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BACKGROUNDER No BACKGROUNDER No. 3212 | JULY 5, 2017 The U.S. Refugee Admissions Program: A Roadmap for Reform Olivia Enos, David Inserra, and Joshua Meservey Abstract The U.S. Refugee Admissions Program (USRAP) is at the center of seri- Key Points ous debate within American society, the courts, and among policymak- ers. The USRAP should not be used as pretext to advocate for a global n The U.S. refugee admission pro- right to migrate nor is it a solution to conflict. Instead, the U.S. refugee grams advances U.S. interests, but admission program should be reformed to better advance U.S. interests. targeted reforms are necessary. USRAP asserts American leadership, helps partners and allies in a tan- n Refugees undergo more vetting gible way, and rescues some of the world’s most vulnerable people. Con- than any other immigrants to the gress and the Administration can strengthen the USRAP in ways that U.S., but policymakers should will lessen the security challenges—including through improvements to make critical improvements. vetting procedures—and improve the economic, fiscal, and assimilation n The most difficult radicalization outcomes for refugees. This roadmap for reforming the USRAP ensures challenge is with children resettled that the program continues to serve U.S. interests, support our allies, at a young age, or the children of resettled refugees. and help those in greatest need. n Refugees will inevitably adopt n Section 6 of Executive Order 13780 issued on March 6, 2017, some of the forms of American cul- ture, but it is not a given that they President Donald Trump temporarily suspended the U.S. Refu- I will develop a superseding loyalty gee Admissions Program (USRAP)—which manages the process of to all fellow Americans, the United resettling refugees to the U.S.—and reduced the yearly number of States, and its values. For this rea- resettled refugees from 110,000 to 50,000.1 While there are ongo- son, it is critical for the U.S. to have ing legal battles over this revised executive order, it provides an a coherent assimilation strategy. opportunity for policymakers to reform parts of USRAP, thereby n The U.S. can minimize the fiscal ensuring that it continues to serve American interests. Inherent costs of refugees and improve their in an appropriate USRAP would be the ideas that there is no uni- economic outcomes, particularly versal right to migrate, resettlement is not the solution to mass by better leveraging the resources displacement, and U.S. policymakers have a responsibility to and unique capabilities of the U.S. advance the national interests of the United States above those of private sector, non-profits, and individual citizens. other nations. This paper, in its entirety, can be found at http://report.heritage.org/bg3212 The Heritage Foundation 214 Massachusetts Avenue, NE Washington, DC 20002 (202) 546-4400 | heritage.org Nothing written here is to be construed as necessarily reflecting the views of The Heritage Foundation or as an attempt to aid or hinder the passage of any bill before Congress. BACKGROUNDER | NO. 3212 JULY 5, 2017 USRAP is a useful humanitarian initiative with First, there is no global right to migration. Man- which the U.S. engages the world and provides relief aging who crosses its borders is central to a state’s for a select few during international crises. It sup- sovereignty, and is a duty every country in the world ports U.S. interests by enabling the U.S. to assert jealously seeks to fulfill. This fact applies to USRAP. leadership in foreign crises, assist in the midst of The United States operates the program not because intractable crises, and help allies and partners in it is obligated to resettle refugees, but because the need. It also strengthens U.S. public diplomacy and U.S. is a humane country and USRAP serves its tangibly alleviates human suffering. national interests. To ensure the long-term vitality of USRAP, poli- Second, resettlement is not the solution to mass cymakers should consider a number of policy prior- displacement. Only the resolution of conflict will ities and reforms. It is critical that the U.S. institute rectify the associated refugee crises. Resettlement is a comprehensive strategy for assimilating refugees, expensive. Resettling one refugee to the U.S. is about and it should mobilize civil society and enhance 12 times costlier than providing for that refugee in existing public-private partnerships, such as the a camp closer to his home for five years.2 Resettle- Matching Grant Program, to assist. Improving vet- ment was also designed as a last resort for only the ting by developing a person-centric vetting system, neediest and most vulnerable refugees. Finally, in focusing on the best candidates for resettlement, 2015 there were 21.3 million refugees worldwide, far and helping U.S. Citizenship and Immigration beyond