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The original documents are located in Box 9, folder "Illegal Aliens - Domestic
Council Committee, (3)" of the Richard D. Parsons Files at the Gerald R. Ford
Presidential Library.
Copyright Notice
The copyright law of the United States (Title 17, United States Code) governs the making of
photocopies or other reproductions of copyrighted material. Gerald R. Ford donated to the United
States of America his copyrights in all of his unpublished writings in National Archives collections.
Works prepared by U.S. Government employees as part of their official duties are in the public
domain. The copyrights to materials written by other individuals or organizations are presumed to
remain with them. If you think any of the information displayed in the PDF is subject to a valid
copyright claim, please contact the Gerald R. Ford Presidential Library.
Digitized from Box 9 of the Richard D. Parsons Files at the Gerald R. Ford Presidential Library
ILLEGAL ALIENS
Q. How would you solve the problem of illegal
aliens, entering and working in the United States?
A. We have anywhere from 6,000,000 to 8,000,000 illegal
aliens in this country, which is, roughly, the total
number of unemployed in this country. This is a very
serious matter, but let me tell you what we are trying
to do abou it.
Number one, we are working very closely in a new
program with the Mexican Government. There has been
a tremendous increase in the flow of illegal aliens
from Mexico. The cooperation that we are developing
with the Mexican Government will, I think, produce
some results in stopping that flow.
When I was in Mexico about twenty months ago, I
personally talked to President Excheverria about this.
Number two, in my budget I have recommended additional
employees for the Immigration and Naturalization Service
so it can do a better job of finding illegal aliens
and seeking to deport them.
There is one other thing we are trying to do. I have
favored legislation that passed the House, last year
as I recall, that makes it mandatory for an employer
to ask whether a prospective employee is an illegal
alien. That would be helpful.
4-7-76
April 9, 1976
MEMORANDUM FOR:
Jim Cannon
FROM:
Dick Parsons
SUBJECT:
Progress of the Domestic Council
Committee on Illegal Aliens
You requested a summary of what the Committee has done so far.
On January 21, 1976, the Committee established five
task forces and a steering committee to better and
more efficiently handle the subject matter. The
task force areas are: economic and labor market
impact; immigration law and policy; enforcement;
social and community impact; and foreign relations.
On March 4, 1976, the Steering Committee met and
worked out outlines for each task force to follow
in approaching and executing its respective area.
On April 18-20, the Committee's Foreign Relations
Task Force (Interagency Committee on Illegal Mexican
Migration) will host a delegation of Mexicans here in
Washington in order to discuss the illegal alien prob-
lem and how to approach it.
Presently, there are no other definitive progressions.
DOMESTIC COUNCIL COMMITTEE ON ILLEGAL ALIENS
STEERING COMMITTEE MEETING
APRIL 12, 1976
Agenda
Chairman:
Edward H. Levi, Attorney General
Subject:
U.S.-Mexico meeting on illegal
Mexican immigration, April 19-21,
1976, Washington, D. C.
Presentation:
William H. Luers, Deputy Assistant
Secretary of State for Latin
American Affairs and chairman,
Interagency Committee on Illegal
Mexican Migration
(Interagency Committee serves as
Foreign Relations task force of
Domestic Council Committee)
Discussion
AG to open meeting - No good; either Sec. of State,
Jim Cannon or me.
The April 19-21 Meeting of the Mexican and American
Committees on Mexican Worker Migration into the
United States
SCOPE PAPER
1.
The Perception of the Problem: The perception of
many segments of the United States population, in-
cluding organized labor, and officials on our south-
western border, is that the influx of illegal aliens
from Mexico deprives US citizens and legal alien
residents of jobs, depresses wage scales, puts a burden
on our social services (schools, hospitals, welfare
rolls, etc.), and adversely affects our balance of
payments through remittances abroad. Other US groups,
including some farm owners and the owners and operators
of service industries, believe the "illegals" are
necessary to fill jobs that Americans and legally
resident aliens will not perform and that any attempt
to stem the flow of illegals or to deport those here
will have serious adverse effects on our economy.
(The Mexican Government takes this second position.)
Some segments of the Mexican-American population in the
US believe that action should be taken to stop the
influx of illegal migrants from Mexico which other
segments of this group feel that no major restrictive
action should be taken.
DECLASSIFIED
E.O. 12958 Sec. 3.6
CONFIDENTIAL
GDS
95-42,#31) #31; NSC letter 9/23/96
By let NARA, Date 1/9/97
CONFIDENTIAL
-2-
2.
The "Facts": At present we do not have reliable
information on the number of illegals in the US nor
of their full impact on our economy. However, the
problem of illegals is receiving increasing attention
among the US sectors concerned with them and their
continued influx into the United States appears to
be a problem -- with both economic and political
overtones -- that will continue to grow at an increasing
rate over the next decade.
The cause of the influx rests primarily on the
disparity between the Mexican and American economies.
The "push" factor is the lack of employment opportunity
in Mexico (with an estimated 750,000 people coming into
the job market in Mexico annually and only about 300,000
jobs becoming available). The "pull" factors in the
United States are the alleged availability of jobs, the
high pay, compared to Mexican wage scales, the proximity,
and the relative ease with which illegals can cross the
border and remain undetected as they work in the US.
3. The Needs: In the face of the forthcoming meeting
with the Mexican Committee, we must examine what we
want to get out of the meeting and analyze what the
Mexicans might hope to achieve at the meeting.
CONFIDENTIAL
CONFIDENTIAL
-3-
The Mexican Position
For some years after the termination of the
bracero program in 1964, the principal Mexican foreign
policy goal vis-a-vis the United States appeared to be
to induce us to enter into a new bracero agreement.
An ancillary part of the campaign to get a new agree-
ment was a continuous and highly vociferous stream of
complaints that we were mistreating illegal aliens
detained in the US.
This changed in October, 1974, when Echeverria,
in his border meeting with President Ford announced
that Mexico considered the illegal migrant problem a
Mexican problem that should be solved by the economic
development of Mexico and the consequent provision of
sufficient employment for its own people. Subsequent
to the Echeverria statement, the claims of mistreatment
of illegals in the US diminished greatly.
What do the Mexicans Want?
Having said they do not want a new bracero program,
what do the Mexicans now really want? Probably the
status quo -- the continuation of the relatively un-
checked entry into the United States of large numbers
CONFIDENTIAL
CONFIDENTIAL
-4-
of Mexicans, the lack of sufficient resources by US
immigration forces to significantly stem the flow of
illegals, and the lack of concerted efforts by the
United States to find and deport Mexicans illegally
working in the United States.
Given this position, the Mexicans, at the forth-
coming meeting are likely to:
1.
Maintain that the United States really needs
the illegals to fill jobs that Americans will not take,
and that thus, we should do nothing significant to
stop the flow.
2.
Use attack as the best defense, accusing us of
not guaranteeing the "human rights" of the illegals in
questions of wages, working conditions, guarantee that
salaries earned are paid when they are caught and
deported, etc.
3.
Agree that all sorts of studies should be
made on the illegal question -- where they come from
in Mexico -- why they come to the United States -- how
many illegals there are, etc. As long as they can
convince us to talk and study rather than taking any
action, the status quo they desire will continue.
CONF IDENTIAL
CONFIDENTIAL
-5-
4.
Complain that in the absence of firm informa-
tion we are making "unfair" efforts to "stir up" our
population, particularly in the southwest, by using
estimates (8 million illegals of which 5 million are
Mexican) in public speeches, particularly by INS
officials.
5.
Offer palliatives (to show they are concerned
about "doing something" about the problem) such as
suggesting joint action against the smugglers of
illegal aliens -- a suggestion we would want to accept,
but which would not really have any significant effect
on the flow of aliens across the border.
The US Position
US policy regarding illegal aliens has been limited
to enforcement of current immigration law by INS. INS
has been hampered in its enforcement efforts by inade-
quate resources. We have only very recently begun to
develop the information and executive branch interest
requisite for a comprehensive policy approach and
possible changes in the law as currently written. Our
efforts should lead to a sharpened understanding of the
impact of illegals on our society and national interests
upon which a policy position and specific actions could
be based. We perceive that there is a problem with
CONPIDENTIAL
CONF IDENTIAL
-7-
4.
An understanding on the part of the Mexicans
that there is increasing pressure within the US to
"do something" about the problem -- pressure that, in
the absence of some evidence that the United States and
Mexico are taking actions, in the short range, to reduce
the flow may well lead the Congress and the Administration
to adopt a tough unilateral policy that will be harmful
to our bilateral relations.
