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President Bush Pushes for Increased Enforcement and a Temporary Worker Program
By Julia Gelatt
Migration Policy Institute
December 1, 2005
Policy Beat In Brief...
President Bush Renews Commitment to Immigration Reform
President Bush once again addressed the need for comprehensive immigration
reform in two speeches in Arizona and Texas, outlining his proposals for increased
border and interior enforcement and for a temporary worker program. By emphasizing
both enforcement and the need for workers, many observers believe Bush is trying
to please both Republicans who want tougher border controls and Republicans
who see immigrant labor as necessary for business.
Bush's speeches, on November 28 and 29, reiterated his commitment to
addressing the growing concerns about unauthorized migration and the costs
it may bring to the country's schools and hospitals, as well as concerns about smugglers and border
violence and national security.
Bush emphasized measures his administration has already taken to secure the
border and enforce immigration law, including increased funding for border
security and interior investigations, new technology at the border, increased
physical barriers to entry, the implementation of expedited removal in parts
of Texas and New Mexico, and a program of interior repatriations to transport
unauthorized Mexican immigrants to their home communities, rather than sending
them back across the border.
He reemphasized the need to end the "catch and release" practice
whereby non-Mexican unauthorized immigrants are released prior to court proceedings
due to a lack of detention space and then frequently abscond into the United
States. Bush proposed to increase detention bed space and work with foreign
governments in order to eliminate this practice. He described plans for
border-wide implementation of expedited removal for non-Mexican immigrants,
which allows officials to deport unauthorized entrants in about a third of
the time normally required.
Bush also called on Congress to revise US immigration law. He said current
law requires the government to release unauthorized entrants if their home
countries do not take them back within a given period of time, a practice that
sometimes requires the government to set free known murderers or other criminals. He
asked Congress to enact legislation to address the "cycle of endless
litigation" in immigration courts. He said some federal courts
have seen a five-fold increase in immigration appeals, partly due to new appeals
rights granted to unauthorized entrants.
After outlining proposals for enhanced enforcement, the president reviewed
his proposal for a temporary worker program, which he said would relieve pressure
on the border. Stating his opposition to amnesty, Bush explained that
his proposal would allow workers to come for a set period of time and then
require them to return to their home countries.
He said he understands the diversity of opinions on his proposal, but that
the country cannot effectively enforce its immigration laws until they create
a temporary worker program. Bush was accompanied in Arizona by the state's
Senators Jon Kyl (R) and John McCain (R), who have introduced competing immigration
- To read Bush's November 28 speech on immigration reform, click
- To view an outline of the president's proposal, click here.
Senate Set to Consider Immigration Reform in Early 2006
Amidst a growing flurry of immigration reform proposals, Senator Chuck Hagel
(R-NE) and Senate Judiciary Committee Chairman Arlen Specter (R-PA) recently
introduced two new proposals for comprehensive immigration reform.
However, Senate Majority Leader Bill Frist (R-TN) has pledged that the Senate
will wait until early 2006 to discuss immigration reform, stating that the
chamber would begin with enforcement measures, and only then turn to a guest
The House is currently poised to consider border security reforms as early
as the beginning of December.
Hagel's series of bills calls for strengthened immigration enforcement,
an employment verification system, a path for unauthorized immigrants to adjust
to lawful residence, and a temporary worker program open to immigrants in the
United States and abroad.
Specter drafted a "Chairman's Mark," which combines sections
from several immigration bills in the Senate, including Hagel's, as well
as earlier bills introduced by Senators John McCain (R-AZ) and Ted Kennedy
(D-MA) and by Senators John Cornyn (R-TX) and Jon Kyl (R-AZ). Specter's
draft also includes a temporary worker program, but would require that unauthorized
immigrants leave the country before applying to participate.
Specter stated in a letter accompanying the draft that he does not support
every measure in the mark, but that he intends for the draft to move debate
forward. Specter's mark is expected to be the starting point for
Senate debate early next year.
Immigration Enforcement: Both Hagel and Specter's proposals
would strengthen immigration enforcement by increasing the number of Customs
and Border Protection (CBP) officers, updating technology at the border, expanding
expedited removal to all border patrol sectors along the southern border, increasing
detention bed space, and increasing penalties for immigrant smuggling, document
fraud, misuse of Social Security numbers, gang violence, and drug trafficking
at the border. These enforcement measures closely mirror those proposed
by Senators Cornyn and Kyl.
Local and State Authorities: Specter's bill would also authorize
state and local law enforcement authorities to identify, detain, or transfer
unauthorized immigrants to federal authorities if the immigrants were under
investigation. Hagel's measure calls for reimbursement of state and local
governments for costs associated with processing unauthorized immigrants through
the criminal justice system, but stops short of granting local law enforcement
authority to make arrests for immigration law violations.
Worksite Verification: Like the Corynyn-Kyl and Kennedy-McCain proposals,
Hagel and Specter's bills would mandate employers to verify, through
an electronic system, that potential employees are eligible to work in the
United States, and it would double penalties for employers caught with unauthorized
employees. Both new proposals would also limit documents a person could
use to prove their work eligibility to Social Security cards and government-issued
ID cards that are machine-readable and tamper-resistant.
