MIGRATION AND REFUGEE ASSISTANCE

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP63T00245R000100080009-3
• Release Decision: RIFPUB
• Original Classification: K
• Document Page Count: 32
• Document Creation Date: December 19, 2016
• Document Release Date: October 17, 2006
• Sequence Number: 9
• Publication Date: August 29, 1961
• Content Type: REPORT

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87TH CONGRESS HOUSE OF REPRESENTATIVES I REPORT
1st Session No. 1066
AueusT 29, 1961.-Committed to the Committee of the Whole House on the
State of the Union and ordered to be printed
Mr. PoFF, from the Committee on the Judiciary, submitted the
following
REPORT
The Committee on the Judiciary, to whom was referred the bill
(H.R. 8291) to amend the act of July 14, 1960, enabling the United
States to participate in the resettlement of certain refugees, and for
other purposes, having considered the same, report favorably thereon
with an amendment and recommend that the bill as amended do pass.
The amendment is as follows:
Strike out all after the enacting clause and insert in lieu thereof the
following:
That this Act may be cited as the "Migration and Refugee Assistance Act of 1961".
Sue. 2. (a) The President is hereby authorized to continue membership for
the United States in the Intergovernmental Committee for European Migration
in accordance with its constitution approved in Venice, Italy, on October 19,
1953. For the purpose of assisting in the movement of refugees and migrants
and to enhance the economic progress of the developing countries by providing
for a coordinated supply of selected manpower, there are hereby authorized to
be appropriated such amounts as may be necessary from time to time for the
payment by the United States of its contributions to the Committee and all
necessary salaries and expenses incident to United States participation in the
Committee;
(b) There are hereby authorized to be appropriated such amounts as may be
necessary from time to time--
(1) for contributions to the activities of the United Nations High Com-
missioner for Refugees for assistance to refugees under his mandate or in
behalf of whom he is exercising his good offices;
(2) for assistance to or in behalf of refugees in the United States whenever
the President shall determine that such assistance would be in the interest of
the United States: Provided, That the term "refugees" as herein used means
aliens who (A) because of persecution or fear of persecution on account of
race, religion, or political opinion, fled from a country of the Western Hemi-
sphere: (B) cannot return thereto because of fear of persecution on account of
race, religion, or political opinion; (C) have not been admitted for permanent
residence under the Immigration and Nationality Act; and (D) are in urgent
need of assistance for the essentials of life, or for education, or for transpor-
tation; and
72000-61-1
CDF
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2 MIGRATION AND REFUGEE ASSISTANCE
(3) for assistance to escapees from the Soviet Union, Poland, Czecho-
slovakia, Hungary, Ituanania, Bulgaria, Albania, Lithuania, Latvia, and
Estonia, or the Communist-dominated or Communist-occupied areas of
Germany, or any Communist-dominated or Coin niunist-occupied areas of
Asia anct any other countries absorbed by the Soviet Union, either to form
such persons into elements of the military- forces supporting the North
Atlantic Treaty Organization or in furtherance of the objectives of the
foreign policy of the United States when the President determines that such
assistance will contribute to the defense of the North Atlantic area or to the
security of the United States.
Funds appropriated for the purposes of this subsection shall remain available
until expended;
(c) Of the funds made available for use under section 451 of the Act for Inter-
national Development of 19G1, not to exceed $10,000,000 may be used in any
fiscal year in order to meet unexpected refugee and migration developments, when
the President determines such use to be important to the national interest;
(d) The President shall keep the appropriate committees of Congress currently
informed of tlae use of funds and the exercise of functions authorized in this Act;
(e) Unobligated and unexpended balances of funds made available under
authority of the Mutual Security Act of 1954, as amended and allocated or
transferred for the purpose of providing assistance to or in behalf of refugees,
migrants, escapees, and selected persons are hereby authorized to be continued
available for the purposes of this section and may be consolidated with appropria-
tions authorized by this section.
Sac. 3. (a) In carrying out the purpose of this Act, the President is authorized-
(1) to make loans, advances, and grants to, make and perform agreements
and contracts with, or enter into other transactions with, any individual,
corporations, or other body of persons, *overnment or government agency,
whether within or without the United States, and international and inter-
governmental organizations;
(2) to accept and use money, funds, property, and services of any kind
made available by gift, devise, bequest, grant, or otherwise for such purposes;
(b) Whenever the President determines it to be in furtherance of the purposes
of this Act, the functions authorized under this Act may be performed without
regard to such provisions of law (other than the Renegotiation Act of 1951 (65
Stitt. 7)), as amended, regulating the making, performance amendment, or modi-
fication of contracts and Lite expenditure of funds of the united States Govern-
ment as tlae President may specify.
SE:c. 4. (a) Subject to the provisions of section 301 of title 3, United States
Code, the President is authorized to designate the head of any department or
agency in the executive branch, or any official thereof who is required to be
appointed by the President by and with the advice and consent of the Senate,
to perform any functions conferred upon the President by this Act. Any indi-
vidual so designated by the President tinder this subsection shall prescribe such
regulations as may be necessary to carry out Such functions. If the President
shall so specify, any individual 9o designated under this subsection is authorized
to redelegate to any of his subordinates any functions authorized to be performed
by him under this subsection, except the function of prescribing regulations or
exercising any action or authority specified in section 3 of this Act.
(b) The President may allocate or transfer to any agency of the United States
Government any part of any funds available for carrying out the purposes cf this
Act. Such funds shall be available for obligation and expenditure for the pur-
poses for which authorized in accordance with authority granted in this Act.
Funds allocated or transferred pursuant to this subsection to any such agency
may be established in separate appropriatioan accounts on the books of the
Treasury.
Sac. 5. (a) Funds made available for the purposes of this Act shall be avail-
able for--
(1) compensation. allowances, and travel of personnel, including Foreign
Service personnel whose services are utilized primarily for the purpose of this
Act, and without regard to the provisions of any other law, for printing and
binding, and for expenditures outside the United States for the procurement
of supplies and services and for other administrative and operating purposes
(other than compensation of personnel) without regard to such laws and
regulations governing the obligation and expenditure of Government funds
as may be necessary to accomplish the purposes of this Act;
(2) employment or assignment of Foreign Service Reserve officers for the
duration of operations under this Act;
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(3) exchange of funds without regard to section 3651 of the Revised
Statutes (31 U.S.C. 543), and loss by exchanges;
(4) expenses authorized by the Foreign Service Act of 1946, as amended
(22 U.S.C. 801 et seq.), not otherwise provided for;
(5) expenses authorized by the Act of August 1, 1.956 (70 Stat. 890-892),
as amended; and
(6) all other expenses determined by the President to be necessary to
carry out the purposes of this Act.
(b) Except as may be expressly provided to the contrary in this Act, all deter-
minations, authorizations, regulations, orders, contracts, agreements and other
actions issued, undertaken or entered into under authority of any provision of
law contained in the Mutual Security Act of 1954, as amended, whether repealed
or not, shall continue in full force and effect until modified by appropriate
authority.
SEc. 6. Subsections (a), (c), and (d) of section 405 of the Mutual Security
Act of 1954, as amended, are hereby repealed.
Amend the title so as to read :
A bill to enable the United States to participate in the assistance rendered to
certain migrants and refugees.
PURPOSE OF THE BILL
The purpose of the bill, as amended, is-
1. to reenact three provisions of the Mutual Security Act of
1954, as amended, authorizing U.S. participation in, or operation
by the United States, respectively, of existing programs of assist-
ance to certain migrants and refugee-escapees, and authorize the
appropriation of funds for such programs; and
2. to authorize the appropriation of funds to assist certain
refugees from the Western Hemisphere who fled to the United
States in fear of persecution (such assistance having been hitherto
rendered by using the President's contingency funds. for the
benefit of refugees from Cuba).
PRESIDENT'S RECOMMENDATION
The enactment of this legislation was recommended by the President
as follows:
THE WHITE HOUSE,
Washington, July 21, 1961.
Hon. SAM RAYBURN,
Speaker of the House of Representatives,
Washington, D.C.
DEAR MR. SPEAKER: For a number of years the continuing refugee
and migration programs in which the United States participates have
been authorized and funded by the Congress through the mutual
security program. The precise objectives of all but one of these
programs are not consonant with the philosophy and purposes of the
proposed new foreign aid legislation. For this reason they have been
excluded from the proposed Act for International Development. The
decision not to include these programs in the proposed aid legislation
in no way detracts from their importance or the conviction of this
administration that they should be continued. I believe, however,
that the statutory structure for them can be simplified and consoli-
dated into one law. Accordingly, I transmit therewith for considera-
tion by the Congress it draft of a bill which is designed to centralize the
authority to conduct and to appropriate funds to support U.S. pro-
grams of assistance to refugees, escapees, migrants, and selected
persons.
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4 MIGRATION AND REFUGEE ASSISTANCE
In transmitting the proposed legislation I should like to reem-
phasize the fact that refugee problems often develop initially as
emergencies resulting from severe political or economic crises or
front natural disasters. It is sound, therefore, to obtain a renewed and
positive authorization from the Congress to support both the current
programs now in operation, for which specific appropriation requests
will be made, and such emergency programs as may be required in the
future.
The proposed bill seeks authorization in support of the following
principles
1. The Ignited States, consistent, with the traditional hunmani-
tarian regard of the American people for the individual and for
his right to a life of dignity and self-fulfilln-en(, sh ,uld continue to
express in a practical way its concern and friendship for indi-
viduals in free world countries abroad who are upr,oted and
unsettled as the result of political conditions or military action.
2. The successful reestablishment of refugees, who for political,
raacial, religious or other reasons are unable or unwilling to
return to their countr of origin or of nationality under conditions
of freedom, dignity, and self-respect, is importantly related to free
world political objectives. These objectives arc: (a.) continua-
tion of the provision of asylum and friendly assistance to the
oppressed and persecuted; (b) the extension of hope and encour-
agement to the victims of communism and other forms of despot-
ism, and the promotion of faith among the captive populations in
the purposes and processes of freedom and democracy; (c) the
exenaptifica(ion by free citizens of free countries, through actions
and sacrifices, of the fundamental humaanitarianisin which con-
stitutes the basic difference between free and captive societies.
