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This file contains materials regarding the Domestic Council Committee on Illegal Aliens.
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Illegal Aliens (2)
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This file contains materials regarding the Domestic Council Committee on Illegal Aliens.
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James M. Cannon Files (Ford Administration)
James Cannon's Issues Files
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The original documents are located in Box 18, folder "Illegal Aliens (2)" of the James M.
Cannon 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 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States of America his copyrights in all of his unpublished writings in National Archives collections.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
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copyright claim, please contact the Gerald R. Ford Presidential Library.
Digitized from Box 18 of the James M. Cannon Files at the Gerald R. Ford Presidential Library
OF
Office of the Attorney General
PRO
SEQUITUR
Washington, D. C. 20530
JUSTITIA
January 6, 1976
MEMORANDUM
To:
James M. Cannon
Assistant to the President for Domestic Affairs
From:
Edward H. Levi
7102
Attorney General
Subject:
Domestic Council Committee on Illegal Aliens
In response to your memorandum of December 10, 1975
regarding the status of the Domestic Council Committee on
Illegal Aliens you should know that after discussing this
matter with the President, I had several meetings with
Secretary Dunlop to review the Administration position re-
garding H.R. 8713, the "Rodino bill," and the desirability of
seeking a bilateral agreement with Mexico to regulate the ad-
mission to the United States of temporary Mexican workers and
discourage unauthorized entry. Secretary Dunlop and I have
each discussed the illegal alien problem with our Mexican
counterparts.
A meeting of all of the Cabinet members of the Committee
will be held this month. The agenda will include a discussion
of the pending legislation affecting the illegal alien issue
and a plan for organizing task forces to report by June 1, 1976.
As you know, we believe it is premature for the President
to make a major statement on the illegal alien issue at this
time. However, pursuant to your conversations last week with
the Deputy Attorney General, attached is a brief statement on
this issue suitable for the President's use.
Domestic Council Committee on Illegal Aliens
The United States has, throughout its history, been the
most hospitable nation in the world for immigrants. We continue
to accept more immigrants each year than any other country. Immi-
gration to the United States is intended to be governed by the
Immigration and Nationality Act which has, as a primary goal, the
reunification of families. In addition, it offers asylum to cer-
tain refugees and admission of some workers whose skills are in
short supply domestically.
Yet immigration into the United States today is primarily
characterized by large numbers of people, probably numbering in the
millions, who enter the country illegally each year. They come in
a variety of ways, but their purpose in coming is that which has
historically motivated many immigrants -- a search for economic
opportunity.
This influx of unauthorized immigrants has important impli-
cations. Many compete for jobs which are of interest to American
workers. Many others, however, seem to accept employment for which
Americans are unavailable and in this way contribute to our economy
and country. Nevertheless, because of their illegal status, all
must live in fear of apprehension and subject to economic exploita-
tion or abuse. Thus, we share an interest with the countries from
which they come, notably Mexico, in assuring adequate opportunities
for authorized immigration and discouraging illegal entry.
GERALD, FORD
At my direction a Domestic Council committee, composed of
the heads of agencies with a clear interest in illegal immigration,
has initiated an in-depth examination of the many interrelated
issues involved in the illegal alien problem. Its work will re-
sult in a full-range of recommendations directed at dealing more
effectively with the unauthorized flow of people into this country.
The Congress has also been concerned about the illegal alien prob-
lem and presently has under consideration two measures directed at
ameliorating it. The first, H.R. 8713 would prohibit the knowing
employment of illegal aliens. It is intended to greatly reduce
the opportunities for work which attract most unauthorized immigrants.
The second, H.R. 981, would create a preference system for the
Western Hemisphere identical to that now applicable to the Eastern
Hemisphere, establish Western Hemisphere country quotas, and improve
the current provisions for admittance of needed temporary and per-
manent workers. These changes would create an orderly system for
Western Hemisphere immigration, reduce for eligible individuals
the now lengthy delay in obtaining visas, and facilitate the author-
ized admission of those whose skills are determined to be required
in the United States. Their cumulative effect should be to diminish
the incentives for illegal immigration without unacceptable costs
or compromise of fundamental values. I support the principles
embodied in these measures and urge their speedy passage.
We must continue to try to assure that our immigration policies
are both fair and enforceable, realistically sensitive to economic
limitations, but faithful to our tradition as a nation of immigrants.