5.
Agreement with the Mexicans to attack some of
the obvious problems like the question of the "coyotes"
who smuggle aliens, recognizing that cooperation in
enforcement matters would be highly useful, but at the
same time understanding that such measures, while they
may result in good publicity, will not be sufficient
to reduce the political and economic pressures to solve
the illegal alien problem.
6.
Agreement with the Mexicans to give continued
attention to the illegal migrant problem, continue the
dialogue regarding it, and mutually seek effective ways
to reduce the problem.
ARA/MEX:J.T.Dreyfuss:mrg
4/9/76 x-22415
CONFIDENTIAL
THE WHITE HOUSE
WASHINGTON
August 20, 1976
Thanks, Dick
Dawn
FORD LIBRARY
UNITED STATES DEPARTMENT OF JUSTICE
IMMIGRATION AND NATURALIZATION SERVICE
PLEASE ADDRESS REPLY TO
WASHINGTON, D.C. 20536
OFFICE OF THE COMMISSIONER
AND REFER TO THIS FILE NO.
CO 1006-P
Dùch:
Dear Mr Parsons:
The Immigration and Naturalization Service recently commissioned
The Gallup Organization, Inc. to conduct a study of public attitudes to-
ward immigration and illegal aliens.
The study measured public attitudes on the following:
1. level of immigration considered desirable;
2. extent to which illegal aliens enter the U. S.;
3. extent to which the problem of illegal aliens
has been read or heard about;
4. seriousness of the problem of illegal aliens;
5. types of problems resulting from presence of illegal
aliens and seriousness of certain of these problems;
6. extent of agreement with possible actions to deal
with the illegal alien problem.
The findings are based upon the responses of 1,549 adults who were
personally interviewed and who are representative of the civilian popula-
tion 18 years of age and over living in the United States.
Following are some of the significant findings of the survey and the
pages in which more detailed data is available in the complete publication
of the results.
74 percent of the respondents termed the illegal alien
problem as "very serious" or "somewhat serious". Pages
12 & 13.
87 percent of the respondents said that the taking of jobs
from legal residents by illegal aliens was a "serious prob-
lem" or "somewhat of a serious problem". 88 percent of the
respondents of Latin American ethnic origin expressed the
same attitudes. Page 17.
AMERICAN REVOLUTION
1/16-1976
- 2 -
83 percent of those asked expressed the opinion that
the depressing of wages by illegal aliens is a "seri-
ous problem" or "somewhat of a serious problem," with
54 percent expressing the stronger opinion. 81 per-
cent of persons asked who were of Latin American ethnic
origin expressed these same opinions, with 61 percent
stating the stronger opinion. Page 17.
The majority of Americans (80%) agree that there should
be a law against hiring illegal aliens with 62 percent
stating that they "agree strongly" with such a statement.
Pages 18 & 19.
The survey certainly seems to substantiate that the majority of the
American public is concerned about the problem of illegal aliens taking
jobs and impacting in other ways upon our society and economy, and that
most people believe there should be a law against hiring illegals.
I am enclosing for your interest a copy of the survey. Please call
me if you would like additional copies or if I can answer any questions
about the survey.
Sincerely,
Euapman L. F. Chapman Jr.
Commissioner
Honorable Richard D. Parsons
Assistant Director and Counsel
Domestic Council
The White House
Washington, D. C. 20500
Enclosure
THE GALLUP STUDY OF
ATTITUDES TOWARD
ILLEGAL ALIENS
CONDUCTED FOR:
THE IMMIGRATION AND NATURALIZATION SERVICE
THE GALLUP ORGANIZATION, INC.
53 BANK STREET
PRINCETON, NEW JERSEY
JUNE, 1976
TABLE OF CONTENTS
Page
Number
INTRODUCTION
1
THE QUESTIONS ASKED
2
SUMMARY OF THE FINDINGS
4
Extent to Which Public has Heard or Read About the
Problem of Illegal Aliens
5
Perceived Number of Illegal Aliens Entering the Country
6
Should Immigration Policy be Changed
10
Seriousness of the Problem of Illegal Aliens
12
Problems Resulting from Presence of Illegal Aliens
14
Seriousness of Selected Problems Caused by Presence
of Illegal Aliens
16
What Should be Done
18
The Gallup Crganization: Inc
1.
INTRODUCTION
This is a report on a study of public attitudes toward immigration
and illegal aliens. Specific objectives included the determination of
the following:
1. Level of immigration considered desirable.
2. Perceived extent to which illegal aliens enter the U.S.
3. Extent to which the problem of illegal aliens has been
read or heard about.
4.
Perceived seriousness of the problem of illegal aliens.
5. Types of problems resulting from presence of illegal aliens
and perceived seriousness of certain of these problems.
6. Extent of agreement with selected possible actions to be
taken to deal with the problem of illegal aliens.
Design of the Research
The findings are based on the responses of 1,549 adults. Personal
interviews were conducted between April 23 and 27, 1976, as part of the
Gallup Omnibus. Information about the design and composition of the
sample can be found in the Technical Appendix. Also in the technical
appendix are tables of sampling tolerances recommended for consideration
of percentage differences within the report. The questions asked are
given on the following pages.
The Gallup Crganization. Inc
2.
THE QUESTIONS ASKED
EVERYONE WAS ASKED:
1. Currently 400,000 immigrants are allowed to enter the U.S. each year. Do
you feel we should allow more than 400,000, allow fewer than 400,000, or
maintain our policy?
ALL THOSE WHO ANSWERED "MORE" IN QUESTION 1 WERE ASKED:
2. Would you favor or oppose allowing as many immigrants to come as wish to
come?
ALL THOSE WHO ANSWERED "FEWER" IN QUESTION 1 WERE ASKED:
3. Would you favor or oppose stopping immigration altogether?
EVERYONE WAS ASKED:
4. How many aliens would you say enter this country illegally every year?
Would you say a large number, a fair number, or only a small number?
5. How much of a problem do you think illegal aliens are in this country --
would you say they are a very serious problem, a somewhat serious problem,
or not too serious a problem?
6. Have you read or heard anything recently about the problem of illegal
aliens?
7. In the past few years would you say that fewer or more aliens are entering
this country illegally, or has there been no change?
8. What problems, if any, result from the presence of illegal aliens in this
country?
9. I am going to read a number of problems that some feel are created by the
presence of illegal aliens in this country. For each that I read, tell
me if you feel this is a serious problem, somewhat of a problem, or not a
problem.
Illegal aliens take away jobs from legal residents.
Illegal aliens are often involved in criminal activities.
Illegal aliens bring down wages by working for less pay.
Illegal aliens often collect unemployment or welfare and are
a drain on the taxpayer.
-
The Gallup Crganization. Inc.
3.
10. I am going to read you some statements that have been made concerning the
matter of illegal aliens. As I read each statement, tell ne the extent to
which you agree or disagree with each statement. (RESPONDENT WAS SHOWN A
CARD LISTING THE FOLLOWING STATEMENTS).
Congress should pass a law to make it illegal for an employer
to hire an illegal alien.
Illegal aliens should be given a chance to become U.S. Citizens.
Illegal aliens should be rounded up and sent back to where they
came from.
Certain types of businesses need inexpensive labor and should be
allowed to hire illegal aliens.
The Gallup Crganization. Inc
SUMMARY OF THE FINDINGS
The Gallup Organization. Inc.
5.
Extent to Which Public Has Heard or Read About the Problem of Illegal Aliens
The question: Have you read or heard anything recently about the problem
of illegal aliens?
About half (52%) of those questioned indicated that they had read or heard
something recently about the problem of illegal aliens. Respondents living in
the West, particularly those in states bordering on Mexico, were especially
likely to have heard or read about the problem, over two thirds responding yes
to the question. In addition, upper socio-economic groups were more likely than
lower, and men more likely than women, to say they had heard or read recently
about the problem of illegal aliens.
Don't
Number of
Yes
No
Know
Total
Interviews
%
%
%
%
National
52
48
*
100
(1549)
Sex
Men
58
42
*
100
(770)
Women
46
54
*
100
(779)
Education
College
65
35
*
100
(508)
High School
51
49
*
100
(818)
Grade School
31
68
1
100
(215)
Annual Family Income
$15,000 and over
61
39
*
100
(605)
$10,000 - $14,999
54
46
*
100
(352)
$5,000 - $9,999
46
54
*
100
(285)
Under $5,000
35
64
1
100
(268)
Region
East
54
46
0
100
(434)
Midwest
43
57
*
100
(421)
South
48
52
*
100
(434)
West
67
33
*
100
(260)
Mexican Border
69
31
#
100
(262)
*
Less than one-half of one percent.