3. Sonic refugee problems are of such order of magnitude that.
they comprise an undue burden upon the economies of the
countries harboring (lie refugees in the first instance, requiring
international assistance to relieve such countries of these burdens.
4. It is important to assist in the movement of persons to
developing countries in need of manpower- -the most valuable
asset of the free world. The contributions of the United States,
together with other free nations, to international migration as-
sistance programs, not only helps build and strengthen develop-
ing countries and thus the free world, but it enlarges the oppor-
tunities of individuals to live useful, productive lives.
Consistent with the four principles just enumerated, the proposed
bill provides authorization for continuation of U.S. membership in
and contributions to the Intergovernmental Committee for European
Migration (ICEM) and for contributions to the Office of the United
Nations High Commissioner for Refugees. It also includes a general
authorization for the U.S. escapee program, the program for assisting
Cuban refugees, and similar programs for refugees, escapees, and
selected persons whom the President may determine from time to
time should be helped in the interest of the United States. It does
not make provision for assistance to such groups as refugees in Pales-
tine, it program closely tied to problems of economic development in
the, Middle East, and for that reason included in the proposed foreign
aid legislation.
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. The bill intends that the extension of U.S. assistance shall be in a
form designed to meet the varying needs of particular refugee problems
at home and abroad, i.e., through cash in dollars or local currencies;
through surplus commodities; through loans, grants or contracts;
through international organizations, private voluntary organizations,
or direct U.S. operations. It will be necessary to provide varying
types of aid to meeting the varying needs which refugee situations
present, including interim care, housing, welfare assistance, training,
rehabilitation, job placement, local restablishment, and oversea
resettlement. Other technical provisions of the bill are designed to
provide the necessary operatirnal flexibility to meet the unusual and
emergency features of refugee problems. There is also provision for
a special emergency fund, subject to Presidential determination, to
meet unexpected refugee and migration developments.
I am. sure that the Congress shares with me and with the people
of America our pride in the generous and successful efforts of the
United States in helping the homeless and stateless victims of war and
political oppression to live again as freemen. The leadership which
the- United States has given to this great humane task has helped to
generate wide participation by private citizens and governments in
voluntary and international programs in behalf of the uprooted. It is
altogether fitting that the United States should do this. From the
earliest days of our history, this land .has been a refuge for the .,p-
pressed and it is proper that we now, as descendants of refugees and
immigrants, continue our long humanitarian tradition of helping those
who are forced to flee to maintain their lives as individual, self-
sufficient human beings in freedom., self-respect, dignity, and health.
It is, moreover, decidedly to the political interests of the United States
that we maintain and continue to enhance our prestige and leadership
in this respect.
Great strides have been made in alleviating many of the world's
refugee and migration problems. Through the efforts of the free world
in its continued support of international assistance programs, with
the added impetus of the World Refugee Year and of the improving
European economy, many of the refugee camps in Europe have been
closed and much has been done to improve the lot of thousands of
other refugees in Europe who have been living in substandard condi-
tions.
Yet millions of refugees are still in desperate want in many parts of
the world and the foreboding atmosphere of political conditions and
the oppression of communism gives continuing warning of more
refugees to come. The United States must be prepared at all times
to act promptly and effectively to help these new refugee groups as
they emerge and to show our' humanitarian concern for those who
seek freedom as the unwilling and unfortunate victims of war and
violence.
With the enactment by the Congress of the requisite authorization
and appropriation legislation for these programs, the Department of
State will continue its responsibilities for oversea refugee activities
and the assistance programs for Cuban. refugees in the United States
will continue to be a responsibility of the Department of Health,
Education, and Welfare.
I am confident that these proposals will be given the full and sym-
pathetic support of the Congress. This country has always served
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as a lantern in the dark for those who love freedom but are perse-
cuted, in misery, or in need. We must and will continue to show the
friendship of the United States by doing our share in the compassionate
task of helping those who are refugees today as were so many of our
forefathers in the years past.
Sincerely,
The Secretary of State rccotnnlended the enactment of this legisla-
tion in a letter which reads as follows:
'I'IIE SECRETARY OF STATE,
lf'a.shington, August 2, 1961.
Hon. h'RANcI$ E. WALTER,
Chairman, Subcommittee No. 1,
Committee on, the Judiciary,
House of Representatives.
DE.AIt \III. W.ALTEIt: Thank you for your letter of July 24 with
which you enclosed a copy of II.R. X291 introduced by you in the
House at the President's request. I am personally most grateful to
you for this action.
I also appreciate your invitation to appear before your committee
at the hearing scheduled August 3, 1961. 1 sincerely regret that I
shall be unable to appear in person. However, _?dr. Roger Jones,
Deputy Under Secretary for Administration, plans to attend, accom-
panied by other senior officers of (lie Department familiar with the
extremely important rofugee and migration problems.
I consider the legislation under review to be of utmost importance
to permit continuation of U.S. leadership in this significant field. I
ani confident that with your support the Congress will move. rapidly
and symapntheticallt to enact the necessary authorizing legislation
and to support the appropriation requests which will be submitted at
the appropriate time.
Thank you again for your interest and support.
Sincerely Yours,
1. INTERGOVERNMENTAL COMMITTEE FOR EUROPEAN MIGRATION
(ICEM,)
(Sec. 2(a))
1. Congressional action.-A series of studies conducted in Europe
by the Committee on the Judiciary of the House of Representatives
in 1949-50, and reports submitted to the House pursuant thereto,
led to recognition by the Congress that certain humanitarian actions
undertaken by several countries of the Western World in the after-
math of World War II in attehnptHIg to cope with the problem of
millions of persons dislocated in the course of hostilities and persecu-
(ions practiced by Nazi and Communist regimes, should be continued
on a different, broader, and more permanent basis.
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MIGRATION AND REFUGEE ASSISTANCE. 7
An amendment by Mr. Walter to the Economic Cooperation Act
passed by the 81st Congress and a subsequent amendment by Mrs.
Kelly of New York, to the Mutual Security Act of 1951 served to
implement this committee's finding that there exists a close relation-
ship between surplus manpower and overpopulation in Western
Europe and elsewhere on the one hand, and the existence of unde-
veloped areas in South America, Africa, and Australia on the other,
such relationship vitally affecting the welfare, the security, and the
pursuance of the foreign policy objectives of the United States.
In taking this action the Congress clearly indicated that if any
internationally concerted efforts in the field of migration should be
undertaken, such. endeavors should remain outside of any international
organization in which any Communist, Communist-dominated, or
Communist-controlled country is a member. The conference report
on the 1951 Mutual Security Act stated as follows:
The committee of conference wishes to make clear its
intent that none of the funds made available pursuant to the
proviso should be allocated to any international organization
which has in its membership any Communist, Communist-
dominated, or Communist-controlled country, to any sub-
sidiary thereof or to any agency created by or stemming from
any such organization. It is vital to the security of the
United States and to the success of the surplus-manpower-
emigration program that no international body with Com-
munist influence receive any U.S. assistance for the purpose
of such program * * * (I3. Rept. 1090, 82d Cong., p. 21).
In the same conference report, same page, it is stated:
* * * It is the expectation of the committee of conference
that steps will be taken as quickly as possible to get the
program moving and that the funds made available will be
used * * *.
2. The Brussels Conference and PICMME.-In implementation of
the above-cited enactments and expressions of congressional intent,
the Department of State, acting upon the initiative of Mr. Walter,
invited the Government of Belgium to convene a national conference
on migration. The conference met at Brussels, Belgium, on Novem-
ber 26, 1951, and after 2 weeks of deliberation agreed to establish a
provisional intergovernmental organization-outside the framework
of the United Nations-for the purpose of assuring the emigration of
refugees and excess population from Western. Europe. It was
stipulated by the Brussels Conference that the facilities of the new
organization will be available only to "those migrants who could
not otherwise be moved" to new homes and offered opportunities for
resettlement. The U.S. congressional delegation at the Brussels
Conference was as follows: Chairman Francis E. Walter of the Sub-
committee on Immigration and Nationality of the Committee on the
Judiciary, together with Representatives Chauncey W. Reed (Illinois),
Michael A. Feighan (Ohio), Clifford P. Case (Now Jersey), Frank
Chelf (Kentucky), and Angier L. Goodwin (Massachusetts) and the
Committee's legislative assistant, Walter M. Besterman, as staff
director.
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8 MIGRATION AND REFUGEE ASSISTANCE
The new organization was established under the name "Provisional
Intergovernmental Committee for the Movement of Migrants from
Europe" (PIUMME). The basic resolution, subscribed to by-
Australia Germany
Austria Greece
Belgium Italy
Brazil Luxembourg
Canada Netherlands
Chile Switzerland
France United States
expressed their conviction that:-
the existing volume of migration fro-n Europe was insuffi-
cient to meet the needs of e-nigration countries and to use
all available possibilities offered by i-nmigration countries.
It was held b%- the 1951 Brussels Conference that-
the concerted international effort, and sound international
financing of European migration could contribute not only
to the solution of the problem of surplus population in Europe
but would also stimulate the creation of new economic
opportunities in countries where manpower was licking.
PICMME established its headquarters in Geneva, Switzerland, and
began operations on February 1, 1952, taking over and immediately
expanding the. operations of the then expiring International Refugee
Organization.
3. IGEM.-In October 1952, the then 15 members of PICMMME
decided to prepare a preliminary draft of bylaws to govern their
activities and simultaneously changed (le name of the organization
to "Intergovernmental Commit-tee for European Migration."
ICEM's constitution was drafted by a special international com-
mittee presided over by the late Representative Chauncey IV. Reed,
the then chairman of this committee. and approved on October 19,
1953, in the course of ICEM Council's session held in Venice, Italy.