THE WHITE HOUSE
INFORMATION
WASHINGTON
January 15, 1976
MEMORANDUM FOR THE PRESIDENT
GERALD LIGUARY
FROM:
JIM CANNON
SUBJECT:
Relocation June of the I&NS Regional Headquarters
in Richmond to Dallas
The Immigration and Naturalization Service (I&NS) is planning
to relocate its regional headquarters in Richmond, Virginia,
to Dallas, Texas, on January 19, 1976. This proposed relocation
is strongly opposed by the local Richmond community and by
several members of the Virginia Congressional delegation.
Because of Congressional sensitivity to the matter, I thought
you ought to be aware of its background.
BACKGROUND
The present I&NS regional alignment has resulted in an
increasingly serious management problem because the number of
illegal aliens has increased significantly in recent years.
Of the current four I&NS regions, the Southwest region (which
encompasses the entirety of the U.S./Mexican border) has a
disproportionate share of all I&NS employees (approximately
45 percent) and is responsible for well over 50 percent of
the I&NS's total workload. To begin to bring I&NS regional
offices into better compliance with the standard Federal
regional offices plan, a new four-region plan was developed.
This plan was approved by the Attorney General and OMB in
February 1975.
Under the new plan, each of the four regions will have a far
more equal personnel situation, workload and span of control.
The area along the U.S./Mexican border, where the highest
percentage of illegal aliens enter, will be divided between
the new Southern and Western regions, thereby enabling much
better management control over the area where the most
significant problems are encountered. It is also hoped that
productivity will be improved because of the leveling-off
of personnel and workload among the four regions.
2
The reasons for moving the current Southeast regional
headquarters in Richmond to Dallas are:
GERALD
the State of Virginia is not included in the new
Southern region;
Dallas is one of two standard Federal regional cities
within I&NS's new Southern region;
Dallas is close to the Southwest border, where the
action is; and
by moving to Dallas, I&NS will be co-located with
the U.S. Customs Service and the Drug Enforcement
Administration, with which they must coordinate
operations.
Members of the White House staff recently met with represen-
tatives of Senators Byrd and Scott and Congressmen Satterfield
and Robinson, a representative of Governor Godwin, and
representatives of the Richmond community to discuss the
impending move. Essentially, the Virginia contingent
objected to the move because:
it would result in a loss to Richmond of about 60 jobs
and $1.5 million annual payroll;
it would have a negative impact on Richmond's efforts
to preserve its downtown area; and
they do not believe it is cost effective, since it
would result in a one-time expenditure of approximately
$650,000 in moving expenses.
Those at the meeting were informed that their views would be
made known to you but that they should not expect Presidential
intervention.
At my request, the Deputy Attorney General has personally
reviewed this situation. He has advised me that the proposed
move to Dallas is clearly in the best interests of the I&NS
and the U.S. Government and that to delay or terminate the
move would cause great personal hardship to numerous I&NS
employees who have sold their houses in Richmond and purchased
others in Dallas. The Deputy's memorandum is attached at Tab A.
I do not believe that any further action on our part is
warranted.
CC:
John O. Marsh, Jr.
Max L. Friedersdorf
THE DEPUTY ATTORNEY GENERAL
WASHINGTON, D.C. 20530
January 13, 1976
MEMORANDUM FOR:
Richard D. Parsons
Associate Director and Counsel
Domestic Council
SUBJECT:
Proposed Immigration and Naturalization
Service Regional Realignment
Attached is a proposed letter from Commissioner Chapman
to the spokesman for the Richmond group that met with you
last week on the I&NS regional realignment. The letter and
accompanying enclosures were prepared by the Immigration
and Naturalization Service.
I have reviewed these materials, and I believe that,
contrary to the opinions expressed by the Richmond repre-
sentatives at your recent meeting, Commissioner Chapman
has provided the Richmond community and the Hill with an
ample -- and compelling -- rationale in support of the
proposed realignment of I&NS regions. That rationale,
in brief, is:
1. The proposed closing of the Richmond office is
part of an overall, government-wide policy of establishing
standard federal regions. In response to OMB Circular A-105
issued on April 24, 1974, the Department of Justice asked
I&NS to explore the feasibility of conforming to the long-
range organizational and management goals established by
OMB for all Federal domestic agencies. I&NS, after an
extensive study, developed a redesigned four-region plan
that I&NS, the Department of Justice and OMB believe
conforms to the concept of standard Federal regions and
at the same time is best suited to I&NS's own personnel
and workload characteristics.
