNDED ADMISSIONS; UP TO
6,000 WHICH COULD BE PARTIALLY FUNDED BY THE GOVERNMENT
AND PARTIALLY BY THE PRIVATE SECTOR; AND UP TO 4,000 -
RESERVED FOR THE SEPARATE, PRIVATE SECTOR PROGRAM...::THE
6,000 PARTIALLY-FUNDED NUMBERS WILL COVER A GROUP OP
PERSONS, SOME OF WHOSE DOMESTIC RESETTLEMENT COULD RE-
FUNDED OUT OF THE AVAILABLE HHS/ORR MONEY AND SOME WH0
COULD BE ADMITTED WITHOUT ANY FEDERAL FUNDING
WHATSOEVER. THEREFORE, WE ARE NOT SEEKING ADDITIONAL .
FEDERAL FUNDS TO FINANCE THESE 6,000 ADMISSIONS. IN
ADDITION, WE PROPOSE TO CONTINUE THE CURRENT ALLOCATION
OF 4,000 NLIMBERS FOR THE FULLY PRIVATELY-FUNDED
ADMISSIONS INITIATIVE. THIS PRIVATE SECTOR INITIATIVE
HAS ALREADY BENEFITED HUNDREDS OF CUBAN REFUGEES IN
FISCAL YEAR 1988.
ONCE THE FINAL APPROPRIATIONS FOR FY 1989 ARE
ENACTED, WE WILL ADVISE CONGRESS OF OUR OPERATIONAL PLAN
BY REGION THAT IS CONSISTENT WITH THE ACTUAL FUNDING
AVAILABLE. IF THE FINAL APPROPRIATIONS LEVEL FOR THE
DEPARTMENT OF STATE BUDGET WOULD FUND 70,500 ADMISSIONS
IN FY 89, THEN WE WILL COMMENCE THE YEAR AT AN
OPERATIONAL LEVEL OF 70,500.
IF THE FINAL .APPROPRIATIONS FOR FY 89 FULLY FUNDS
84,000 ADMISSIONS IN THE STATE DEPARTMENT BUDGET AND
90,000 ADMISSIONS IN THE HHS BUDGET, WE WOULD COMMENCE
THE FISCAL YEAR WITH AN OPERATIONAL PLAN FOR 90,000.
THIS PLAN WOULD INCLUDE THE PARTIALLY-FUNDED CATEGORY OF
6,000 PERSONS WHO WOULD RECEIVE HHS FUNDING ONLY.
THE PROPOSED REGIONAL CEILINGS FOR THE 90,000 LEVEL
ARE SHOWN BELOW. ALSO INCLUDED IS A POSSIBLE ALLOCATION
BY REGION WHICH COULD RESULT AT THE 70,500 LEVEL.
EAP
FIRST ASYLUM
ODP (INCLUDES
AMERASIAN IMMIGRANTS)
EE/SOV
NEA
PROPOSED CEILINGS MINIMUM
(ASSUMING ADEQUATE FULLY
FUNDING) FUNDED LEVEL
25,000 17,000
24 ; 500 ,,, 21 ,000
7,000 _6,000
t.11V~L~~S I F I I~?
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UIVCLASS I F I E?
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ARA 3,500 3.000
AF 2,000 1,500
UNALLOCATED
(PRIVATE SECTOR) 4,000 4,000
A THOROUGH EXPLANATION ANO JUSTIFICATION FOR EACH OF
THESE PROPOSED REGIONAL LEVELS IS FOUND IN THE DOCUMENT
ENTITLED, PROPOSED REFUGEE ADMISSIONS FOR FY 1989. ITS
COMPANION, THE WORLD REFUGEE REPORT, PROVIDES A
DESCRIPTION OF THE NATURE OF THE WORLD REFUGEE SITUATION
TODAY. I WOULO LIKE TO SAY SOMETHING ABOUT THE
IMPORTANCE OF EACH OF THE REGIONAL ADMISSIONS LEVELS,
HOWEVER.
EAST ASIA - FIRST ASYLUM. THE LEVEL OF 28,000 IN THE
PRESIDENT'S REQUEST RESPONDS TO THE CURRENTLY HIGH
NUMBER OF VIETNAMESE BOAT PEOPLE IN CAMPS (INCLUDING NEW
ARRIVALS SINCE JANUARY 1988) AND PUTS US IN A POSITIOKI
TO ADMIT SOME ADDLTIONAL LONGSTAYERS (WHICH IS PART OF
THE NEW COMPREHENSIVE STRATEGY FOR SOUTHEAST ASIA)
SHOULD WE WISH TO DO S0. IN A PERIOD WHEN FIRST ASYLUM
IN SOUTHEAST ASIA HAS SIGNIFICANTLY ERODED, THIS LEVEL
IS NEEDED TO ENCOURAGE THE ASEAN COUNTRIES TO CONTINUE
HUMANE RECEPTION AND TREATMENT OF REFUGEES.