Under the constitution ICEM's activities are:
* * * The transport of migrants for whom existing
facilities are inadequate and who could not otherwise be
moved, from European countries having surplus population
to countries overseas which offer opportunities for orderly
immigration (ch. 1, 1, (a)) and the rromotion of an increase
of the volume of migration from Europe by providing, at
the request of and in agreement with the Governments
concerned, services in the processing, reception, first place-
ment and settlement of migrants which other international
organizations are not in a position to supply, and such other
assistance to this purpose as is in accord with the aims of
the. Committee (clr. I, 1, (b)).
* * * Arrangements for the movement of refugees may
be made between the Committee and the governments of
the countries concerned, including those undertaking to
receive them (el. 1, 3).
* * * \-femberslip (in ICEM) is restricted to govern-
ments with a demonstrated interest in the principle of free
movement of persons which undertake to make a financial
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MIGRATION AND REFUGEE ASSISTANCE ?.9
contribution at least to the administrative requirements of
the Committee, the amount of which will be agreed to by the
Council and by the government concerned, subject to a
two-thirds majority vote of the Council and upon accept-
ance (of the) constitution (ch. II, 2, (b)).
* * * The governing body (of ICEM) is the Council, com-
posed of one representative of each member government and
such alternates and advisers as it may deem necessary (ch.
IV, 7, 2). Each member government (has) one vote in the
Council (art. 7, 3). (Normally) meeting twice a year, the
Council may decide by a two-thirds majority vote that only
one session is necessary in any given year (art. 8, 1). Special
sessions may be called at the request of (a) one-third of its
members; (b) the executive committee; (c) the Director, in
urgent circumstances (art. 8, 2)
* * * In addition to determin(ing) the policies of the
Committee, the Council review(s) the reports and approve(s)
and direct (s) the activities of the executive committee and the
Director; review(s) and approve(s) the budget, the plan of
expenditure and accounts of the Committee; and take(s)
appropriate action to further the purpose of the Committee
(art. 6 (a), (b), (c), (d), and (e)).
ICEM's present membership is as follows:
Argentina Israel
Australia Italy
Austria Luxembourg
Belgium Netherlands
Bolivia New Zealand
Brazil Norway
Canada Panama
Chile Paraguay
Colombia Spain
Costa Rica Sweden
Denmark Switzerland
Ecuador Union of South Africa
France United Kingdom
Germany United States of America
Greece Venezuela
Since the beginning of operations on February 1, 1952, until June
30, 1961, ICEM has moved 1,108,183 migrants of whom 621,995 are
classified as immigrants seeking new homes and employment oppor-
tunities outside of the country of their nationality and 486,188 are
classified as refugees. The largest number of persons moved by
ICEM left Italy (301,194) with West Germany (226,735), Austria
(156,560), Netherlands (95,565), Greece (72,477) and Spain (51,569)
following. In addition, over 16,000 European refugees were moved
by ICEM out of Hong Kong under a special program. Australia
leads in the number of migrants admitted (330,447) followed by the
United States (191,958),. Canada (158,991), Argentina (108,618),
Brazil (94,095), Israel (77,871), Venezuela (51,813), and so forth.
It is estimated for calendar year 1962 and the following years that
movements of migrants arranged by ICEM will remain at or near
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10 MIGRATION AND REFUGEE ASSISTANCE
100,000 annual rate with increasing numbers of skilled workers
destined for resettlement in South America.
4. ICE AI's future task.--- With the diminishing flow of refugees it is
recognized that ICEM's program must be reshaped w =ithin the next
2 or 3 years. In a report to the House on ICEII activities in 1960,
Mr. Walter stated the following:
* * * Having established its place in the international
working rather than talking community, ICEM is, at the
present time, engaged in the much needed reassessment of
its activities with a view toward modifying its ways and
paeans, but not its basic concept, and bringing its operation
in accord with the current aspects of the free world's eco-
nomic picture.
* * * I wish to express my sincere belief that. our own,
as well as other governments' money-, could be spent, much
more productively if it were used so as to develop ICE M's
resources for the purpose of improving the quality and aug-
menting the quantity of emigrants from Europe by offering
services, planning, contacts with international financial
institutions, and exploring the ways and means of supplying
the Underdeveloped countries with the desired type of a new
agricultural settler or an industrial worker.
With the diminishing number of resettleable or, as they
call (hem in Geneva "emigrable" refugees, the percentage of
refugee movements as compared with the movements of
migrants in (lie category of agricultural and industrial
workers, is rapidly diminishing. Obviously-, ICEM's activities must necessarily
become geared to the manpower needs of countries who treed
immigrants instead of relying on movements genera(ed by
hunlanitarian factors in the immigration policy of the over-
sea countries. At least two South American countries,
Argentina and Brazil, have now openly stated their desire to
duplicate (lie magnificant effurts of Australia and Canada,
who since the end of the last war have succeeded in bolstering
and developing their economics through the planned integra-
tion of immigrants.
Argentina is ready to open the wide spaces of its interior for
ar planned colonization effort which could permit the re-
settlement of 300,000 European immigrants. Brazil is faced
with the urgent necessity of increasing its agricultural pro-
duction while building it new capital and developing indus-
tries. Both countries represent potentialities which I hope
will not be overlooked or neglected by ICEM-I and the inter-
national banking institutions.
There is a job cut out for ICE-M. There is the most im-
portant task of working out lending methods for the estab-
lishment of new settlements and assisting the interested
governments in obtaining sound financing. It is precisely in
these areas of planning and supplying expert services where
ICE:II could emerge as a stimulant and broker, a role we
envisaged for it when its foundations were fashioned in
Brussels in 1951 and its constitution written in Venice in
1953.
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MIGRATION AND REFUGEE ASSISTANCE 11
Those of us who have the continuous opportunity to watch
ICEM at work, recommend that the Department of State
use the powerful instrumentality of our financial contribution
to ICEM so as to steer the committee in that direction, a
truly rewarding task.
Mr. Roger W. Jones, Deputy Under Secretary of State for Admin-
istration, testifying before a subcommittee of this committee, summed
up the U.S. position in regard to ICEM's future activities as follows:
Readjustment is necessary in order to build up the services
for the benefit of the Latin American countries to help them
to secure the numbers and the quality of migrants needed for
their economic development. The United States also has an
interest in encouraging developments through ICEM in
which governments, irrespective of their relative economic
position, are finding that they are dependent on each other
and have a common interest in developing a cooperative
international institution in the field of migration as a useful
agency in a functioning free world. It is important to assist
in the movement of persons to developing countries in need
of manpower-the most valuable asset of the free world.
The contributions of the United States, together with other
free nations, to international migration assistance programs
help build and strengthen developing countries, and thus the
free world. It also enlarges the opportunities of individuals
to live useful, productive lives, an idea of American democ-
racy to which we are firmly committed and which bears
testimony to the importance of the individual in free societies.
In 1962 and the following years it is expected that move-
ment will remain at or near the 100,000 annual rate, with
increasing numbers of skilled workers being resettled in
South America. In this period. it is expected that the finan-
cial participation of other governments will increase, that
migrant participation will increase, and that the United
States can decrease its contribution until it reaches a level
of 33 percentof all Government contributions to operations,
and possibly lower.
5. Statutory authority ,for U.S. membership.-Statutory authority
for the United States to accept and continue membership in the Inter-
governmental Committee for European Migration is contained in
section 405(a) of the Mutual Security Act of 1954, as amended. The
said section reads as follows:
SEC. 405. MIGRANTS, REFUGEES, AND ESCAPEES.-(a) The
President is hereby authorized to continue membership for
the United States on the Intergovernmental Committee for
European Migration in accordance with its constitution ap-
proved in Venice, Ttaly, on October 19, 1953. For the pur-
pose of assisting in the movement of migrants, there is hereby
authorized to be appropriated. such amounts as may be
necessary from time to time for the payment by the United
States of its contributions to the Committee and all necessary
salaries and expenses incident to United States participation
in the Committee.
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12 MIGRATION AND REFUGEE ASSISTANCE
The language proposed in the instant bill does not differ from sec-
tion 405(a), supra as far as authorization of membership and appro-
priation of funks is concerned. The language has been, however,
modified so as to stress ICEM s new aims stemming from the evolving
economic and social conditions of the coujltrics participating in the
activities of that organization.
Intergovernmental Committee for European .ffigration--Relationship of U.S.
contributions to the contributions of other governments
ADMINISTRATIVE
1955
---
1056
1957
1958
1950
1960
19611
1962
1 n t ted Slates_ - _ _ 1634, 525
Other Rovers-
~
V71,647
$775, 807
4914, 705
#863,632
$854, 686
1701, 532
#824.247
,nenls----------
1,422.415
1,772,052
1,838, 702
2,229, 707
2,043,236
2,026,922
1,866,230
1.940, 753
Total--------- - 2.056, 9x10
2.543, 6091
'1314,501)f
3.1-74,412
2,900,868
2,881,608
%657,762
2,765,000
I'ni tad States-----11&974, 218
Other govern- I
1
$10.834,656
$14,779Z
955
x.617, 3177118 886 769
,829, 709
260, 000
1,175, 753
mmnts---------- 111,591.264
12, 9ffi, 073
20.200, 238
9, 985, 575111, 446, 411
12, 761, 710
13,530, 640
13,814,071
Total --------- -20,565.4821
23,810,729
34,993,193
17,603,402120,333.180
425
United States- _ - - !$9
608
743
311
606
303
1$15568
702
56
1
,
,
Other govern
- j
.
,
,
2, 532
,$9.760.401
$10, 684, 392
19051532
$7, 000, 000
13.013, 679
14,764,12-5
22:W 8,940
12, 215,28213, 489,947
14,788,6411
15:M:13710
15,754,824
Total--_
26,360,428
37, 607, 70'21
20, 777.81423, 240,048
25, 25,473, 033
24, 448 402
22, 754,824
I Estimates.
Source: Department of State.