The Gallup Crganization. Inc.
6.
Perceived Number of Illegal Aliens Entering the Country
The questions: How many aliens would you say enter this country illegally
every year? Would you say a large number, a fair number,
or only a small number?
In the past few years would you say that fewer or more aliens
are entering this country illegally, or has there been no
change?
Nearly two-thirds (63%) of those asked said they thought a large number of
aliens entered the country illegally each year. Over half (58%) felt the number
has been increasing in the past few years. Respondents in upper socio-economic
groups were somewhat more likely to say a large number of illegal aliens enter
each year. Of those living in the West and particularly in the Mexican border
states, however, the percentage was much higher (78% and 81% respectively). Re-
spondents of Latin American descent were also particularly likely to say that
large numbers of illegal aliens enter this country each year.
As might be expected, those who had heard or read something about the
problem were more likely to say that the number of illegal aliens entering is
large, than those who hadn't heard or read anything (80% -vs- 44%). Even so,
among those who hadn't heard or read about the problem, about half those who
ventured an opinion (44 out of 86%) thought that a large number of illegal
aliens were entering each year.
The Gallup Crganization Inc.
7.
Number of Aliens Entering the Country
Large
Fair
Small
Don't
Number of
Number
Number
Number
Know
Total
Interviews
%
%
%
%
%
National
63
22
6
9
100
(1549)
Sex
Men
68
19
7
6
100
(770)
Women
59
25
5
11
100
(779)
Education
College
65
24
8
3
100
(508)
High School
63
23
5
9
100
(818)
Grade School
57
19
6
18
100
(215)
Annual Family Income
$15,000 and over
67
23
5
5
100
(605)
$10,000 - $14,999
63
24
6
7
100
(352)
$5,000 - $9,999
60
24
7
9
100
(285)
Under $5,000
57
18
8
17
100
(268)
Region
East
61
25
5
9
100
(434)
Midwest
54
30
7
9
100
(421)
South
64
18
8
10
100
(434)
West
78
14
4
4
100
(260)
Mexican border
81
12
3
4
100
(262)
Ethnic Origin
Latin American
81
10
7
2
100
(58)
Other Whites
64
23
6
7
100
(1317)
Read/Heard About Problem
Yes
80
15
2
3
100
(832)
No
44
31
11
14
100
(709)
The Gallup Crganization. Inc.
8.
Asked whether they thought the number of aliens entering illegally each year
was increasing or decreasing, much the same groups that thought that large numbers
of aliens were entering illegally also thought that the number was increasing.
Interestingly, respondents of Latin American descent deviated from this
pattern. Although 81% of them said that large numbers of illegal aliens entered
this country each year, only half of them (compared to 58% nationally) thought
this number had been increasing in recent years. Thirty-six percent, compared
to 19% nationally, replied that there has been no change in recent years.
This contrasts with, for example, respondents in Mexican border states, of
whom 81% also thought that the number of aliens entering this country illegally
each year is large, and 67% (significantly higher than the national average of
58%) responded that the number has been increasing in recent years.
Don't
Number of
More
No Change
Fewer
Know
Total
Interviews
%
%
%
%
%
National
58
19
7
16
100
(1549)
Sex
Men
62
18
7
13
100
(770)
Women
54
19
7
20
100
(779)
Education
College
66
15
8
11
100
(508)
High School
57
19
7
17
100
(818)
Grade School
47
25
3
25
100
(215)
Annual Family Income
$15,000 and over
66
16
8
10
100
(605)
$10,000 - $14,999
58
18
7
17
100
(352)
$5,000 - $9,999
54
20
6
20
100
(285)
Under $5,000
48
23
4
25
100
(268)
Continued
The Gallup Crganization. Inc.
9.
Continued
Don't
Number of
More
No Change
Fewer
Know
Total
Interviews
%
%
%
%
%
Region
East
60
16
8
16
100
(434)
Midwest
50
26
6
18
100
(421)
South
57
17
7
19
100
(434)
West
68
15
5
12
100
(260)
Mexican border
67
16
5
12
100
(262)
Ethnic Origin
Latin American
50
36
5
9
100
(58)
Other Whites
60
18
7
15
100
(1317)
Read/Heard about Problem
Yes
75
13
5
7
100
(832)
No
40
25
9
26
100
(709)
How Many Aliens Enter
Large number
71
16
5
8
100
(967)
Fair number
46
22
13
19
100
(348)
Small number
22
49
14
15
100
(101)
The Gallup Organization. Inc.
10.
Should Immigration Policy be Changed
The questions:
Currently 400,000 immigrants are allowed to enter the
U.S. each year. Do you feel we should allow more than
400,000, allow fewer than 400,000, or maintain our policy.
(IF "MORE") Would you favor or oppose allowing as many
immigrants to come as wish to come?
(IF "FEWER") Would you favor or oppose stopping immigra-
tion altogether?
The majority of Americans (52%) favor allowing fewer immigrants to enter
the U.S. each year than are currently admitted. Over one in six (18%) favor
stopping immigration altogether. Only 5% favor allowing more to enter, while
37% think the current level of immigration should be maintained.
Having heard or read about the problem of illegal aliens has virtually
no effect on the attitudes of people toward United States immigration policy.
Most inclined to favor stopping immigration altogether are those respondents
with grade school education (29%), manual laborers and farmers (23%), those in
the South (26%), and those who think large numbers of illegal aliens are entering
the country each year (22%).
Those whose ethnic origin is Eastern European or Latin American are most
likely to favor increasing the number of immigrants admitted each year.
Immigrants Allowed to Enter U.S.
Maintain
Fewer but
Don't
Number of
More
Same
Not Stopped
Stop
Know
Total
Interviews
%
%
%
%
%
%
National
5
37
34
18
6
100
(1549)
Education
College
10
44
30
10
6
100
(508)
High School
3
37
35
19
6
100
(818)
Grade School
6
24
36
29
5
100
(215)
Continued
The Gallup Crganization. Inc
11.
Continued
Immigrants Allowed to Enter U.S.
Maintain
Fewer but
Don't
Number of
More
Same
Not Stopped
Stop
Know
Total
Interviews
%
%
%
%
%
%
Occupation
White collar
9
44
30
12
5
100
(511)
Blue collar &
farmer
3
32
37
23
5
100
(642)
Non-labor force
5
35
36
18
6
100
(321)
Region
East
7
38
34
16
5
100
(434)
Midwest
4
45
31
14
6
100
(421)
South
6
26
35
26
7
100
(434)
West
4
39
38
15
4
100
(260)
Mexican border
7
41
34
14
4
100
(262)
Ethnic Origin
East European
11
47
26
10
6
100
(138)
Latin American
13
35
42
7
3
100
(58)
Other Whites
4
36
35
19
6
100
(1179)
Read/Heard About
Problem
Yes
7
36
36
17
4
100
(832)
No
4
38
33
18
7
100
(709)
Number of Aliens
Entering
Large number
6
33
35
22
4
100
(967)
Fair number
4
45
33
10
8
100
(348)
Small number
11
42
38
7
2
100
(101)
The Gallup Crganization. Inc
12.
Seriousness of the Problem of Illegal Aliens
The question: How much of a problem do you think illegal aliens are in
this country -- would you say they are a very serious prob-
lem, a somewhat serious problem, or not too serious a prob-
lem?
Asked how serious a problem illegal aliens are in this country, 37% said
very serious, 37% said fairly serious, and 19% said not too serious.
There was little variation in these figures among socio-economic groups.
Young people were less likely than older people to view illegal aliens as
a serious problem. By region, those living in the West and the Mexican
border states were most concerned (51% in each said illegal aliens were
a serious problem), while those in the Midwest were least concerned (only 25%
said "serious problem").
Having heard or read about the problem of illegal aliens made people much
more likely to regard them as a serious problem (50% -vs- 23%). This level of
concern was also directly related to the perceived number of illegal aliens
entering the country.
The Gallup Crganization Inc.
13.