the international community’s willingness Services (USCIS) officers who approve refugees’ and ability to resettle responsibly. resettlement applications to build greater exper- Third, U.S. policymakers have a moral and con- tise in the regions in which they operate would also stitutional duty to care for American interests improve USRAP. As well, the U.S. should commit first—above those of non-Americans’ needs. Doing most of its resources earmarked for refugees to otherwise would be a violation of the trust Ameri- assisting front-line states, where those resources cans have placed in them. Because of this, U.S. poli- can stretch the furthest to help the largest number cymakers have a responsibility to ensure that the of refugees. Finally, the U.S. should affirm the role United States takes in only as many refugees as it of both the executive and Congress in establishing can safely vet and assimilate. refugee admissions levels. USRAP is a net positive for the country; it advanc- With these reforms, USRAP will serve U.S. inter- es American interests in five key ways by: ests more strongly. 1. Enabling the U.S. to assert American lead- The Principles Undergirding USRAP ership in foreign crises. Resettling refugees is Reform one way for the U.S. to exercise global leadership. USRAP is a useful humanitarian initiative with It demonstrates U.S. engagement to the interna- which the U.S. engages the world and provides relief tional community, and enhances the persuasive- for a select few during international crises. Given ness of U.S. appeals to other countries to do more the current controversy surrounding refugee reset- to help ameliorate crises. tlement, and before examining why USRAP is useful to the U.S., it is worthwhile to articulate some of the 2. Providing the U.S. with a way to respond principles that should guide policymakers seeking positively to intractable crises. There is lit- to ensure that USRAP fulfills its proper function. tle the U.S. can reasonably do about some global 1. EO 13780 prescribed several immigration and terrorism-related actions ranging from the completion of a biometric exit system to so-called travel bans for Iran, Libya, Somalia, Sudan, Syria, and Yemen. For the purposes and scope of this Backgrounder, only those sections dealing with USRAP are relevant. “Executive Order Protecting the Nation from Foreign Terrorist Entry into the United States,” The White House, March 6, 2017, https://www.whitehouse.gov/the-press-office/2017/03/06/executive-order-protecting-nation-foreign-terrorist-entry-united-states (accessed March 23, 2017). 2. Karen Zeigler and Steven A. Camarota, “The High Cost of Resettling Middle Eastern Refugees,” Center for Immigration Studies, November 2015, http://cis.org/High-Cost-of-Resettling-Middle-Eastern-Refugees (accessed October 7, 2016). 2 BACKGROUNDER | NO. 3212 JULY 5, 2017 conflicts, either because they are beyond solving 5. Alleviating human suffering. The U.S. is or it is not sufficiently in U.S. interests to expend not obligated to resettle refugees, and cannot the resources required to solve them. Resettling solve many of the problems afflicting them. refugees is a small but concrete and useful action However, refugees are frequently some of the the U.S. can take in response to otherwise intrac- most desperate people on earth, and the U.S. table crises. has a long humanitarian tradition of which it should be proud. Aiding refugees, including by 3. Assisting allies and partners in crisis. Refu- accommodating a small number for resettle- gee-hosting countries are often fragile, and the ment, is in strong and obvious keeping with challenge of caring for and managing refugees can that tradition. exacerbate their instability. Some of these coun- tries are also American allies, such as the three However, policymakers should not discount the currently hosting the most Syrian refugees: Tur- challenges associated with resettling refugees from key, Lebanon, and Jordan. Jordan has one of the countries with conflicts involving Islamist terror- most pro-U.S. governments in the Middle East, ists. As with other types of immigration, it is impos- and is part of the U.S.-led coalition carrying out sible to vet in a foolproof way all refugees who apply air strikes against ISIS in Syria and Iraq.3 Turkey for resettlement. Radicalized individuals have is a NATO member, and Lebanon, a traditional already entered the United States through the reset- refuge for Middle East Christians now harboring tlement program. thousands of Syrian Christians,4 is battling ISIS The larger security challenge associated with and al-Qaeda near its border with Syria.5 resettling refugees is the heightened chance of Muslims in the “one-point-five” generation (those There are many ways for the U.S. to support ref- resettled to the U.S. at a young age) or the second ugee-hosting allies.
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