II. UNITED NATIONS IIICII COMMISSIONER FOR REFUGEES
(See. 2(b)(1))
1. General inforration.-The Office of the United Nations High
Commissioner for Refugees (UNIICH) was established by the United
Nations General Assembly in 1951 to provide for the legal and political
protection of refugees. flis mandate was developed with the problem
of European refugees primarily in mind, and has been administered
on that basis. The United States took leadership in the establish-
ment of the UNHCIt, consistent with its strong political and human-
itarian interest in stabilizing the status of refugees from communism
and other forms of persecution. The United States has contributed,
through he. regular United Nations budget, 32.51 percent of the
administrative expenses of the UNHCR Office, Most of the free
countries of Europe and many other countries have ratified the 1951
convention relating to the status of refugees, which is the effective
instrument for realizing the objectives of the UNTHCR Office.
In 1955 the UNIIUR developed a regular assistance program for
refugees under his mandate mown as [lie United Nations Refugees
Emergency Fund (UNREF), with the objective of providing perma-
nent solution for the older group of Soviet-bloc refugees. This program
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MIGRATION AND REFUGEE ASSISTANCE, 13-
was carried out from 1955 through 1958, with total contributions from
governments of $16 million of which the United States contributed
$5,333,333. A 25-nation executive committee supervised the
execution of the UNREF program, and continues this function with
the UNHCR regular assistance program which supplanted the
UNREF program in 1959. The United States has contributed approx-
imately $3,600,000 to the regular UNHCR program. During World
Refugee Year the UNHCR program received substantial additional
contributions from governmental and private sources, which enabled
it to make marked progress in reducing the refugee problem in Europe,
specially in the clearance of camps. . The total UNHCR budget
during World Refugee Year was $12 million.
The present UNHCR program provides rehabilitation assistance
including a large percentage of handicapped cases to European refu-
gees in Europe and the Near East, to Jewish refugees in Europe from
the United Arab Republic and to European refugees from Com-
munist China exiting through Hong Kong. In addition, the
UNHCR in conjunction with the League of Red Cross Societies pro-
vides relief to 300,000 Algerian refugees in Morocco and Tunisia.
Together, the UNREF and UNHCR programs have furnished
major aid to 81,505 refugees in Europe including 46,151 who have
been firmly settled directly through UNIICR assistance, and 17,762
who are in course of settlement. Approximately 17,500 additional
refugees have benefited from minor supplementary aid or vocational
training. Within the overall program the camp clearance program
in Europe has resulted in the firm settlement of 21,122 refugees from
camps, and the Department believes that all official camps probably
can be cleared within the next year.
The UNHCR is now concentrating on camp clearance programs in
Europe, with particular emphasis on handicapped cases, including
the needy out-of-camp population. The program is also expending
residual funds from the World Refugee Year, chiefly in the field of
housing for refugees. The total U.S. contribution of $8,933,000 to
the UNHCR regular and UNREF programs together with the other
contribution from other sources have enabled the UNHCR to expend
or commit over $31 million. This action in turn, has been instru-
mental in attracting supporting contributions of over $41 million for
specific projects from the asylum countries. The total of aid from
all sources for refugees under the UNREF and UNHCR programs
is thus over $72 million.
The UNHCR program in behalf of Algerian refugees is carried out
under the mandate of special United Nations General Assembly reso-
lutions on this subject. In addition, pertinent United Nations Gen-
eral Assembly resolutions have charged the High Commissioner with
exercising his good offices in behalf of Chinese refugees in Hong
Kong and of other refugees throughout the world who are not the
immediate concern of the United Nations. Under these resolutions
the High Commissioner has developed substantial funds for refugees
in Hong Kong, Cambodia, and Europe, and has taken under advise-
ment the request of the Secretary General to assume the overall coordi-
nation of the relief effort in behalf of refugees in the Congo from
Angola,
In fiscal year 1961 the United States contributed $800,000 to the
UNHCR regular program and $500,000 to the UNHCR program for
Algerian refugees.
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14 MIGRATION AND REFUGEE ASSISTANCE
With the continuing development of sound economic conditions in
European countries, it is anticipated for the future that the UNHCR
assistance program in Europe will progressively decline in scope and
that the High Commissioner will devote increasing attention to his
legal and political protection function for refugees under his man-
date. With the development of new refugee problems arising from
troubled conditions throughout the world, the High Commissioner
is expected in the future to expand the implementation of his good
offices function through which he seeks to attract international co-
operation and financial contributions and by which he facilitates
solutions for refugee problems.
2. Mandate of the [high C'om nissioner.-The refugees who are
within the mandate of the United Nations High Commissioner for
Refugees are in general those persons who, owing to a Well-founded
fear of persecution for reasons of rare., religion, nationality, or political
opinion, are outside of their country of origin and are unable, or
owing to such fear unwilling, to avaif themselves of the protection of
that country.
The mandate extends to only those refugees who do not have the
rights and obligations of nationals in the country in which they reside
and who do not receive assistance under other refugee programs con-
ducted by other organs or agencies of the United Xati'us. The niaan-
date of the United Nations High Commissioner for Refugees is con-
tained in chapter 2 of the statute of the Offiev of the United Nations
High Conan uissioner for Refugees which was adopted by the General
Assembly of the United Nations at its 325th plenary meeting on
Decembcr 14, 1950 (Resolution No. 428-V). The portion of that
statute, ronatnonl: referred to as the mandate of the United Nations
High ('onintissioner for Refugees, read-, as follows:
6, The competence of the High Commissioner shall extend
to:
A. (i) Any person who has been considered a refugee
under tit(! Arraaugetnents of 12 May 1026 and 30 June
1928 or under the Conventions of 28 October 1933 and
10 hebruarc 1938, the Protocol of 14 September 1939
or tit(, t't,nstituution of the International Refugee
( )rganizai ion:
(ii) Any person who, as a result of events occurring
before I January- 1951 and oiling to well-founded fear of
being persecuted for reasons of race, religion, nationality
or political opinion, is outside the country of Dais naation-
ality and is unable or, owing to such fear or for reasons
gather thaut personal convenience, is unwilling to avail
himself of the protcctiauj of that country; or who, not
having a nationality and being outside the country of
his fortater habitual residence, is unable or, owing to
such fear or for reasons other than personal convenience,
is unwilling to return to it.
I)erisions as to eligibility taken by the International
Refugee Organization during the period of its activities
shall not prevent the status of refugee being accorded
to persons who fulfill the conditions of the present Para-
graph;
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MIGRATION AND REFUGEE ASSISTANCE 15
The competence of the High Commissioner shall cease
to apply to any person defined in section A above if:
(a) He has voluntarily reavailed himself of the
protection of the country of his nationality; or
(b) Having lost his nationality, he has voluntar-
ily reacquired it; or
(c) He has acquired a new nationality, and en-
joys the protection of the country of his new na-
tionality; or
(d) He has voluntarily reestablished himself in
the country which he left or outside which he re-
mained owing to fear of persecution; or
(e) He can no longer, because the circumstances
in connection with which lie has been recognized as a
refugee have ceased to exist, claim grounds other
than those of personal convenience for continuing
to refuse to avail himself. of the protection of the
country of his nationality. Reasons of a purely
economic character may not be invoked; or
(f) Being a person who has no nationality, he can
no Ion, because the circumstances in connection
with which he has been recognized as a refugee have
ceased to exist and he is able to return to the
country of his former habitual residence, claim
grounds other than those of personal convenience
for continuing to refuse to return to that country;
B. Any other person who is outside the country of his
nationality or, if he has no nationality, the country of his
former habitual residence, because be has or had well-
founded fear of persecution by reason of his race, religion,
nationality or political opinion and is unable or, be-
cause of such fear, is unwilling to avail himself of the
protection of the government of the country of his
nationality, or, if he has no nationality, to return to
the country of his former habitual residence.
In the course of a hearing held by a subcommittee of this committee,
representatives of the Department of State indicated. that the antici-
pated appropriation. for the U.S. contribution to UNHCR program for
fiscal year 1962 will be in the amount of $1,200,000, of which sum
50 percent would. be allocated to the High Commissioner's regular pro-
gram and 50 percent to his special programs, above outlined.
U.S. contributions to the United Nations High Commissioner for Refugees
(In thousands]
1950
1957
1958
1989
1960
1901
Total
United Nations Refugee Fund (UNREF)__
$1,200
$1,900
$2,233
_
333
United Nations high Commissionerf or Ref-
ugees program (UNIICR program) I -------
--------
$1, 200
$1;100
$1, 300
3,600
Total __________________________________
1,200 1,900
2,233
1,200
1,100
1,300
8,933
i Material assistance from international sources for refugees within the mandate of the High Commis-
sioner has been administered by the UNI[CR program since the termination of UNREF.
Source: Department of State.
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16 MIGRATION AND REFUGEE ASSISTANCE
III. CUBAN REFUGEES IN TUE UNITED STATES
(See. 2(b) (2))
I. United States--country of "first asylum"-In his opening state-
ment prefacing the hearing held on the instant bill, Mr. Walter,
chairman of Subcommittee No. 1 of this committee, stated as follows:
* * * One aspect of this legislation represents a novel
matter, nEmely, assistance to refugees from Cuba. It is
important to keep in mind in that respect that for the first
time the United States has become a country of "first
asylum." Having since the end of World War II admitted
close to 1 -million refugees and escapees from countries of
"first asylum," this country has now not only opened its
doors but assumed heavy responsibilities in behalf of escapees
from Cuba coming across the extension of the Iron Curtain
established by international communism in the Western
Hemisphere.
Mr. Ribicoff, the Secretary of Health, Education, and Welfare,
explained the problem as follows:
* * * Late last year it became evident that a serious
situation was developing in south Florida because of the
great influx of refugees from Cuba. Emergency steps were
taken to identify the problem and to assist in coping with it.
Soon after taking office, President Kennedy assigned to
me the responsibility for the development and supervision
of a Cuban refugee program. Accordingly, in late January,
along with some. of my aids, I made an on-themepot survey
in Florida.. What we saw atxl learned confirmed that indeed
there was a serious situation, that the city' of :Miami and south
Florida generally were doing a heroic job in frying to cope
with it. We also learned that Cubans were fleeing from the
Conununist regime of Fidel Castro in ever-increasing nunm-
hers and the situation could get out of hand. It was also
clear that the resources of the south Florida communities and
particularly of the city of Mittmi were strained to the break-
ing point and that Federal help was needed to assist both
the community itself and the refugees.