Problem of Illegal Aliens
Very
Somewhat
Not Too
Don't
Number of
Serious
Serious
Serious
Know
Total
Interviews
%
%
%
%
%
National
37
37
19
7
100
(1549)
Age
18 - 34 years
29
44
22
5
100
(560)
35 - 49 years
44
32
17
7
100
(383)
50 years and over
40
33
19
8
100
(560)
Region
East
40
37
18
5
100
(434)
Midwest
25
44
24
7
100
(421)
South
37
34
18
11
100
(434)
West
51
31
16
2
100
(260)
Mexican border
51
32
15
2
100
(262)
Read/Heard about Problem
Yes
50
35
13
2
100
(832)
No
23
40
26
11
100
(709)
Number of Aliens Entering
Large number
51
37
10
2
100
(967)
Fair number
13
49
36
2
100
(348)
Small number
8
23
66
3
100
(101)
The Gallup Crganization Inc
14.
Problems Resulting from Presence of Illegal Aliens
The question: What problems, if any, result from the presence of illegal
aliens in this country?
Eighty-two percent of those asked named at least one problem caused by the
presence of illegal aliens.
Over half (51%) mentioned that illegal aliens take jobs away from residents
and another 20% said they were used for cheap labor. People in labor union
households were more likely than others to give these reasons than members of
non-union households. Residents of the West and of the Mexican border states were
also particularly likely to mention these problems, as were those who had heard
or read something about illegal aliens.
Other frequently mentioned problems were "increasing welfare rolls" (13%)
and, relatedly, "we have to provide for them" (12%). These categories are also
more frequently mentioned by those who have heard or read about the presence of
illegal aliens and by those who consider them a serious problem. Interestingly,
respondents of Latin American heritage were less likely than others to mention
these problems (although they were equally likely to mention the previously
referred to labor related problems), while residents of the Mexican border
states in general were actually more likely to name these problems.
Crime was mentioned as a problem by 12% of all respondents. This level
did not differ greatly by population groups with one exception - only 1% of
the respondents of Latin American heritage mentioned it.
The Gallup Organization. Inc.
15.
Incidence of Naming Selected Problems
Resulting from Presence of Illegal Aliens
Take Jobs
Cheap
Increase
Provide
Number of
Away
Labor
Welfare
For Them
Crime
Interviews
%
%
%
%
%
National
51
20
13
12
12
(1549)
Union Household
Yes
55
26
12
11
13
(349)
No
50
19
13
12
11
(1200)
Region
East
57
18
15
8
13
(434)
Midwest
46
16
9
11
10
(421)
South
45
17
11
14
10
(434)
West
60
37
17
16
13
(260)
Mexican border
61
34
17
21
8
(262)
Ethnic Origin
Latin American
58
21
8
6
1
(58)
Other Whites
52
21
14
13
13
(1317)
Read/Heard about Problem
Yes
62
28
17
16
13
(832)
No
39
13
8
7
10
(709)
Seriousness of Problem
of Illegal Aliens
Very serious
62
24
20
18
13
(568)
Somewhat serious
54
20
12
11
14
(587)
Not too serious
35
18
4
6
7
(295)
The Gallup Crganization. Inc.
16.
Seriousness of Selected Problems Caused by Presence of Illegal Aliens
The question: I am going to read a number of problems that some feel
are created by the presence of illegal aliens in this
country. For each that I read, tell me if you feel this
is a serious problem, somewhat of a problem, or not a
problem.
Illegal aliens take away jobs from legal residents.
Illegal aliens are often involved in criminal
activities.
Illegal aliens bring down wages by working for
less pay.
Illegal aliens often collect unemployment or welfare
and are a drain on the taxpayer.
Responses to this question echoed to a great degree responses to the
unprompted question of what problems are created by the presence of illegal
aliens. Over half those asked felt that taking jobs away from legal residents,
bringing down wages by working for less, and being a drain on the taxpayer were
serious problems caused by illegal aliens. One in three (34%) responded that
inv vement of illegal aliens with criminal activities was a serious problem.
Those living in Mexican border states were less likely to feel that in-
volvement of illegal aliens in crime was a serious problem, but more likely to
feel that the other problems were serious. Respondents of Latin American
descent were more likely to say that a serious problem was caused by illegal
aliens taking away jobs from legal residents and bringing down wages, but
considerably less likely than others to say that their involvement in criminal
activities and being a drain on taxpayers were serious problems.
The Gallup Organization. Inc.
17.
Ethnic Origin
Region
Latin
Other
Mid-
Mexican
National
American
White
East
west
South
West
Border
%
%
%
%
%
%
%
%
Take Away Jobs From
Legal Residents
Serious problem
57
63
58
58
50
59
66
69
Somewhat serious
problem
30
25
31
31
39
27
22
22
Not a problem
9
10
8
8
9
8
11
8
Can't say
4
2
3
3
2
6
1
1
100
100
100
100
100
100
100
100
Often Involved in
Criminal Activity
Serious problem
34
19
36
37
31
37
30
29
Somewhat serious
problem
37
35
39
38
38
36
38
35
Not a problem
16
35
14
16
15
11
22
25
Can't say
13
11
11
9
16
16
10
11
100
100
100
100
100
100
100
100
Bring Down Wages
Serious problem
54
61
53
56
47
56
60
64
Somewhat serious
problem
29
20
31
30
35
25
24
21
Not a problem
11
13
12
10
13
10
12
12
Can't say
6
6
4
4
5
9
4
3
100
100
100
100
100
100
100
100
Collect Unemployment
Serious problem
57
47
58
60
51
59
58
63
Somewhat serious
problem
20
17
20
19
26
19
18
18
Not a problem
12
20
12
12
12
9
14
9
Can't say
11
16
10
9
11
13
10
10
100
100
100
100
100
100
100
100
Number of Interviews
(1549)
(58)
(1317)
(434)
(421)
(434)
(260)
(262)
The Gallup Organization. Inc.
18.
What Should be Done
The question: I am going to read you some statements that have been made
concerning the matter of illegal aliens. As I read each
statement, tell me the extent to which you agree or dis-
agree with each statement.
Congress should pass a Law to make it illegal for
an employer to hire an illegal alien.
Illegal aliens should be given a chance to become
U.S. citizens.
Illegal aliens should be rounded up and sent back
to where they came from.
Certain types of businesses need inexpensive labor
and should be allowed to hire illegal aliens.
The majority of Americans agree strongly that there should be a law against
hiring illegal aliens (62%) and say they disagree strongly with allowing certain
businesses to hire illegal aliens (56%). These attitudes are particularly pro-
nounced among upper socio-economic groups, skilled laborers, and members of union
households.
The majority of Americans (58%) agree that illegal aliens should have a
chance to become U.S. citizens. Paradoxically, a majority also agree (57%) that
illegal aliens should be rounded up and sent back where they came from. Persons
of Latin American and East European descent are most likely to feel that illegal
aliens should have the chance to be citizens, and least likely to agree that
they should be sent back where they came from. Those who have heard or read
about the problem are less likely to favor citizenship and more likely to favor
deportation.
The Gallup Organization. Ino
19
Continued
Annual Family Income
Union Household
$15,000
$10,000-
$5,000-
Under
National
& Over
$14,999
$9,999
$5,000
Yes
No
%
%
%
%
%
%
%
Should Be Law Against
Hiring Illegal Aliens
Agree strongly
62
68
62
58
51
66
60
Agree
18
18
19
19
16
19
18
Disagree
9
8
10
10
14
8
10
Disagree strongly
6
5
7
6
7
5
6
Don't know
5
1
2
7
12
2
6
100
100
100
100
100
100
100
Certain Businesses
Should Be Allowed to
Hire Illegal Aliens
Agree strongly
6
5
4
6
9
6
6
Agree
13
11
14
15
13
11
14
Disagree
19
18
22
20
19
18
19
Disagree strongly
56
64
58
51
42
62
54
Don't know
6
2
2
8
17
3
7
100
100
100
100
100
100
100
Number of Interviews
(1549)
(605)
(352)
(285)
(268)
(349)
(1200)
The Gallup Organization. Inc
20.
Continued
Read/Heard
Ethnic Origin
About Problem
Latin
Eastern
Other
Non-
National
American
European
White
White
Yes
No
%
%
%
%
%
%
%
Should Have a Chance
To Become Citizens
Agree strongly
20
28
25
19
20
18
22
Agree
38
52
43
36
40
37
39
Disagree
15
9
12
16
12
15
15
Disagree strongly
22
7
18
25
16
27
17
Don't know
5
4
2
4
12
3
7
100
100
100
100
100
100
100
Illegal Aliens Should
Be Sent Back
Agree strongly
33
20
26
36
20
38
28
Agree
24
22
25
25
23
26
23
Disagree
24
38
31
22
28
22
25
Disagree strongly
13
16
17
12
16
11
16
Don't know
6
4
1
5
13
3
8
100
100
100
100
100
100
100
Number of Interviews
(1549)
(58)
(138)
(1179)
(174)
(832)
(709)
DOJ-1976-07
The Gallup Crganization Inc.