EAST ASIA - ORDERLY DEPARTURE PROGRAM. THE PROPOSED
LEVEL OF 25,000, WHICH INCLUDES 13,000 REFUGEES AND
12,000 AMERASIAN IMMIGRANTS, EXCEEDS THE FY 1988
ADMISSIONS CEILING BY 16,500. AN EXPANDING ODP IS VITAL
AS AN ALTERNATIVE TO BOAT DEPARTURES, AND I5 A VITAL
PART OF OUR STRATEGY FOR THAT REGION.- THE LEVEL ALSO
PROVIDES FOR SEVERAL THOUSAND FORMER REEDUCATION CAMP
DETAINEES AND THEIR ACCOMPANYING RELATIVES, TO WHOM,
AFTER SIX YEARS OF NEGOTIATIONS, WE HOPE TO START
GAINING ACCESS IN THE COMING FISCAL YEAR.
EASTERN EUROPE AND THE SOVIET UNION.. WE HAVE DETERMINED
THAT WITHIN THE OVERALL TOTAL THAT WE ARE RECOMMENDING
FOR INCLUSION IN THE REFUGEE PROGRAM, A TOTAL OF 24,500
BE ALLOCATED TO THE EASTERN EUROPE AND SOVIET UNION. WE
RECOGNIZE THAT THE NUMBER OF ELIGIBLE APPLICANTS WITH
EXIT PERMISSION IS UNPREDICTABLE, AND MAY BE HIGHER, BUT
UNDER THE RELEVANT CIRCUMSTANCES, CONSIDER THIS A
REASONABLE LEVEL.
NEAR EAST AND SOUTH ASIA. THE SUGGESTED LEVEL OF 7,000
WILL ALLOW FOR A CONTINUATION, ALBEIT AT A REDUCED LEVEL
FROM FY 1988, OF OUR PROGRAM TO RESETTLE AFGHAN,
IRANIAN, IRAQI, AND SOME FEW OTHER NEAR EASTERN
REFUGEES, INCLUDING A LARGE NUMBER OF RELIGIOUS
MINORITIES. WE EXPECT TO NEED FEWER NUMBERS BECAUSE
CONDITIONS ARE BEGINNING TO STABILIZE IN AFGHANISTAN,
MAKING IT POSSIBLE FOR MANY AFGHANS TO RETURN TO THEIR
HOMELAND. ALTHOUGH THE HOPE FOR AN END TO THE EIGHT
YEAR LONG IRAN-IRAQ CONFLICT MAY LEAD TO FEWER
APPLICANTS, PERSECUTION OF RELIGIOUS MINORITIES IN IRAN
CONTINUES, INCLUDING BAHAI'S, CHRISTIANS, AND JEWS.
WESTERN HEMISPHERE. WE ARE COMMITTED TO ADMITTING 3,000
FORMER POLITICAL PRISONERS~FROM CUBA UNDER THE MARIEL
MIGRATION AGREEMENT, AND HAVE A HUMANITARIAN INTEREST IN
PROVIDING RESETTLEMENT TO CERTAIN REFUGEES IN CENTRAL
AMERICA FOR WHOM REPATRIATION IS NOT AN OPTION. THE
CEILING ALSO PROVIDES FOR THE RESETTLEMENT OF POLITICAL
UNCLASS I F I E?
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PRISONERS IN CENTRAL AMERICA.
AFRICA. THE LEVEL OF 2,000 ADMISSIONS FOR AFRICA
SUPPORTS OUR PRIORITY FOR ETHIOPIAN AND SOUTHERN AFRICAN
REFUGEES, FOR WHOM PROTECTION IN THEIR COUNTRIES OF
ASYLUM IS OFTEN TENUOUS. THE FACT THAT 2,000 IS,
ADMITTEDLY A RELATIVELY LOW FIGURE REFLECTS THE
PRACTICAL REALITY THAT WE HAVE DIFFICULTY ARRANGING FOR
EFFICIENT MOVEMENTS OF APPROVED ETHIOPIAN REFUGEES FROM
THE SUDAN. WITH AN INS OFFICER IN NAIROBI, NOW, WE
EXPECT THAT OUR ACCESS TO CASES WHERE PROTECTION IS A
PROBLEM WILL IMPROVE.
MR. CHAIRMAN, .I HAVE PROVIDED A BRIEF JUSTIFICATION
OF THE LEVELS WHICH WE WOULD LIKE TO SEE ESTABLISHED AS
THE CEILINGS. I ACKNOWLEDGE FULLY .THAT AT PRESENT WE
ARE UNABLE TO ADMIT REFUGEES AT THESE REGIONAL LEVELS
BECAUSE OF THE LIMITS ON FUNDING CONTAINED WITHIN THE
BUDGET SUMMIT AGREEMENT. AS THE STEWARDS OF OUR REFUGEE
POLICY, HOWEVER, THE ADMINISTRATION IS RESPONSIBLE FOR
ENSURING THAT OUR HIGHEST HUMANITARIAN AND FOREIGN
POLICY OBJECTIVES ARE REFLECTED IN OUR REFUGEE
PROGRAMS. LET ME PLEDGE TO YOU THAT WE WILL CARRY OUT
THIS RESPONSIBILITY TO THE BEST OF OUR ABILITY. WITH
THE CONTINUED BIPARTISAN SUPPORT OF CONGRESS, WE WILL
CONTINUE IN OUR TRADITIONAL HUMANITARIAN SPIRIT TO
PROVIDE FOR THE NEEDS OF REFUGEES AROUND THE WORLD.
THANK YOU.
END EXCERP"f. (4341T) SHULTZ
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