Accordingly, a comprehensive program of aid was recom-
mended to Lite President, which he approved. For this pro-
gram the President allocated $4 million under the Mutual
Security Act, in addition to the $1 million previously allo-
cated last rear. Beyond satisfying our obligation to assist
these victims of Castro's brand of commnutnism we have sought
also by this program to demonstrate to the world the hu-
manitarianisnt which constitutes the basic difference between
free and rnj tine societies.
* * * We have received maximum cooperation from the
State of Florida, particularly from its departments of welfare,
health, and public education. The city of Miami and Dade
County have responded with understanding and generosity
to the situation both before and after the federal Govern-
ment carne into the picture.
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MIGRATION AND REFUGEE ASSISTANCE 17
* * * 2. Cuban refugees.-There are now about 130,000
nonnaturalized Cubans in the United states of whom about
one-half are in south Florida, meaning primarily Dade
County. Therefore, the bulk of the services we provide
are given to Cuban refugees residing in Dade County, Fla.
We have registered as "refugees" in our "center" in Miami
approximately 50,000 persons.
* * * On the whole, the refugees are a well-educated
group. Over one-third belong to the professional, semi-
professional, or managerial categories. Only a small frac-
tion have no special skills. Three-fourths are between the
ages of 20 and 50.
* * * To relieve pressure on the overburdened community
of Miami, we have placed stress on resettlement in other
parts of the country. For those who find resettlement im-
practical and for those for whom we have not as yet been
able to find a suitable resettlement opportunity, we have
made provision for supplying the necessities of life. The
level of help in the various categories is similar to that pro-
vided our own nationals in Florida who find themselves in
similar economic circumstances.
In the past 6 months financial assistance and other welfare
services have been provided to those needing them. In this
period some 24,000 persons have been helped with cash
assistance in the amount of $2.5 million; about 40,000 have
been given medical attention and care in varying degrees.
Surplus food has been made available to many thousands as
well as summer recreational opportunities to children.
We have resettled in virtually every State of the Union and
in Puerto Rico approximately 6,000 persons at a cost of about
$600,000. In practically each case, a suitable job has been
found.
We have cared for nearly 700 children who are unaccom-
panied by parents or other responsible persons at a cost of
about $500,000.
An education program, largely developed by the Office of
Education and the public school system of Dade County,
has provided schooling for about 5,000 Cuban youngsters.
We have contributed something over $1 million to Dade
County's school budget. We have made loans in the amount
of $108,000 to nearly 400 Cuban students attending 51
colleges in 22 States. We have arranged, largely at Federal
expense, for a variety of courses for adults, mainly in language
training and in subjects which enable these people to equip
themselves for gainful employment and adapt themselves
more readily to our way of life. We have made arrange-
ments with the University of Miami to provide professional
training for Cuban doctors and lawyers, to establish a
roster of Cuban professors, and to establish research projects
which can usefully occupy the talents of Cuban scholars.
The Employment Service of the U.S. Department of
Labor has provided services to assist the refugees in seeking
and obtaining employment. With due regard for the sensi-
tive problems involved, registers of personnel and skills are
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18 MIGRATION AND REFUGEE ASSISTANCE
used locally and nationally in locating and developing em-
ployment opportunities for the refugees. This work and
these services are coordinated closely with the resettlement
service of the voluntary agencies to the end that effective
and satisfying resettlements can be brought about. Total
expenditures for the program as a whole from its beginning
in December 1960 to June 30, 1961, amounted to about $4
million. Expenditures in July 1961 have been about $LI
million. Direct Federal expense in the administration of this
program has been held to 4 percent of total expenditures.
* * * Circumstances * * * lend us to the practical neces-
ity of developing future programs that will enable our Cuban
friends to carve out new lives for themselves which, as they
might choose, could be adjusted either to an indefinite stay
or to permanent residence in the United States.
We propose to accomplish this by programs which will
Citable the refugees to become self-supporting and to accom-
modate themselves to our way of life. Education and em-
plovment are the keystones of the rogranm which we envision
for the future. Our educational plans include language
tr,iining as a fundamental need for all those who come to us
.vith an inadequate knowledge of English.
* * * Until such tune as resettlement becomes a practical
possibility for a refugee we, of course, would propose, as we
have in the past, to accept our responsibility for furnishing
the necessities of life.
* * * The refugee center established in Miami last Feb-
ruary would, of course, be continued. This center serves as
the focal point for registration, resettlement, and relief
activities and for the coordination of federally supported
services with those provided under other auspices.
* * * We hope * * * that we will be able to work out
phins that will enable refuges leaving Cuba to go immed-
iately to reception points other than those in the Florida
area. This would enable its to nrcotnniodate there more
readily and rnor.e satisfactorily.
Our educational programs should be expanded substan-
tially. These people, properly prepared and trained, can be
a treniendous asset to time 1nitcd States and to a free Cuba
in the futm e. By the same token, they area tremendous loss
to C,istro s dictatorship. For those AN-hose professional
education has been interrupted, as well as those with ctuali-
fieations and desire to enter the professions, we must provide.
the 11141p that- will enable therm to make their full rontribu-
tian in their respective fields of endeavor. We would propose
to do this by contributing to both education and maintenance
costs.
* * * there is clear evidence of a continuing and consis-
tently growing need of a federally supported program of aid
for Cuban refugees. The program to date has met with
grateful appreciation on the part of the refugees and accept-
ance and commendation by time public. The problem we are
dealing with is one of substantial size and may continue for
an indefinite period. It. is not, one that can' or should be
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MIGRATION AND REFUGEE. ASSISTANCE 19
dealt with through the use of temporary expedients or half
measures. Moreover, our country must maintain our tradi-
tion, to quote the President "* * * as a humanitarian
sanctuary" where many times, ,it has extended its hand and
material help to those `who are exiles for conscience sake.' "
The authority for our program provided in H.R. 8291 if acted
upon favorably will be an expression of this country's deter-
mination to assure protection and hospitality to those less
fortunate than we * * *.
3. Administrative operations.-A subcommittee of this committee
has extensively reviewed administrative and security operations con-
ducted by the Departments of State and Justice (Immigration and
Naturalization Service) in connection with the entry of Cuban refugees
into the United States and their remaining in this country pursuant
to the applicable provisions of the Immigration and Nationality Act.
The committee is satisfied that considering the realities and the
circumstances under which the Cuban refugees leave their native
island and reach the United States, the agencies involved exercise a
satisfactory degree of diligence and watchfulness designed to protect
the security of the United States. The committee wishes strongly to
recommend that the applicable procedures be maintained and con-
stantly reviewed with a view toward sustaining the imperatively
necessary degree of vigilance.
Iv. U.S. ESCAPEE PROGRAM
(Sec. 2 (b) (3) )
1. Statutory authority.-The basic authority for the creation and
operations of the U.S. escapee program originated with section
101(a) (1) of the Mutual Security Act of 1951 (Public Law 165, 82d
Cong.). The amendatory language to that section is generally re-
ferred to as the "Kersten amendment" (offered by Mr. Charles J.
Kersten, former Representative from Wisconsin).
The pertinent section of the law is quoted below with the language
of the Kersten amendment printed. in italic.
SECTION 101. (a) In order to support the freedom of
Europe through assistance which will further the carrying
out of the plans for defense of the North Atlantic area, while
at the same time maintaining the economic stability of the
countries of the area so that they may meet their responsi-
bilities for defense, and, to further encourage the economic
unification and the political federation of Europe, there are
hereby authorized to be appropriated to the President for
the fiscal year 1952 for carrying out the provisions and ac-
complishing the policies and purpose of this Act-
(1) not to exceed $5,028,000,000 for assistance pursu-
ant to the provisions of the Mutual Defense Assistance
Act of 1949, as amended (22 U.S.C. 1571--1604), for
countries which are parties to the North Atlantic Treaty,
for Spain, and for any country of Europe (other than a
country covered by another title of this Act), which the
President determines to be of direct importance to the
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20 MIGRATION AND REFUGEE ASSISTANCE
defense of the North Atlantic area and whose increased
ability to defend itself the President determines is im-
portant to the preservation of the peace and security of
the North Atlantic area and to the security of the.
United States (any such determination to be reported
forthwith to the Committee on Foreign Relations of the
Senate, the Committee on Foreign Affairs of the House
of Representatives, and the Committees on Armed
Services of the Senate and of the House of Representa-
Lives), and not to exceed $100,000,000 of such appropria-
tion for any selected,persons who are residing in or escapees
from the Soviet Union, Poland, Czechoslovakia, Hungary,
li umania, Bulgaria, Albania, Lithuania, Latvia, and
Estonia, or the Communist-dominated or Communist-occu-
pied areas of Germany and Austria, and any other coun-
tries absorbed by the Soviet Union either to form such per-
sons into elements of the military forces supporting the
North Atlantic Treaty Organization or for other purposes,
when. it is similarly determined by the President that such
assistance will contribute to the defense of the t 'orth At-
lantic area and to the security of the United States. In
addition, unexpended balances of appropriations hereto-
fore made for carrying out the purposes of the Mutual
Defcaise Assistance Act of 1949) as amended, through as-
sistance to any of the countries covered by this paragraph
are hereby authorized to be continued available through
June 30, 1952, and to be consolidated with the appro-
priation authorized by this paragraph. Section 408(c)
of tILe ;Mutual Defense Assistance Act of 19-19, as
amended (22 U.S.C. 1579), is hereby repealed. There
is hereby authorized to be appropriated to the President
for the fiscal year 1953 not to exceed $3,415,614,750, for
assistance pursuant to the provisions of Lite Mutual
Defense Assistance Act of 1949, as amended (22 U.S.C.