Sllegge
CO 703.615
SIGNED AND MAILED
SEP 7 1976
Dear Mayor Heft:
Reference is made to your recent letter addressed to the President
concerning social and economic problems created by illegal Mexican aliens,
which has been forwarded to this Service for reply.
The concern expressed by you is well founded and is shared by those
of use in the Immigration and Naturalization Service. More and more are
becoming aware of the magnitude of the present influx of illegal aliens
and of the adverse effects the presence of such aliens has on this coun-
try. We have received numerous letters from the public expressing support
for stringent immigration law enforcement and urzing the expansion of our
officer forces to regain control over the illegal entrants.
Our best estimate is that there are approximately 6,500,000 illegal
aliens residing in the United States. Of that 6,500,000, we believe that
at least 1,000,000 illegal aliens are holding good jobs. During calendar
year 1975, we located in the major cities nearly 56,000 illegal aliens
who were employed. Of that number, more than half were earning in excess
of $2.50 an hour.
A popular misconception is that illegal aliens work only in very
menial jobs. At the upper end of the earnings ladder, we find illegal
aliens regularly employed on construction projects running from $3.75 to
nearly $10.00 an hour. We also find engineers and technicians earning
$15,000 and even $20,000 a year or higher. Even at the lower end of the
wage scale, we are confident that American youth, students and especially
young people from the ghettos, where unemployment reaches as high as 60%,
can be found to take these jobs.
A study recently completed by a consulting firm states that for
every one million adult illegal aliens there is a net tax burden of two
billion dollars. This study also states that the illegal alien popula-
tion is increasing by 250,000 persons or more each year, adding at least
five hundred million dollars yearly to the tax burden. These cost figures
do not include the unknown amount of taxes that are evaded each year by
illegal aliens. One Congressional committee estimated the tax loss at
115 million dollars per year. The figures also do not include the American
dollars sent out of this country to the detriment of our balance of pay-
ments. At least three billion dollars leave this country each year in the
form of earnings of illegal aliens, which are then lost from our economy.
GERALD FORD LIBRARY
-2-
By displacing American workers and legal permanent residents the
illegal alien causes increases in our unemployment rates, which, in turn,,
places more persons on the welfare rolls. Other adverse factors involve
losses in income tax revenue and an unfavorable outflow of United States
dollars to foreign countries. Experience has shown that some of the 11-
legal aliens are afflicted with communicable diseases which constitute a
health hazard, and that hospital costs for the indigent illegal alien must
be borne by the American taxpayer.
This Service is very much aware that the illegal alien presence in
the United States does constitute a very serious problem which we are en-
deavoring to solve with every means at our command. You may be interested
to learn that during Fiscal Year 1975, officers of our Service located
756,819 deportable aliens and removed a large number of them from the
United States. We believe that this is only a small fraction of the total
number of deportable aliens now in this country. This Service currently
has a priority program in force designed to locate illegal aliens employed
in jobs that can be made available to United States citizens or lawfully
admitted aliens who are authorized to accept employment. We are exerting
every effort within our manpower and fiscal limitations to provide a more
effective control of the illegal alien population.
You should also be made aware of the fact that several bills have
been introduced in the 94th Congress which impose penalties against em-
ployers who knowingly hire illegal aliens. If such legislation is enacted
into law, this Service will be in possession of an extremely valuable tool
to be used in our search for a means to provide a more effective enforce-
ment program, given the necessary manpower and budgetary increases.
Thank you, Mayor Heft, for this opportunity to outline the problems
in this area of increasing difficulty. You may be assured that every ef-
fort is being made to solve this problem. Our Service office at Cleveland
has been advised of the problem you are experiencing with illegal aliens
in Napoleon.
Sincerely,
James F. Greene
Deputy Commissioner
The Honorable Robert G. Heft
Mayor of Napoleon
Post Office Box 151
BENALD FORD LIBRARY
Napoleon, Ohio 43545
CC: DISTRICT DIRECTOR, CLEVELAND - For your information.
CC: RICHARD D. PARSONS ASSOCIATE DIRECTOR & COUNSEL DOMESTIC COUNCIL
For your information.
MEMORANDUM
THE WHITE HOUSE
INFORMATION/DECISION
WASHINGTON
September 27, 1976
MEMORANDUM FOR:
Jim Cannon
Jim Cavanaugh
Jim Lynn
FROM:
Dick Parsons
SUBJECT:
Preliminary Report of the Domestic
Council Committee on Illegal Aliens
The Domestic Council Committee on Illegal Aliens has completed
and is prepared to submit to the President a preliminary report.
Though preliminary, the report is nevertheless quite substantive
and shows that we have been doing a lot of thinking about this
problem.
The question arises as to whether the report should be made
public after submission to the President. I believe it
should, but would like your guidance.
As I see it, if we make the report public we can (a) further
stimulate thought and discussion about this important issue;
(b) get useful feedback on our preliminary thinking; and
(c) demonstrate to the public that the Administration is not
only aware of the problem but that, pursuant to the President's
direction, is moving on it.
On the other hand, some of the substantive positions takes in
the report might be offensive to the Latin American community
(e.g., the report comes down fairly hard on the law enforcement
side). Moreover, the report raises more questions than it
answers, which could lead to criticism.
I am seeking your guidance now (rather than after formal sub-
mission of the report), SO that we can release the report shortly
after its submission to the President.
To enable you to get a feel for the report, I have attached
copies of the Executive Summary (Tab A) and of the final
chapter, Summary of Conclusions (Tab B).
CC: Art Quern (w/attachments)
Preliminary Report
Domestic Council Committee on Illegal Aliens
Executive Summary
Introduction
Apprehensions of illegal aliens each year are
almost double the number of people who enter legally.
Illegal aliens, traditionally from Mexico and concentrated
in the Southwest, are from many nations and are found in
many areas of the country. The Domestic Council committee
was established to undertake a comprehensive review of
the issue and its implications. This preliminary report
provides an overview of the policy questions, assesses
current programs and knowledge and presents recommendations
for further action.
Chapter I - U.S. Immigration Law and Policy
For the first 150 years of our history immigration was
unrestricted. In the late 1800's certain classes, such as
convicts, or national groups, such as Chinese, were excluded.
In 1921 numerical limits were introduced based on the concept
of national origin quotas. A major recodification in 1952
established three basic premises for immigration: family
reunification, protection of jobs for the domestic labor force,
and control of alien visitors. However the national origin
V
quota was maintained until 1965 when amendments replaced
it with numerical hemispheric ceilings and introduced a
fourth premise, that of asylum for refugees.
Immigration from the Eastern Hemisphere is held at
120,000 per year with a 20,000 per country limit. Admission
is granted through a preference system which grants 74%
of the places to relatives of U.S. citizens and permanent
aliens. The Western Hemisphere ceiling of 170,000 was
added at the last moment by Congress and operates on a
first-come, first-serve basis with no preference system
or per country limits. Labor certification by the Department
of Labor is required for all non-relative classes from both
hemispheres. The 1965 law is the statute which governs
immigration today and has, since 1965, had two major
effects: (1) Immigration has increased by more than 100%
over the 1924-1965 period; and (2) there has been a shift
away from European groups toward Asian and Latin American
groups.
The worker importation provisions of the law apply to
both immigrants and temporary workers but they play a
minimal role in the present policy scheme. Canada and
Australia, the two nations most similar to the U.S. in
immigration matters, weigh employment impact considerations
heavily in their criteria for granting immigrant status.
vi
Chapter II - Illegal Immigration: The Global Picture
The principal source of immigration to the United
States currently is Mexico, Jamaica, the Dominican
Republic, Haiti, Korea, the Philippines, Thailand, and
China. Demand for immigration is intense in these
countries and several have waiting lists of 2 years or
more. These countries are also among the major illegal
alien source countries. The source countries have
similar characteristics in three respects: rapid economic
expansion, high population growth rates, and links with
the U.S. This pattern will apply to increasing numbers
of countries in the future and creates stong push forces
on individuals to migrate. These push forces combine
with the pull of available jobs and low risk of detection
in the United States to produce illegal migration.
The phenomenon of migration occurs in streams
according to certain principles among which the difficulty
of intervening obstacles and development of counterstreams
are prominent. The porcess is not responsive to legal
limits but rather its own self-sustaining momentum. Policy
will have to address the fundamental principles of push-pull
and migration to be successful.