Unauthorized Immigrants/ Temporary Work: Hagel and Specter's
proposals diverge in their treatment of unauthorized immigrants present in
the United States. Hagel's temporary worker program is similar
to the Kennedy-McCain proposal in allowing unauthorized immigrants to join
without returning to their countries of origin. Up to 250,000 workers
could participate annually, and they could work in the country for up to two
two-year periods. They could apply for permanent status after three years
of participation, earlier with employer sponsorship. Another 100,000 could
apply for short-term temporary work visas good for up to nine months, under
a revision of the existing H-2B visa program.
Hagel would also allow unauthorized immigrants who have been present in the
country since 2000 and worked for three years during that time to apply to
adjust to legal status if they work for an additional six years and pay a fine
of $2,000. Those who could not meet the requirements of this program
would be required to return to their country of residence, though they could
remain in the United States and work for an additional three years. Such
immigrants would be allowed to apply to reenter through legal channels after
returning to their previous country of residence.
Specter's markup more closely resembles the Cornyn-Kyl proposal on this
issue, requiring unauthorized immigrants to return home before applying to
become temporary workers. Unauthorized immigrants would be required to
apply for deferred mandatory departure, which would oblige them to leave the
country within five years. After departing, they could return through
a new temporary worker program, or through existing temporary and permanent
channels. Specter's temporary worker program would allow workers to enter
for up to two three-year periods and to adjust to permanent status with employer
sponsorship. Drawing on the Kennedy-McCain proposal, Specter's mark sets
an initial cap of 400,000 for these visas, and proposes a system of quarterly
market-based adjustments to the limit.
On November 17, the House Homeland Security Committee approved a bill sponsored
by Committee Chairman Peter King (R-NY) that would increase border patrol staffing
by 2,000 a year (as called for under the existing Intelligence Reform and Terrorism
Prevention Act of 2004), expand detention bed space, incorporate new technology
at the border, and address communication problems between US Immigration and
Customs Enforcement (ICE) and US Customs and Border Protection (CBP).
Judiciary Committee Chairman James Sensenbrenner (R-WI) has said he will introduce
immigration legislation soon, and House Majority Whip Roy Blunt (R-MO) has
indicated the full chamber would vote on both bills the first week in
DHS Inspector General Calls for Merger of ICE and CBP
A report by the Department of Homeland Security (DHS) Inspector General has
concluded that Customs and Border Protection (CBP) and Immigration and Customs
Enforcement (ICE) should be merged to form a consolidated border security agency
with a single chain of command.
The report found that CBP and ICE are not successfully coordinating intelligence-gathering efforts
on unauthorized or potentially dangerous immigrants,
or on apprehensions, detentions, or removals.
While the Border and Transportation Security Directorate (BTS) has responsibility
for overseeing the two agencies and coordinating efforts, the Inspector General's
report states that BTS has insufficient funding and staffing to effectively
synchronize CBP and ICE's operations.
Investigations leading to the report found that many DHS employees are frustrated
about unclear missions and dependency on remote bureaucracies for services
and cooperation. They also do not trust DHS leadership.
Before the creation of DHS in 2003, most immigration enforcement and border
control responsibilities were united under the Immigration and Naturalization
Service (INS), with customs responsibility falling under US Customs Service
within the Department of the Treasury.
Now, CBP and ICE have divided immigration enforcement duties, and both agencies
rely heavily on each other. For instance, ICE depends on referrals from CBP
inspectors, and CBP relies on ICE detention and removal resources to deport
aliens apprehended at the border.
The House Homeland Security Subcommittee on Management, Integration, and Oversight
held a hearing on the recommended merger on November 15. None of the
subcommittee members in attendance voiced opposition to the proposed merger.
DHS Secretary Michael Chertoff announced substantial reorganization of the
department in July, at the end of his Second Stage Review, but did not call
for an ICE-CBP merger at that time (see the August 2005 Policy
Beat for details.)
- To read the Inspector General's report, click
Budget Reconciliation Bills Affect Immigration Caps, Food Stamps for
Both the House and Senate have included provisions affecting US immigration
in their versions of the Budget Reconciliation Bill, which is aimed at balancing
tax receipts and government spending.
The Senate version of the bill includes measures, introduced by the Judiciary
Committee, that would "recapture" 90,000 unused employment-based green
cards and impose an additional $500 visa application fee. It would also
recapture 30,000 H-1B visas for temporary high-skilled workers and charge an
additional $500 fee on these recaptured visas.
The Senate bill calls for removing family members from the cap on employment-based
immigration visas, which could increase legal immigration by an estimated 150,000
to 240,000 people a year. The full Senate approved the budget reconciliation
bill in a 52-47 vote on November 3.
The House version of the bill would not increase legal immigration levels
or adjust the H-1B temporary worker program, but it contains provisions affecting
immigrants already resident in the United States. The House bill, approved
in a 217-215 vote on November 18, would require legal immigrants to live in
the United States for seven years, rather than the current five years, before
becoming eligible to receive food stamps.