1571-1604) to countries eligible for assistance under this
paragraph; and in addition unexpended balances of any
appropriations heretofore made pursuant to this para-
graph are authorized to be continued available for their
original purposes through June 30, 1953, and to be con-
solidated with the appropriation hereby authorized.
The Kersten amendment was subsequently amended by section 703
of the Mutual Security Act of 1953 which reads as follows:
SECTION 703. ESCAPEES. Paragraph 101(a)(1) of title I
(relating to Europe) of the Mutual Security Act of 1951, as
amended, is amended (1) by deleting "similarly" before the
word "determined", (2) by inserting "or any Communist-
dominated or Coninmunist-occupied areas of Asia" immedi-
ately after "Austria", and before "any other countries ab-
sorbed by the Soviet Union" and (3) xby striking out "and
to the security of the Unites States" and inserting in lieu
thereof "or to Lite security of the United States".
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MIGRATION AND REFUGEE ASSISTANCE 21
In the Mutual Security Act of 1954, as amended, the Kersten
amendment appears in section 451 (22 U.S.C. 1951) which reads as
follows (emphasis-supplied) :
SEC. 451. PRESIDENT'S SPECIAL AUTHORITY AND CONTIN-
GENCY FUND.-(a) Of the funds made available for use under
this Act, not to exceed $150,000,000, in addition to the funds
authorized for use under this subsection by subsection (b)
of this section, may be used in any fiscal year, without regard
to the requirements of this Act or any other Act for which
funds are authorized by this Act or any Act appropriating
funds for use under this Act, in furtherance of any of the
purposes of such Acts, when the President determines that such
use is important to the security of the United States. Not to
exceed $100,000,000 of the funds available under this sub-
section may be expended for any selected persons who are
residing in or escapees from the Soviet Union, Poland, Czecho-
slovakia, Hungary, Rumania, Bulgaria, Albania, Lithuania,
Latvia, and Estonia, or the Communist-dominated or Commu-
nist-occupied areas of Germany, or any Communist-dominated
or Communist-occupied areas of Asia and any other countries
absorbed by the Soviet Union, either to form such persons into
elements of the military forces supporting the North Atlantic
Treaty Organization or for other purposes when the President
determines that such assistance will contribute to the defense of
the North Atlantic area or to the security of the United States.
Certification by the President that he has expended amounts
under this Act not in excess of $50,000,000, and that it is
inadvisable to specify the nature of such expenditures, shall
be deemed a sufficient voucher for such amounts. Not more
than $30,000,000 of the funds available under this subsec-
tion may be allocated to any one nation in any fiscal year.
The successive Mutual Security Acts of 1956, 1957, 1958, and 1959
have continued the authorization without amendment except for
changes in fiscal year designation and amounts authorized each year.
The escapee program actually came into being when President
Truman on March 22, 1952, in a letter to Mr. Harriman, Director for
Mutual Security, determined that $4,300,000 of mutual security
funds should be made available to implement the program under
section 101(a) (1) of the Mutual Security Act of 1951. On the same
date, the President notified the chairman of the House Foreign
Affairs and Armed Services Committees and of the Senate Foreign
Relations and Armed Services Committees of his determination.
Text of the letters follow:
MARCH 22, 1952.
MY DEAR Mr. CHAIRMAN: In compliance with section 101(a)(1)
of the Mutual Security Act of 1951, 1 hereby notify you that I have
today determined that it will contribute to the defense of the North
Atlantic area and to the security of the United States to initiate a
program to improve the reception and treatment and to secure the
resettlement of qualified people who escape from the Iron Curtain.
area. This program will supplement, but in no sense supersede, the
efforts now being made by the countries bordering on the Iron Curtain
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22 MIGRATION AND REFUGEE ASSISTANCE
area which carry the main responsibility for taking care of these
people.
This program has been recommended to tile by the Director for
Mutual Security with the concurrence of the agencies concerned.
It is their estimate that. approximately $4,300,000 of funds appropri-
ated under title I of the Mutual -Security Act will be required for the
calendar year 1952 to fund this program, which together with
$2,900,000 planned to be obtained from other sources including
counterpart and privately contributed funds, will slake possible the
carrying out of this program.
Representatives of the executive branch are prepalred, at your
convenience, to provide you and your commit tee colleagues personally
with further information about tIais program if desired.
Sincerely yours,
(Signed) IIAIIRY S. TliuMAN.
The above letter was sent to the following:
IIon. James P. Richards, chairman, House Foreign Affairs
Committee.
l1on. ']'am Connally, chairman, Senate Foreign Relations
Committee.
l1on. Richard D. Russell, chairman, Senate Arined Services
Committee.
IIon. Carl. Vinson, chairman, House Armed Services Committee.
Tim PRESIDENT,
The White House.
MARCH 20, 1952.
MY DEAR _Mu. PrtESIDENT: As you know, section 101(a)(1) of the
Mutual Security Act of 1951 provides a maximum of $100 Million for
possible use in connection with assistance to certain selected escapees
from the Iron Curtain area when it is determined by you that such
assistance will contribute to the defense of the North Atlantic urea
and to the security of the United States.
The departments concerned have approved it program toward
accomplishment of the objectives desired by the Congress. This pro-
gram is designed to improve the reception and treatment and secure
the resettlement of qualified people who escape from the Iron Curtain
countries and will supplement-, but in no sense supersede, the efforts of
the governments bordering on the Iron Curtain areas which carry [lie
main responsibility for taking care of these people. It is estimated
that a unaxununi of $7,200,000 will be required for this supplementatry
program during the calendar year 1952, of which $4,300,000 is to be
allocated from funds appropriated under authority of section 101(a)(1)
of title I of the Mutual Security Act. The balance of $2,900,000 is
planned to be obtained from other sources, including counterpart and
privately contributed funds.
It is the unanimous opinion of the Departments concerned that this
program is of immediate and utruost importance.. I concur in this
opinion and reconiniend that you determine the assistance planned
will contribute to the defense of the North Atlantic area and to the
security of the United States.
Sincerely yours,
(Signed) W. A. HARRIMAN.
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MIGRATION AND REFUGEE ASSISTANCE 23
MARCH 22, 1952.
Hon. W. AVERELL HARRIMAN,
Director for Mutual Security.
MY DEAR MR. HARRIMAN: In your letter to me dated. March 20,
1052, you advised that the departments concerned have recommended
a program to implement the provisions of section 101(a) (1) of the
Mutual Security Act of 1951. This program is designed to improve
the reception and treatment and secure the resettlement of qualified
people who escape from the Iron Curtain countries, and will supple-
ment but in no sense supersede the efforts now being made by the
governments of the countries bordering on the Iron Curtain area
which carry the main responsibility for taking care of these people.
You stated that all interested agencies have agreed that this program
is one of importance and urgency, and that you concur in their opinion.
In view of these recommendations, I hereby determine as required
by section 101(a) (1) of the Mutual Security Act of 1951, that such
assistance will contribute to the defense of the North Atlantic area
and to the security of the United. States, and that not to exceed
$4,300,000 of funds appropriated for said act should be made available
to implement this program.
Sincerely yours,
(Signed) HARRY S. TRUMAN.
2. USEP operations.-Mr. Roger W. Jones, the Deputy Under
Secretary of State for Administration, presented the U.S. escapee
program to a subcommittee of this committee as follows:
* * * The U.S. escapee program (USEP) established in
1952, provides reception, interim care and maintenance, re-
settlement and local integration assistance to recent escapees
from the Soviet Union and satellite countries in Europe and
to selected escapee groups or individuals in other areas of
the world including the Far East. The purpose of this
unilateral effort is to serve the U.S. interests by demon-
strating the concern of the West for those who escape Com-
munist oppression and seek asylum in the free countries of
the world.
Operating primarily through contracts with the nonprofit
voluntary agencies, the U.S. escapee program reimburses
these agencies for actual expenses incurred under individually
approved projects that implement escapee program policy
objectives and are in keeping with the humanitarian objec-
tives of the agencies themselves. All projects, closely
supervised by the USEP staff, are developed with an eye to
the overall operational objective of establishing the escapees
as useful and self-sustaining citizens of the free world com-
munity.
By effecting the resettlement of escapees from the countries
bordering the Iron Curtain, the escapee program helps to
alleviate the serious economic and political impact of the
escapees on the countries in which they seek asylum. Thus
the program has helped to promote the initiation or reten-
tion. of liberal asylum policies for those who continue to seek
haven.
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24 MIGRATION AND REFUGEE ASSISTANCE
The escapee program in the Far East centered in Hong
Kong and operating as the Far East refugee program (FEIO)
serves the same national objectives as does LTSEP elsewhere.
foreover, through its assistance to selected Chinese refugees,
the Far East refugee program repudiates communist propa-
ganda allegations that U.S. policy discriminates against
non-Euuopean peoples, strengthens the anti-Communist
resolve of the refugee leaders, and plays a considerable role in
stimulating the local authorities toward. providing increasing
mass relief and rehabilitation measures.
Considerable progress has been made in reducing the
number of escapees in need of assistance since the U.S.
escapee program was established in 1952 despite a large
backlog accumulated since and before 1948 and the fact that
tens of thousands--over 200,000 Hungarians in 1956-57
alone --ha.ve escaped during this period. Front 1952 through
March 31, 1961, 143,544 escapees have been resettled in other
countries from Europe and the Near East while 34,554 have
been integrated in first asylum countries. Duringg the same
period, the Far East refugee program has. resettled 23,556
escapees from Hong Kong and has provided local integration
and other assistance to 413 others. Overall, the U.S.
escapee program has assisted more than 660,000 individual
escapees.