Illegal immigration is from many countries but Mexico
is a major source for reasons of both history and geography.
vii
The governments of the U.S. and Mexico have established
bilateral discussions on the issue. However, the illegal
migration issue has not been of concern to policymakers
in the governance of our relations with other source
nations. Actions discouraging illegal entry may compete
with other foreign policy goals, e.g. tourism. However,
illegal immigration merits a far higher and more generalized
level of attention in our conduct of foreign affairs.
Chapter III - Law Enforcement
There is a long history of U.S.-Mexico border enforcement
in immigration matters. Thus the majority of our enforcement
effort is directed at this aspect of illegal immigration.
Illegal entrants from other nations are a relatively
recent development that requires significantly different
techniques.
The Immigration and Naturalization Service (INS) has
primary responsibility for immigration enforcement. It is
aided by the Department of State which issues visas overseas.
Prevention of illegal entry is the agency priority and is
done through inspection of individuals at ports of entry
and policing our land and borders between ports. INS also
carries on investigative activities within our borders
viii
against illegals who escape detection at entry. Recent
court decisions have limited INS' latitude in the interior
making prevention more important.
Several agencies have enforcement roles which are
related to illegal immigration. They are the Social
Security Administration, Internal Revenue Service, U.S.
Customs Service, and the Wage and Hour division of the
Department of Labor. The Committee has evaluated current
and proposed additional means of interagency cooperation
among them and INS and the Department of State. Experience
has shown that cooperation on enforcement matters is
difficult when the agency is service oriented such as the
Social Security Administration. However, much can be done
to increase the effectiveness of enforcement with the
tools presently available both among and within the
agencies concerned.
In addition to improved interagency efforts, certain
disincentives to illegal migration are needed which require
legislation. The disincentives are designed to lessen the
economic pull which draws illegals to the U.S., discourage
the use of the law to gain time and establish equity for
immigration benefits, increase enforcement authorities
to aid in capturing smugglers and the like, and streamline
the law of anachronistic provisions which detract from
more important tasks.
ix
Chapter IV - The Illegal Alien: A Soft Portrait
Judging the impact of illegal aliens on our society
requires information which is extremely sketchy at best.
Data deficiencies center on the difficulty of counting
and describing a clandestine population, the unrepresenta-
tiveness of using only apprehended and Mexican illegals.
Several studies were reviewed and a composite description
of the illegal includes personal characteristics by
nationality, origin within native country, age, sex,
education, marital status, language ability, and
motivation; characteristics of entry by entry without
inspection, visa abuse and others; characteristics of
residence by location, mobility, and wage remissions;
and characteristics of work place. The major points of
agreement are that the principal impact of illegals is in
the labor market rather than on social services, that language
ability is an important determinant in the type of employ-
ment, and significant percentages of earnings are returned
to the illegals' native country.
Chapter V - Domestic Impact of Illegal Aliens: The Issues
of Employment and Earnings
Because research on illegal aliens is in an embryonic
state, an exposition of domestic impact remains tentative.
X
There are several hypotheses concerning the economic
impact of illegals: (a) low skilled illegal alien workers
compete with low skilled natives depressing their wages
and tending to increase earnings of skilled workers and
owners of capital; (b) illegal aliens create unemployment
by taking vacant jobs; and (c) illegal aliens take more
from the system in services than they contribute in taxes.
The data currently available cannot provide answers. At
best it indicates certain directions.
Useful information may be obtained from analyses
on the foreign born and their impact in combination with
what is known about illegals. Earnings of the foreign
born rise with tenure in the U.S. and after 13 or more
years are substantially the same as natives. This implies
that if undetected, illegals would have the same profile as
natives and therefore would not remain a cheap labor source.
The analysis does not hold for Hispanics, an important
illegal alien characteristic, nor does it incorporate the
illegality factor as a barrier to upward mobility.
The termination of the bracero program showed that
sudden removal of alien labor opened jobs which natives
took at improved wages without driving employers out of
business.
xi
European countries have made extensive use of temporary
foreign workers who have made positive contributions to
economic growth but who have not returned as planned and
create problems during times of economic slowdown.
Chapter VI - Illegal Immigration: Social Issues
Migrants moving into new areas resettle according to
four stages. First, young, unmarried males predominate
followed by married men. In the third stage, they marry
or send for their families and settle permanently attracting
supporting populations of employers, businesses, etc. in
the final stage. Restrictions to keep migration temporary
rarely work and the last stage is frequently marked by
tension with the native population. Different parts of the
U.S. may be experiencing different stages of settlement
at this time.
Within the context of settlement, the welfare issue
or use of income transfer programs by illegals has received
much attention. These programs are examined and with the
possible exception of food stamps, which restrict eligibility
on the basis of citizenship, illegals are unlikely to qualify
based on age, sex and other personal characteristics.
Definitive judgment must await better information on the
characteristics of illegals and the settlement stage (s) of
various groups and areas.
xii
Several other social issues raised by illegal
immigration are population growth, INS enforcement,
anti-alien sentiment and federal-state-local relations.
Immigration is one of the major aspects of our population
growth as a nation. If the net number of illegals is
at least equal to our net immigration, the numerical
impact is a central factor in growth.
INS enforcement causes community resentment and
hostility in many areas, particularly in ethnic communities.
The greatest degree of support is to be found with
employer targeted enforcement; serious difficulties
accompany residence based efforts. This potential
for strife is also apparent in anti-illegal alien
organizing in some large urban areas.
The federal government has not worked closely with
other units of government on illegal alien issues although
these are the levels at which immediate impacts are keenly
felt. The existence of underground communities which
actively avoid government presents significant problems
which require cooperation and coordination to prevent.
Chapter VII - Dilemmas for the Future
Beyond the issues and topics discussed in the report,
immigration matters lead to large philoscphical and policy
questions for the society which will only be answered over
xiii
time. Some of the general areas within which immigration
is or should be an important component are government control
over individuals in law enforcement matters, research
methodologies and the limitations of information, long-
range foreign policy priorities and imperatives, and
the limits of and potential for growth.
The conclusions of the report and recommendations
make up Chapter VIII.
xiv
- 213 -
CHAPTER VIII
CONCLUSIONS AND MAJOR RECOMMENDATIONS
In drawing conclusions and formulating recommendations,
it is important to reemphasize the preliminary nature of
this report. The illegal immigration phenomenon is
complex and an interagency examination of this issue is
a very recent development. The charge to the Domestic
Council Committee was to develop a comprehensive approach
to the issue. In furtherance of that goal, this report
attempts to provide a clear statement of the issue in its
broad terms, assess current information, and chart the
process and tasks through which the executive branch of
government should proceed as a result.
One clear theme of this report is that a dramatic
lack of reliable information makes thorough analysis of
illegal immigration impossible at this time. Thus the
conclusions which the Committee has drawn are tentative
and subject to revision. Nevertheless the Committee
believes that certain judgments can and should be made
at this time in an effort to channel further inquiry
in a productive fashion.
CONCLUSIONS
1. Illegal immigration is rooted in powerful
social and economic forces endemic to both
host and sending countries.
Historically Mexico has been and remains a
major source of illegal entrants to the United States.
- 214 -
However illegal immigration today involves many
nations and new migration streams. Sending countries
are typically rapidly developing nations where
rising expectations combined with population
pressure have far surpassed the ability of economic
growth, albeit substantial, to narrow significantly
the income gap with the U.S. Thus pressure to emigrate
is intense, and large numbers of people have already
emigrated to the United States legally from source
countries as a result of 1965 amendments to the
Immigration and Nationality Act (INA). The act
markedly changed legal immigration to permit large
numbers of Latin and Asian origin groups and to
diminish numbers of Europeans who migrate. Illegal
immigration must be studied in the context of
migration incentives and the law governing legal
entry. United States employers seek foreign workers
for many kinds of work. Thus economic opportunity
and kinship and culture ties in the U.S. combine
with migration pressures to create potent push-pull
forces which the INA was not designed to check.
2. Illegal immigration is significant and growing.
Current estimates of the stock and flow of illegal
aliens are educated guesses at best. Establishing these
numbers in a credible fashion is important. Although
- 215 -
sound numbers are not available, the relevant point
for current policy purposes is that the illegal immi-
gration phenomenon is significant and growing. Our
immigration policy, as promulgated under the INA, is
ineffective. Our official commitment is to an
exclusionary policy founded in history and domestic
political considerations which allows approximately
400,000 foreign-born to take up permanent legal
residence in this country per annum. The de facto
situation is quite the opposite in that a combination
of legal loopholes and incentives, enforcement
inadequacies, and international push-pull forces have
created virtually open immigration to the U.S.