The Congressional Budget Office (CBO) estimates that 70,000 legal immigrants
be cut from the food stamp program. The House bill would affect other
government assistance programs such as Medicaid, child care assistance, and
enforcement for child support payment enforcement.
The two bills will now move into a House-Senate Conference Committee where
differences between them will be worked out.
- To read the Senate Deficit Reduction Omnibus Reconciliation Act of 2005
(S. 1932), click
- To read the House Deficit Reduction Act of 2005 (H.R. 4241), click here.
US Labor Market Able to Absorb New Workers — CBO Report
The US Congressional Budget Office (CBO) has found that the effects of immigrant
workers on native's wages remain unclear, but generally the US labor
market is very flexible in absorbing new workers.
The CBO analyzed Census data to describe some of the characteristics of foreign-born
workers, who made up about 14 percent of the US labor force in 2004. The
CBO found that foreign-born workers have relatively less education than the
native born, particularly those from Mexico and Central America, though there
are also large numbers of highly educated immigrants.
Immigrants from Mexico and Central America earn substantially less, on average,
than native workers, with men from those regions earning only half as much
as native men, and women earning about three-fifths the amount earned by native
The report noted that geographically based studies have found that the evidence
is inconclusive on the effects new immigrant workers have on labor markets,
except that immigrants from earlier waves do seem to experience reduced wages
as a result of competition from newer immigrants.
Other studies with a national focus have found that immigrant workers slightly
depress the wages of native workers, especially native workers who have not
completed high school, but the CBO report argues these effects are likely short
term, lasting only until the labor market has time to adjust to new entrants.
Overall, the report concludes that effects are difficult to estimate, but
that earnings of native workers whose education and skills most closely match
those of new immigrants may be adversely affected by immigrant workers. However,
longer-term effects are even more difficult to quantify since even low-skilled
workers may be motivated by falling wages to increase their skill levels.
CBO Director Douglas Holtz-Eakin testified before the House Committee on Education
and the Workforce on November 16 to explain his office's findings. The
Committee is preparing to report to Congress on the possible labor effects
of pending immigration legislation.
- To read the CBO report, "The Role of Immigrants
in the U.S. Labor Market," click here.
Policy Beat in Brief:
2006 Refugee Numbers. President Bush authorized
the admission of 70,000 refugees to the United States in fiscal year (FY) 2006,
maintaining the same ceiling set for FY 2005. Bush authorized the admission
of 20,000 refugees from Africa, 15,000 from East Asia, 15,000 from Europe and
Central Asia, 5,000 from Latin America and the Caribbean, and 5,000 from the
Near East or South Asia; the remaining 10,000 are unallocated. The actual
number of refugees admitted in 2005 was 53,813 because of budget constraints.
DREAM Act. The Development, Relief, and
Education for Alien Minors (DREAM) Act of 2005, which would provide unauthorized
immigrant youth a path to legal status, was reintroduced in the Senate on November
19 by a bipartisan group of senators. The DREAM Act would allow immigrant
youth who have been raised in the United States to apply for six years of conditional
legal status, which would be made permanent if they attend college or serve
in the military. The bill has been introduced in previous sessions of Congress,
but has not come to a vote. The main sponsors of the DREAM Act of 2005
are Richard Durbin (D-IL), Chuck Hagel (R-NE), and Richard Lugar (R-IN).
Child Deportations. A report by the Mexican
United Nations Children's Fund (UNICEF) and Mexico's National System
for Integral Family Development (DIF) found that unauthorized immigrant children
from Mexico are often mixed with adult
detainees and exposed to human and contraband trafficking, exploitation, and
labor abuses before they are deported from the United States. The number of unaccompanied deported
minors increased from 5,457 in 2003 to 10,000 in 2004, according to Mexico's
National Migration Institute (INM) and the Inter-institutional Program for
Attention to Border Minors. UNICEF praised US and Mexican efforts to
ensure the safety of deported minors, but stated that more emphasis is needed
on family reunification. The Unaccompanied Alien Child Protection Act,
sponsored by US Senator Dianne Feinstein (D-CA) and Representative Zoe Lofgren
(D-CA), would provide assistance for all unaccompanied child immigrants, including
those held in detention for deportation proceedings.
US-Vietnam Immigration Program. The United States
and Vietnam signed an agreement on November 15 to allow Vietnamese citizens
to immigrate to the United States if they were eligible for a humanitarian
program that ended on September 30, 1994, but were unable or failed to apply. The
Orderly Departure Program (ODP) was created for Vietnamese persons who spent
at least three years in Vietnam's reeducation camps or who worked for
the US government before the end of the Vietnam War. Nearly 500,000 Vietnamese
refugees and immigrants have resettled in the United States under the program.
- To view the Presidential Memorandum to the Secretary of State on FY 2006
Refugee Admissions Numbers, click
- To read the text of the DREAM Act (S. 2075), click here.
- To read the UNICEF/DIF report (in Spanish) on unauthorized immigrant children,
- To read the text of the Unaccompanied Alien Child Protection Act (H.R.
1172 or S. 119), click
- To read the State Department announcement on the United States-Vietnam agreement
on the humanitarian resettlement program, click here.
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