By tho end of 1961, it is estimated that. USEP will have
approximately 6,000 escapees on the caseload (exclusive of
the Far East.) with some 8,000 escapees in Europe and the
Near East added during 1962. By the end of 1962, it is
expected that over 8,000 of these escapees will have been
reestablished due to program services and efforts during the
year. In 1955 the administration established a policy that
all escapees eligible for LTSEP assistance who were registered
by the voluntary agencies must be resettled or firndy inte-
grated within a period of 3 years from the date of their
registration. This procedure has accrued priority attention
on the USEP caseload by the agencies. The procedure has
also assured a USEP caseload of recently arrived escapees
upon whose permanent solution the agencies could devote
current and active Worts. In [lie Far East, program projects
will continue to dace emphasis, on a selective basis, upon the
rehabilitation ofl professional, intellectual, and other leader-
ship elements by resettlement in other countries where
possible, or by integration within Hong Kong. Develop-
ment of local medical facilities and Lite provision for education
and orientation of the youth among the Chinese refugees will
continue to receive FERP priority consideration. The
continuing distribution of U.S. surplus commodities under
provisions of Public Law 480 will complement the various
types of U.S. and international assistance rendered the
Chinese refugees.
It has been noted that considerable progress has been
made in reducing the total number of escapees on the USEP
caseload in Europe and the Near East and that many Far
East refugees have been assisted. However, experience has
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MIGRATION AND REFUGEE ASSISTANCE 25
shown that the refugee problem is anything but static. It is
continually changing in its nature, in its dimensions and in
its location. It is constant only in one respect, it will con-
tinue to exist as long as conditions exist which create it-
political tyranny, international conflicts, and tensions. It
is not, therefore, a problem which can be defined at once for
all time nor met by establishing a program for a specified
number of years with a specified amount of money. * * *
The expenditures of the U.S. escapee program for the last 5 years
were as follows:
1957------------------------------------------------------ $6,000,000
1958------------------------------------------------------- 5,500,000
1959-------------------------------------------------------- 8,600,000
1960------------------------------------------------------- 14,632,000
1961 ------------------------------------------------------- 13,350,000
1 In 1960 and 1961, Congress also authorized the availability of unobligatod prior year funds which came
to $568,000 and $166,000, respectively.
Total number of escapees receiving assistance under the U.S.
escapee program in Europe and the Near East for the last 5 years
and the current year is as follows:
1956------------------------------------------------------------ 47,582
1957------------------------------------------------------------ 70,262
1958------------------------------------------------------------ 75,674
1959------------------------------------------ -------- 64,451
1960------------------------------------------------------------ 39,395
19611----- - - - - - ---- -------------- --- --- ------------------------ 20,433
1 Estimate.
The extent of funds allocated by USEP to private voluntary
agencies under contracts in the course of the last 2 fiscal years is
indicated by the following tables submitted by the Department of
State:
1960 contracts with voluntary agencies
Voluntary agency.: Total amount
Catholic Relief -Services-National Catholic Welfare Con- of contracts
ference --------------------------------------------- $1, 359, 698. 02
International Rescue Committee------------------------ 219, 310. 00
Lutheran World Federation----------------..------------ 147, 240. 00
Church World Service---------------------------------- 68,270.00
Catholic Foreign Mission Society of America-------------- 80, 000. 00
Care--------- -- ----------------------------- 31,000.00
World Council of Churches----------------------------- 695,312. 00
International Social Service----------------------------- 55 800. 00
American Foundation for Oversea Blind------------------ 20, 290. 00
Aid for Refugee Chinese Intellectuals-------------------.. 6, 447.36
Free China Relief Association-------------------------- 89 000. 00
Jami at al Islam--------------------------------------- - 4, 000. 00
World Alliance of Young Men's Christian Association------ 18, 519. 00
Polish American Immigration. and Relief Committee------- 28, 550. 00
United Ukrainian American Relief Committee------------- 26, 000. 00
Tolstoy Foundation------------------------------------ 160,607.00
American Fund for Czechoslovak Refugees--------------- 27, 450. 00
Grand total----------------------------------------- 3, 037, 493. 38
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Voluntary agency: ofconiracts
International Rescue Committee ------------------------ $180, 447.50
Catholic Relief Services/ National Catholic Welfare Con-
ference--------------------------------------------- 606,538. 00
Church World Service---------------------------------- 34 950.00
American Friends of Russian Freedom___________________ 40, 000. 00
World's YMCA/YWCA-------------------------------- 5,760.00
Tolstoy Foundation, Inc-------------------------------- 128, 970. 00
Polish American Immigration and Relief Committee-____-- 59, 050. 00
American Fund for Czechoslovak Refugees--------------- 30, 800. 00
United Ukranian American Relief Committee------------- 9,750.00
Intergovernmental Committee for European Migration-____ 500, 000. 00
International Social Service_____________________________ 48, 900. 00
American Foundation for Oversea Blind__________________ 10, 300. 00
Catholic Foreign Mission Society of America -------------- 50, 000.00
Lutheran World Relief --------------------------------- 60, 000. 00
Lutheran World Federation_____________________________ 20, 000. 00
World Council of Churches----------------------------- 45, 000. 00
3. Recommendations. --Tile committee agreed to continue in effect,
with minor modifications, the language of the "Kersten amendment"
in order to stress and uphold the political and defense aspects of the
U.S. escapee program.
In so providing in the bill the committee wishes urgently to recom-
mend that the President, possibly with the assistance of the Secretaries
of State and Defense, undertake a full and complete review of the
policies and operations of the U.S. escapee program as hitherto de-
veloped and applied and that lie, himself determine the extent, the
nature, and the objectives of USEP's future activities authorized in
this legislation.
Numerous studies undertaken by this committee lead to the con-
clusion that what was originally conceived to serve primarily the
national interest of the United Atates- specifically, the defense and
foreign policy aspects thereof-has gradually evolved into a welfare
program, possibly meritorious in itself, but not envisaged in the 1951
enactment, generally known as the Kersten amendment.
Extensive use of the services of private voluntary agencies under
a multitude of almost globally spread contractual arrangements
appears to have contributed to the vitiation of the intent of the 1951
law and its successive modifications. The preponderance of welfare
elements and attitudes in the operations of the U.S. escapee program
has resulted in the inclusion into its framework of a sizable number
of refugees who do not fit into the term "political refugee" or "escapee"
as generally applied in international usage and in related U.S. legisla-
tion. In fact, a considerable number of persons assisted by USEP in
Europe and elsewhere are what is commonly described as "economic
refugees," persons seeking economic betterment outside of the country
which they decide to abandon rather than political exiles fleeing per-
secution on account of their race, creed, or political opinion.
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MIGRATION AND REFUGEE ASSISTANCE. 27
The committee believes that economic assistance considerations
increasingly evident in the operations of USEP in the course of the
last 6 or 7 years have by far outweighed the political and defense con-
siderations inherent in the basic enactment and. its intent, clearly
indicated by the Congress.
The inclusion into the contracts entered into between USEP and
the private voluntary agency of clauses relating to employment of
personnel for the purpose of assisting, counseling, and generally pro-
viding care for and guidance to the escapees, similarly needs review
and revision from the standpoint of defense and security aspects of
the old and the new law.
Persons-many of whom are aliens-employed by voluntary agen-
cies and paid out of appropriated Federal funds are not subject to
Federal standards of employee qualifications and applicable screening
procedures. Similarly, U.S. citizens employed by the various private
voluntary agencies under contract with USEP are not subject to such
standards. There appears here-as well as elsewhere-to exist a
rather obvious conflict between USEP's contractual arrangements
with private voluntary agencies and the m.andatorily required com-
pliance with the requirements of the statute to the effect that the
program. shall serve the security of the United States (see. 451 of the
Mutual Security Act of 1954, as amended).
In order to insure a more efficient administration of the U.S. escapee
program and with a view toward contributing to the development of
a policy fully consistent with the aims and purposes of this legislation,
the committee has, in section 4 of the instant bill, provided for per-
sonnel and agency arrangements which should permit the President
immediately to place the supervisory and contracting authority of the
program on a higher, more responsible level of administration.
ANALYSIS OF ADMINISTRATIVE PROVISIONS
1. Section 2 (c) and (d)
Section 451 of H.R. 8400, a bill providing for the enactment of the
Act for International Development of 1961 (passed by the House on
August 18, 1961), authorizes not to exceed $300 million for fiscal year
1962 to be appropriated for a contingency .fund to be used for purposes
of economic assistance when the President determines it to be impor-
tant to the national interest.
According to House Report No. 851 accompanying H.R. 8400, the
above cited section 451-
provides funds to meet requirements which are either com-
pletely unforeseen or which are identified but without enough
precision to warrant inclusion in one of the other categories.
House Report No. 851 further states that a-
provision establishing a contingency fund available to the
President with broad discretion as to its use is contained in
the former Mutual Security Act (sec. 451(b)) which was avail-
able for both military and economic assistance.
Section 2(c) of the instant bill authorizes the use of not to exceed
$10 million of the funds made available under the Act for International
Development of 1961 for the use of the President in order to meet
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unexpected refugeo and migration developments, when the President
determines such use to be important to the national interest.
Subsection (d) of the said section 2 requires that the President
keep [lie appropriate committees of Congress currenth, informed of
the use of funds and [he exercise of all functions authorized in the
bill. This requirement is not contained in the existing law.
2. Section 2(e)
Subsection (e) of section 2 of the bill authorizes that unobligated and
unexpended balances of fiscal year 1961 funds allocated for refugee,
migrant, and escapee programs may be continued available in fiscal
year 19G2 for [lie general purposes for which appropriated and to be
consolidated with the appropriation authorized by section 2 of the
bill. The funds so allocated were made available pursuant. to sections
405(a), 405(c), 405(d), and 451 of the Mutual Security Act of 1954,
as amended, now proposed to be repealed. This provision reflects the
continuing nature of the refugee and escapee programs, the operations
of . hich do not coincide with the end of the fiscal year. Without
this provision, and appropriation action, unobligated funds would
revert to the Treasury.
3. Section 3(a)
Section 3(a) of the bill authorizes the President, in carrying out [lie
purposes of the bill, to make contracts and agreements and otherwise
cooperate with L.S. Government agencies, international organizations,
foreign governments, private nonprofit organizations, and other
private organizations, individuals, and firms. Thus, this provision
provides statutory authority for necessary flexibility and exempts the
assistance programs from the more narrow and limiting authorities
generally covering Government contracts.