Analysis of this combination of factors leads
inevitably to the conclusion that a trend has been
established which is likely to grow if present cir-
cumstances persist.
3. The major impact of illegal aliens at this time
seems to be in the labor market. This impact is
likely to extend over time to other areas as the
process of settlement proceeds.
Illegal aliens compete effectively with native
workers, particularly with the minimally skilled and
under-employed, although the degree to which they
actually displace native workers is unclear. These
immigrants raise the income of owners of capital and
- 216 -
land and of highly skilled workers and lower prices
to consumers of goods and services they help produce.
Thus certain legal residents gain and others, parti-
cularly those with few skills, lose from the presence
of illegal aliens. However the unskilled labor which
the illegal generally contributes in the early stages
of migration later tends to be offset by the costs
incurred in the latter stages of migration when new
communities of families must be absorbed. This
result occurs during settlement, the end-product of
migration. Initially the migrant generally intends
to emigrate only temporarily. However his aspirations,
objectives and opportunities become attached to the
host country so that he eventually remains, establish-
ing or sending for family rather than returning.
4. The government should no longer ignore the
community-related implications of large numbers
of illegal aliens.
The ineffectiveness of the INA has helped to
create communities concentrated in our largest urban
centers whose existence depends on avoidance of law
and authority. Breeding these conditions signals
long-run negative social implications for ethnic
Americans and for the ability of state and local
units of government to function effectively. Aside
from the question of economic impact, the ramifica-
tions of harboring large numbers of people in illegal
- 217 -
status are undesirable and contribute to a breakdown
in the institutions and systems upon which we depend
for fair government.
5. Effective enforcement of the Immigration and
Nationality Act must stress prevention above all
other considerations.
It is vastly more desirable from both a policy
and a resources standpoint to prevent entry of the
illegal or screen out potential illegals before
arrival than to locate and apprehend the illegal
once he is in the U.S. This strategy is currently
accepted but it will require more adequate resources
for both the State Department and the Immigration and
Naturalization Service, improved management and
tactics, legislation, and greater cooperation among
federal agencies with related enforcement responsi-
bilities to be effective.
6. Effective enforcement is not enough. The illegal
alien issue is ultimately an issue of immigration
policy and will not be satisfactorily met until
a thorough rethinking of our immigration policy
is undertaken.
Who may enter this country for what periods of
time under which circumstances are the questions we
must, as a nation, answer. These questions in turn
raise questions about employment, population, and
- 218 -
other broad policy areas. The law must be revised
to incorporate current and future realities not
envisaged in the 1965 deliberations in which our
present system was formulated. The executive branch
must provide leadership and take an active role in
the development of a better immigration policy.
Serious study, widespread discussion, public educa-
tion, interagency coordination, adequate resource
allocation, policy analysis, planning, and coopera-
tion with state and local levels of government are
all needed.
The recommendations set forth below do not pre-
clude the more specific recommendations contained at
the end of individual chapters. Specific chapter
recommendations will presumably be implemented as
part of the overall follow-up to this preliminary
report by the Committee in accordance with the major
recommendations below. The Committee does not
believe any single element among its recommendations
can solve the illegal alien problem. It does believe
that the cumulative effect of implementing the
recommendations which follow will be to slow the
flow of illegal aliens significantly and to take
major strides toward the development of a more
effective immigration policy.
- 218 -
other broad policy areas. The law must be revised
to incorporate current and future realities not
envisaged in the 1965 deliberations in which our
present system was formulated. The executive branch
must provide leadership and take an active role in
the development of a better immigration policy.
Serious study, widespread discussion, public educa-
tion, interagency coordination, adequate resource
allocation, policy analysis, planning, and coopera-
tion with state and local levels of government are
all needed.
The recommendations set forth below do not pre-
clude the more specific recommendations contained at
the end of individual chapters. Specific chapter
recommendations will presumably be implemented as
part of the overall follow-up to this preliminary
report by the Committee in accordance with the major
recommendations below. The Committee does not
believe any single element among its recommendations
can solve the illegal alien problem. It does believe
that the cumulative effect of implementing the
recommendations which follow will be to slow the
flow of illegal aliens significantly and to take
major strides toward the development of a more
effective immigration policy.
- 219 -
MAJOR RECOMMENDATIONS
1. The issue of illegal immigration merits priority
attention and requires Cabinet leadership. Actions
to be taken cross many bureaucratic and agency lines
and will require continued coordination and direction
at the highest level.
2. The executive branch should aggressively pursue
the enactment of legislation which relates directly
to the illegal alien question and which the executive
branch has supported in the past. Such legislative
actions include:
(a) penalties for employers who knowingly hire
aliens not authorized to work;
(b) application of the preference system and
foreign state limitations to Western Hemis-
phere immigration in a manner similar to
that regulating Eastern Hemisphere immigra-
tion;
(c) thorough revision of the labor certification
provisions of the current law so that immi-
grants admitted for employment fall within
prescribed quotas and individual certifications
are eliminated;
(d) establishing a minimum age of 21 years for
Western Hemisphere aliens to confer
immigration benefits upon a parent as pertains
to Eastern Hemisphere aliens;
- 220 -
(e) advancement of the eligibility date for
establishing a record of admission for lawful
permanent residence from June 30, 1948 to
July 1, 1968; and
(f) increased penalties for persons who smuggle
or facilitate illegal immigration.
3. The Committee should evaluate the current H-2 or
temporary worker program authorized by the INA to
determine if it is adequate, both from an administra-
tive and statutory standpoint, to meet the legitimate
needs of employers for temporary foreign workers. It
should further assess the United States experience
with the bracero program and the experiences of other
nations with guest worker programs. An expanded,
government to government foreign worker program should
not be sought at this time. However, means of
improving the government's responsiveness to employers
under current law should be developed if necessary.
4. The agencies administering the INA -- INS and the
Department of State -- should receive high priority
in the allocation of resources directed at prevention
of and screening for illegal entries, management and
operational upgrading, and inter-Departmental coor-
dination.
5. The Committee should carefully study and make
recommendations on all aspects of the question of
- 221 -
adjustment of status for illegal aliens already in
the country. The Committee recognizes that massive
deportation is both inhumane and impractical and
advocates reasonable but relaxed standards for illegals
already here. However support for some form of
adjustment of status relief is contingent upon
passage of legislation described in recommendation #2
of this section.
6. The Department of State should undertake serious,
high-priority exchanges with governments of the major
illegal alien sending countries on the illegal migra-
tion issue, visa controls, and U.S. domestic pressures
and activity surrounding the illegal alien. U.S.
foreign aid and other efforts toward less developed
nations should be encouraged, but with greater
emphasis on factors that would reduce the pressures
that encourage migration, e.g., population planning,
rural economic development and labor intensive programs.
7. The Committee and the cognizant federal agencies should
initiate and support a broad based research program to
determine the nature and scope of the various immigration
related problems. This must include research within
government agencies as well as through contracting with
outside individuals and institutions, involvement of
other levels of government and consultation with a wide
variety of experts in many disciplines. Relevant economic,
1 1 222
sociological, demographic and labor market data are
needed to adequately examine existing policies and
update them.
8. The Committee should initiate a thorough re-
examination of the basic precepts and operations of
current immigration policy with the goal of developing
proposals and systems which are based on information
developed through careful study and research and
widespread discussion among affected interest groups
and the general public.
PRESIDENTIAL DOCUMENTS: GERALD R. FORD, 1976
1513
by this issue and last week's issue but which are not carried
After the meeting, the President met with Republican
elsewhere in the issues.
Vice-Presidential candidate Senator Robert Dole. Senator
October 6
Dole had also been a participant in the steering committee
The White House announced that on October 5, the
meeting.
President had directed the National Security Council to
October 12
prepare for him as soon as possible a report on the radio-
The President left the White House Tuesday morning
active fallout on the Eastern United States, and that the
for a trip to New York and New Jersey.
President expected the report today.
Following his motorcade tour of Brooklyn, the Presi-
The White House announced that Charles Miller, the
dent traveled to the Sloan-Kettering Hospital in Manhat-
captain of the Mayaguez, telephoned the President this
tan to visit Senator Hubert Humphrey, who is recovering
morning to express his displeasure and disagreement with
from a recent operation.
the report of the General Accounting Office on the Maya-
While in New York City, the President met with a
guez incident and, that the President invited Captain
group of editors, publishers, and media executives in the
Miller to meet with him in San Francisco and attend the
Beekman Room at the New York Hilton Hotel.
second Presidential debate as his guest.
