Asylum and "Credible Fear" Issues in U.S. Immigration Policy

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Asylum and “Credible Fear” Issues in U.S. Immigration PolicySummaryForeign nationals seeking asylum must demonstrate a well-founded fear that if returned home,they will be persecuted based upon one of five characteristics: race, religion, nationality,membership in a particular social group, or political opinion. Foreign nationals arriving or presentin the United States may apply for asylum affirmatively with the United States Citizenship andImmigration Services (USCIS) in the Department of Homeland Security after arrival into thecountry, or they may seek asylum defensively before a Department of Justice Executive Office forImmigration Review (EOIR) immigration judge during removal proceedings.Asylum claims ebbed and flowed in the 1980s and peaked in FY1996. Since FY997, affirmativeasylum cases decreased by 79% and defensive asylum claims dropped by 53% by FY2009.Asylum seekers from the People’s Republic of China (PRC) dominated both the affirmative anddefensive asylum caseload in FY2009. Five of the top 10 source countries of asylum seekers wereWestern Hemisphere nations in FY2009: Haiti, Mexico, Guatemala, El Salvador, and Colombia.Ethiopia was the only African nation that was a top source country for asylum seekers in FY2009.Despite the general decrease in asylum cases since the enactment of the Illegal Immigrant Reformand Immigrant Responsibility Act (IIRIRA ) in 1996, data analysis of six selected countries (thePRC, Colombia, El Salvador, Ethiopia, Haiti, and Mexico) suggests that conditions in the sourcecountries are likely the driving force behind asylum seekers.Roughly 30% of all asylum cases that worked through USCIS and EOIR in recent years havebeen approved. Affirmative asylum cases approved by USCIS more than doubled from 13,532 inFY1996 to 31,202 in FY2002, and then fell to the lowest point over the 14-year period—9,614—in FY2009. The number of defensive asylum cases that EOIR judges have approved has risen by99% from FY1996 through FY2009. The PRC led in the number of asylum cases approved byUSCIS and EOIR over the decade of FY2000-FY2009.Despite national data trends that appeared to be consistent, approval rates for asylum seekersdiffer strikingly across regions and jurisdictions. For example, a study of 290 asylum officers whodecided at least 100 cases from the PRC from FY1999 through FY2005 found that the approvalrate of PRC claimants spanned from zero to over 90% during this period. In a separate study, theU.S. Government Accountability Office (GAO) analyzed asylum decisions from 19 immigrationcourts that handled almost 90% of the cases from October 1994 through April 2007 and foundthat “significant variation existed.”At the crux of the issue is the extent to which an asylum policy forged during the Cold War isadapting to the competing priorities and turbulence of the 21 st century. Some assert that asylumhas become an alternative pathway for immigration rather than humanitarian protection. Othersargue that—given the religious, ethnic, and political violence in various countries around theworld—it has become more difficult to differentiate the persecuted from the persecutors. Someexpress concern that U.S. sympathies for the asylum seekers caught up in the democratic politicaluprisings in the Middle East, northern Africa, and south Asia could inadvertently facilitate theentry of terrorists. Others maintain that current law does not offer adequate protections for peoplefleeing human rights violations or gender-based abuses that occur around the world. Some citethe disparities in asylum approvals rates and urge broad-based administrative reforms. TheRefugee Protection Act of 2011 (S. 1202/H.R. 2185) would make significant revisions to asylumpolicy.Congressional Research Service
Asylum and “Credible Fear” Issues in U.S. Immigration PolicyContentsLatest Legislative Developments.................................................................................................1Overview of Current Policy.........................................................................................................1Introduction ..........................................................................................................................1Recent History of U.S. Asylum Policy...................................................................................2Standards for Asylum............................................................................................................4Credible Fear ..................................................................................................................4Well-Founded Fear..........................................................................................................5Mixed Motives................................................................................................................5Process of Requesting Asylum ..............................................................................................6Affirmative Claims .........................................................................................................6Defensive Claims............................................................................................................8Expedited Removal Claims .............................................................................................9Background Checks ......................................................................................................12Victims of Torture.........................................................................................................12Source Countries for Asylum Seekers........................................................................................13Top 10 Source Countries in FY2009....................................................................................13Trends for Six Selected Countries........................................................................................15People’s Republic of China ...........................................................................................16Colombia ......................................................................................................................17El Salvador ...................................................................................................................18Ethiopia ........................................................................................................................19Haiti .............................................................................................................................20Mexico .........................................................................................................................21Approvals of Asylum Cases ......................................................................................................22Analysis of Approvals by Country.......................................................................................22Approvals by Regional Office and Immigration Court.........................................................25Refugee Roulette...........................................................................................................25U.S. Government Accountability Office (GAO) ............................................................27Transactional Records Access Clearinghouse (TRAC)...................................................27Selected Issues..........................................................................................................................29U.S. National Interests ........................................................................................................29Disparity in Decisions.........................................................................................................30Access to Counsel...............................................................................................................31Time Limit on Filing...........................................................................................................31Mandatory Detention ..........................................................................................................32Terrorist Infiltration and Material Support ...........................................................................32Concluding Observations ..........................................................................................................33FiguresFigure 1. Asylum Cases Filed with INS/USCIS ...........................................................................3Figure 2. Affirmative Asylum Cases Filed and Approved.............................................................7Figure 3. Defensive Asylum Cases Filed and Approved...............................................................9Congressional Research Service
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