4. Section 3(b)
The authorization contained in section 3(b) of the bill would per-
mit the President, when he. determines it to be in furtherance of the
purposes of the bill, to waive provisions of the law (other than the
Renegotiation Act of 1951, as amended) regulating the making, per-
formance, amendment or modification of contracts and the expendi-
ture of Government funds. This provision is the same as contained
in section 533 of the Mutual Security Act of 1954, as amended,
pursuant to which laws requiring advertising for bids, prohibiting
advance payments under contracts and establishing other require-
ments were waived by Executive Order No. 10784.
5. Section 4
For the purposes stated elsewhere in this report (cf. "U.S. escapee
program"; part: 3, recommendations), the provisions relating to the
delegation of authority vested in the President under the instant bill
are subjected to the general provisions of section 301 of title 3, United
States Code, which reads as follows:
? 301. General authorization to delegate functions; publica-
tion of delegations.
The President of the United States is authorized to dcsi-
nate and empower the head of any department or agency in
the, executive branch, or any official thereof who is required
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to be appointed by and with the advice and consent of the
Senate, to perform without approval, ratification, or other
action by the President (1) any function which is vested in
the President by law, or (2) any function which such officer is
required or authorized by law to perform only with or subject
to the approval, ratification, or other action of the President:
Provided, That nothing contained herein shall relieve the
President of his responsibility in office for the acts of any such
head or other official designated by him to perform such
functions. Such designation and authorization shall be in
writing, shall be published in the Federal Register, shall be
subject to such terms, conditions, and limitations as the
President may deem advisable, and shall be revocable at any
time by the President in whole or in part.
Further limitation upon the delegation of authority provided for in
connection with functions specified in section 3 of the bill affects the
making of financial arrangements and contracts. This limitation is
designed further to implement the recommendations made by the
committee in this report, as above indicated.
Under subsection (b) of section 4 the President is authorized to
carry out the purposes of the bill through any agency of the U.S.
.Government. These provisions permit funds available for the pur-
poses of the bill to be allocated to any Government agency in con-
nection with activities under the bill. Funds so allocated could be
spent in accordance with authority governing the activities of the
agency to which the funds were allocated. Thus, the Department of
Defense, the International Cooperation Administration, etc., could be
requested to carry out certain functions. Also, the President could,
under this provision, transfer all refugee activities to an agency other
than the Department of State, if he deemed it advisable. In case
of transfer of funds to another agency, the funds must be utilized
for their original purpose, i.e., for assistance to refugees, but the actual
expenditures may be made in accordance with the provisions of the
bill or under authorities normally available to the agency concerned.
The last sentence of section 4(b) is permissive. In case of large sums
to be transferred to another agency, an account can be set up in the
'Treasury against which the agency may draw, thus obviating excessive
bookkeeping transfers between agencies.
The provisions relating to the allocation or transfer of funds are
,thesame`as the; provisions of section 522(a) of the Mutual Security
Act of 1954, as amended, with appropriate modifications.
6. Section 5
The provisions of section 5 (a) relating to compensation allowances
and travel of personnel are substantially the same as heretofore
included in section 411(c) of the Mutual Security Act of 1954, as
.amended, and do not vary from similar provisions contained in com-
-parable legislation affecting governmental activities abroad.
Similarly, provisions relating to personnel services abroad, exchange
of funds, and expenses authorized by the Foreign Service Act of 1946,
as amended, are derived from the existing law, namely, section 537
'(a), (3)., (7), and (17) of the Mutual Security Act of 1954, as amended.
Subsection (b) of section 5 serves the same purpose as section 543 (a)
,of the Mutual Security Act of 1954, as amended. It is designed to
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permit, except as may be expressly provided to the contrary in the
bill, continuity of operations and programs by preserving, until modi-
fied by appropriate- authority, organizational, administrative, fiscal,
and other actions initiated under authority of the Mutual Security
Act of 1954, as amended, with respect to refugee, migrant and escapee
programs.
7. Section G
Section 624 of ILR. 8400 in proposing to repeal, with certain excep-
tions, the Mutual Security Act of 1954, its amended, includes the
repeal of section 451 of the said act for which section 2(b)(3) of this
bill is designed to be the substitute.
Inasmuch as subsections (a.), (c), and (d) of section 405 of the
Mutual Security Act of 1954, as amended, are not proposed to be
repealed by the Act for International Development of 1961 (II.R.
8400), they are repealed by the instant bill which provides the sub-
stitute in section 2(a), (b)(1) and (b)(3).
Upon the consideration of all the facts involved in this problem
and having carefully evaluated the merits of this legislation, the
committee recommends that the bill H.R. 8291, as amended, do pass.
In compliance with paragraph 2 of clause 3 of rule XIII of the
Rules of the House of Representatives, changes in existing law made
by the bill are shown as follows (new matter is printed in italic,
matter proposed to be omitted is printed in black brackets, existing
law in which no change is proposed is printed in roman):
SECTION 405 OF TILE MUTUAL SECURITY ACT OF 1954, As AMENDED
[Sic. 405. MWUANTS, REFUGEES, AND ESCAPEES] SEC. 2. (a)
The President is hereby authorized to continue membershi for the
United States [on] in the Intergovernnment,al Committee for European
Miggration in accordance with its constitution approved in Venice,
Italy, on October 19, 1953. For the purpose of assisting in the
movement of refugees and migrants[,] and to enhance the economic
progress of the developing countries by providing for a coordinated supply
of selected manpower, there [is] are hereby authorized to be appro-
priated Such amounts as may be necessary from time to time for the
payment by the United States of its contributions to Lite Committee
and all necessary salaries and expenses incident to United States
participation in the Committee[.] ;
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MIGRATION AND REFUGEE ASSISTANCE 31
PROPOSED LAW OLD LAW
(b) There are hereby authorized SEc. 405(c) and (d) of the
to be appropriated such amounts as Mutual Security Act of 1954, as
may be necessary from time to amended.
time- [(c) There is hereby author-
(1) for contributions to the ized to be appropriated for the
activities of the United Nations fiscal year 1961 not to exceed
High Commissioner for Refugees $1,300,000 for contributions to
for assistance to refugees under the program of the United Nations
his mandate or in behalf of whom High Commissioner for Refugees
he is exercising his good offices; for assistance to refugees under
(2) for assistance to or in his mandate.
'behalf of refugees in the United
States whenever the President
shall determine that such assist-
ance would be in the interest of
the United States: Provided, That
the term "refugees" as herein
used means aliens who (A) be-
cause of persecution or fear of
persecution on account of race,
religion, or political opinion, fled
from a country of the Western
Hemisphere; (B) cannot return
thereto because of fear of persecu-
tion on account of race, religion,
or political opinion; (C) have not
been admitted for permanent resi-
dence under the Immigration and
Nationality Act; and (D) are in
urgent need of assistance for the
essentials of life, or for educa-
tion, or for transportation; and
(3) for assistance to escapees [(d) There is hereby author-
from the Soviet Union, Poland, ized to be appropriated to the
Czechoslovakia, Hungary, Ru- President for the fiscal year 1961
mania, Bulgaria, Albania, Lith- not to exceed $3,500,000 for con-
uania, Latvia, and Estonia, or tinuation of activities, including
the Communist-dominated or care, training, and resettlement,
Communist-occupied areas of which have been undertaken for
Germany, or any Communist- selected escapees under section 451
dominated or Communist-occu- of this Act.]
pied areas of Asia and any other
countries absorbed by the Soviet
Union, either to form such
persons into elements of the mili-
tary forces supporting the North
Atlantic Treaty Organization or
in furtherance of the objectives of
the foreign policy of the United
States when the President de-
termines that such assistance will
contribute to the defense of the
North Atlantic area or to the
security of the United States.
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 Approved For Release 2006/11/07: CIA-RDP63T00245R000100080009-3
32 MIGRATION AND REFUGEE ASSISTANCE
PROPOSED LAW OLD LAW
Funds appropriated .for the pur-
poses of this subsection shall remain
available until expended;
(c) Of the funds made available
for use under section 451 of the Act
for International Development of
1961, not to exceed $10,000,000
may be used in any fiscal year in
order to meet unexpected rcfugee and
migration developments, when the
President determines such use as to
be important to the national interest;
(d) The ]'resident shall keep the
appropriate committees of Congress
currently informed of f the use of
funds specified in this section;
I+or purposes of reference, section 451(a) of the Mutual Security
Act of 19:54, as amended, which section is proposed to be repealed by
Il.R. 8400 (passed by the House of Representatives on August 18,
1961) is printed below.
SEC'. 451. PIIESIDINT'S SPECIAL AUTIIOIIITY AND CON-
TINGENCY FUND. -- (a) Of the funds made available for use
under this Act, not to exceed $150,000,000, in addition to
tlie funds authorized for use under this subsection by subsec-
tion (b) of this section, may be used in any fiscal year, without
regard to the requirements of this Act or any other Act for
which funds arc authorized by this Act or any Act appro-
priating funds for use under this Act, in furtherance of any
of the purposes of such Acts, when the President determines
that such use is important to the security of the United
States. Not to exceed $100,000,000 of the funds available
under this subsection may be expended for any selected
persons who are residing in or escapees from the Soviet
Union, Poland, Czechoslovakia, Hungary, Rumania, Bul-
garia, Albania, Lithuania, Latvia, and Estonia, or the Com-
munist.-dominated or Conilnunist-occupiod areas of Germany,
or any Conununist-dominated or Communist-occupied areas
of ..sia and any other countries absorbed by the Soviet
Union, either to form such persons into elements of the
militar - forces supporting the North Atlantic Treaty Organi-
zation or for other purposes when the President determines
that such assistance will contribute to the defense of the
North Atlantic area or to the security of the United States.
Certification by the President that he has expended amounts
under this Act not in excess of $50,000,000, and that it is
inadvisable to specify the nature of such expenditures, shall
be deemed a sufficient voucher for such amounts. Not more
than $30,000,000 of the funds available under this subsection
may be allocated to any one nation in any fiscal year.
The remainder of the bill is proposed new law.
0
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