October 13
October 7
On Wednesday morning, the President was interviewed
During his visit to Los Angeles, the President met with
by Barbara Walters of ABC News at the New York Hilton
Adam Malik, Foreign Minister of Indonesia, at the Bev-
Hotel in New York City. After arriving in New City,
erly Hilton Hotel.
N.Y., the President was interviewed by Walter Cronkite
October 8
of CBS News at the Rockland County Courthouse.
Following his remarks at the President Ford Committee
The President returned from his trip to New York and
reception at the Sheraton Universal Hotel, the President
New Jersey early Wednesday evening.
went by car to the Casa Adobe Historical Site in Glendale,
October 14
Calif. After briefly touring the site, the President met in
The President received a swine flu vaccination from
the courtyard with Mexican-American leaders from South-
Dr. William M. Lukash, Physician to the President, in
ern California.
Dr. Lukash's office at the White House.
While at the Montego Bay Motor Hotel in Lawton,
The President today declared a major disaster for the
Okla., the President met in the Game Room with a group
State of Maryland as a result of severe storms and flood-
of wheat farmers during a forum hosted by Senators
ing beginning about October 8, 1976, which caused ex-
Dewey Bartlett and Henry Bellmon, of Oklahoma. Follow-
tensive public, private, and agricultural property dam-
ing the forum, the President attended a meeting of cattle-
age. The President's action will permit the use of Federal
men in the Caribbean Room.
funds in relief and recovery efforts in designated areas
October 9
of the State.
During his visit to Dallas, Tex., the President attended
The President participated in an interview with editors
the football game between the University of Texas and
of various ethnic news publications.
the University of Oklahoma at the Cotton Bowl.
Representatives of the American Jewish Press Associa-
October 10
tion and other Jewish newspapers interviewed the
President.
In the afternoon, the President left Dallas, Tex., and
returned to the White House.
The President and Mrs. Ford gave a dinner in honor
October 11
of Miss Martha Graham, dancer, teacher, choreographer,
and the founder of the Martha Graham Dance Company.
The President met with Yigal Allon, Deputy Prime
Minister and Minister for Foreign Affairs of Israel, to
Following the dinner, the President presented Miss
Graham with the Presidential Medal of Freedom.
review the situation in the Middle East and the state of
bilateral relations between the United States and Israel,
October 15
and to reaffirm the traditional friendship uniting the two
The President today declared an emergency for the
nations. The meeting was held in the Oval Office at the
State of Virginia because of the impact of a drought. The
White House.
President's action will permit the use of Federal funds
The President met with the President Ford Committee
in relief and recovery efforts in designated areas of the
Steering Committee to discuss the Presidential campaign.
State.
10-19-76 3:06 Press office
Remarks not recorded.
Volume 12-Number 42
FORD is LIBRARY
pen: Mary Burke
W.S. JourNAl
H.R 14535
10-11-76 P.2.
Carter will blunder again, as he did several
times last month. However, the President
isn't reduced to merely waiting for Demo-
cratic errors to occur. He is already taking
advantage of his incumbency to woo various
interest groups with promises and actions.
In recent days, Mr. Ford has:
-Imposed a quota on meat imports for
calendar 1976, when such shipments exceed
1.28 billion pounds. Cattle raisers had urged
such action and Mr. Carter had challenged
Mr. Ford to do it. The Agriculture Depart-
ment has estimated meat imports this year
will exceed the quota figure by 17 million
pounds.
- Disclosed to wheat farmers that he is
"contemplating action" to raise the price of
wheat by raising the government loan rate
from the current $1.50-a-bushel level.
Diremised Mexican-Americans be will
veto & MM that among other things, would
tighten restrictions against aliens entering
the U.S.
And disclosed that the Ford adminis-
tration is considering helping airlines by
paring the federal tax on commercial airline
tickets to 0% from 8% and allowing air car-
riers to use the extra revenue to buy planes
that will meet noise-control standards going
into effect in the next few years.
But such benefits of incumbency mightn't
be enough to offset the Carter momentum as
election day approaches.
CC: Dick Parsons
Office of the Atturney General
Washington, D. C. 20530
JUSTITIA
November 23, 1976
9 47
MEMORANDUM FOR THE PRESIDENT
ILLEGAL ALIENS
The Immigration and Naturalization Service estimates
that there are six to eight million illegal aliens in the
United States and that the net annual increase in their
number is likely to exceed one million. As you may recall,
by letter of September 13, 1976, I requested that you
authorize an increase in the, Department of Justice budget
of a total of $67 million for fiscal years 1977 and 1978 to
permit full funding of the Immigration and Naturalization
Service program to prevent illegal entry into the United
States.
I would like to urge that as a strong new initiative
you authorize this increase. The Commissioner of the
Immigration and Naturalization Service believes that with
these added resources his agency could prohibit the entry
of 95 percent of the estimated 500,000 annual fraudulent
entrants at international airports and Mexican border ports;
apprehend within 100 miles of the Mexican border 85 percent
of the estimated one million aliens entering without inspec-
tion; and reduce by 50 percent in two years the approximately
9,000 illegal alien smuggling rings which now exist. I
believe this approach is the best hope for effective enforce-
ment of the immigration laws.
As Chairman of the Domestic Council Committee on
Illegal Aliens, I will soon be transmitting to you an ex-
tensive report which strongly supports this approach. The
Committee has found that illegal immigration is significant
and growing; actual immigration now bears little relation-
ship to the program prescribed by law. The Committee be-
lieves that a policy of pursuing large-scale deportations
would be neither humane nor practical. The Committee
recommends that our national policy stress prevention of
illegal entry. This is consistent with the strategy now
being pursued. The Committee has concluded, however, that
more resources are required for the Immigration and Naturali-
zation Service and the Department of State if this effort
is to be effective.
We are aware of the importance of restraining federal
spending. The costs to the nation of illegal immigration,
- 2 -
however, are substantial and increasing; while shared by
all, they are borne most heavily by the low-skilled
workers, largely minorities and youth, with whom illegal
aliens most effectively compete.
As I have indicated, I think this can be an impor-
tant new initiative which you might wish to discuss.
Edward H. Levi
Attorney General
Office of the Attorney General
FRO
SEQUITUR
Washington, n. C. 20530
JUSTITU
November 23, 1976
MEMORANDUM FOR THE PRESIDENT
ILLEGAL ALIENS
The Immigration and Naturalization Service estimates
that there are six to eight million illegal aliens in the
United States and that the net annual increase in their
number is likely to exceed one million. As you may recall,
by letter of September 13, 1976, I requested that you
authorize an increase in the Department of Justice budget
of a total of $67 million for fiscal years 1977 and 1978 to
permit full funding of the Immigration and Naturalization
Service program to prevent illegal entry into the United
States.
I would like to urge that as a strong new initiative
you authorize this increase. The Commissioner of the
Immigration and Naturalization Service believes that with
these added resources his agency could prohibit the entry
of 95 percent of the estimated 500,000 annual fraudulent
entrants at international airports and Mexican border ports;
apprehend within 100 miles of the Mexican border 85 percent
of the estimated one million aliens entering without inspec-
tion; and reduce by 50 percent in two years the approximately
9,000 illegal alien smuggling rings which now exist. I
believe this approach is the best hope for effective enforce-
ment of the immigration laws.
As Chairman of the Domestic Council Committee on
Illegal Aliens, I will soon be transmitting to you an ex-
tensive report which strongly supports this approach. The
Committee has found that illegal immigration is significant
and growing; actual immigration now bears little relation-
ship to the program prescribed by law. The Committee be-
lieves that a policy of pursuing large-scale deportations
would be neither humane nor practical. The Committee
recommends that our national policy stress prevention of
illegal entry. This is consistent with the strategy now
being pursued. The Committee has concluded, however, that
more resources are required for the Immigration and Naturali-
zation Service and the Department of State if this effort
is to be effective.
We are aware of the importance of restraining federal
spending. The costs to the nation of illegal immigration,
- 2 -
however, are substantial and increasing; while shared by
all, they are borne most heavily by the low-skilled
workers, largely minorities and youth, with whom illegal
aliens most effectively compete.
As I have indicated, I think this can be an impor-
tant new initiative which you might wish to discuss.
it.
Edward H. Levi
Attorney General