The establishment of uniform regional boundaries has
been endorsed for all Federal domestic agencies. The purpose
of this policy, as enunciated by the Office of Management
and Budget, is to "provide greater opportunities for securing
management improvements and economies among federal depart-
ments and agencies including establishment of common admin-
istrative support and federal supporting service facilities."
Within these guidelines it is possible to maintain present
I&NS regional offices in each region except for the new
Southern Region.
- 2 -
The I&NS plan was submitted to the Department of
Justice on January 31, 1975, and to OMB on February 12,
1975. Approval of the realignment and the anticipated
managerial improvements was granted by the Department
and on February 27, 1975 by OMB. The move of the Richmond
office to Dallas is the most critical element of the I&NS
regional realignment. If the move is not effected, the
Southern Region, stretching from the Carolinas through
New Mexico, will be operated from a site external to its
FORD LIBKARY
boundaries and far removed from its principal workload.
This would require attendant high operational costs.
2. The revised regional structure will increase I&NS
operational and management effectiveness and efficiency.
Because of current disproportionate workloads and spans of
control among the regions, unequal demands are placed on
top program managers. The Southeast Regional Office
(Richmond) was opened in 1955 when the Service first
regionalized and this Office has served I&NS well for the
past 20 years. However, over this time period the workload
of the Service has grown and shifted considerably, resulting
in the ineffectiveness of the current I&NS regional
structure. The regional realignment equalizes workload,
personnel, and span of control.
The one-time cost of the move will be more than offset
by the subsequent savings realized by the more efficient
and effective management of the Immigration and Naturalization
Service under the improved regional structure, of which the
move from Richmond is only a single, but crucial part. These
savings will be realized without increasing budget or
personnel.
3. There are distinct advantages to having a regional
office in Dallas. Dallas is one of two standard Federal
regional cities within the I&NS new Southern Region. The
other is Atlanta. The new regional office has the advantage
of being near the many offices in problem areas along the
Texas border which it will administer as well as being
within easy access of the Atlanta and Miami offices over
which it will continue to have jurisdiction. It will be
co-located with the Drug Enforcement Administration and
Customs offices with which it must coordinate. The new
regional office in Dallas will be able to participate in
the Federal Regional Council to coordinate with other
concerned Federal agencies on the illegal alien and drug
enforcement problems, two areas of major concern in the
United States today.
- 3 -
4. Including Virginia in the Northeast Region rather
than the Southeast Region is mandated by the workload and
by geography. In reviewing alternative regional structures
for I&NS, the possibility of including the Philadelphia
District (Standard Region III), which includes Richmond
and the Commonwealth of Virginia, in the Southern Region
was considered. This was not found to be a viable alternative,
however, since it created regions with too much geographic
diversity and imbalanced workloads. Also, the workload of
the Philadelphia, Baltimore, and Washington Districts is
much more similar to that of the districts in the Northeast
than to that in the new Southern Region.
5. Closing the Richmond office will not result in a
significant impact on the economy of that city. The I&NS
office in Richmond accounts for less than one percent of
Federal employment in Richmond and only one-tenth of one
percent of the Richmond area payroll. While the I&NS office
will be closing, another Federal agency, the EEOC, is in
the process of opening a regional office in Richmond. The
Richmond representatives concede that their objections to
the proposed move are not on the grounds of impact to the
local community.
6. Closing the I&NS office in Richmond will not result
in substantial hardship to the employees of that office.
Thirty-two of the 62 employees in the Richmond office are
moving to the Dallas office when the Richmond office closes.
Unfortunately, some employees in the Southeast Regional
Office in Richmond -- although offered an opportunity to
move to Dallas - do not desire to move with the office.
I&NS is making a concerted effort to assist these employees
in obtaining other Federal employment in the Richmond area.
7. To delay the move, even on an interim basis, would
create more disruption that it would prevent, and would be
unfair to those employees expecting to report to work in
Dallas on Monday, January 19, 1976. Any delay or termination
of plans for the move at this time would cause undue hardship
to many Service employees. Six of the Richmond I&NS
employees have sold their Richmond homes, seven have bought
homes in Dallas. Seven have moved. Sixteen new employees
have been hired and ordered to report for duty on January
19. Another three Service employees have been promoted
from other I&NS offices into positions in Dallas and are
en route from other cities. The office in Richmond will
be packed and moved beginning January 12, and file transfers
necessitated by the regional alignment have already been
made. A new tenant is preparing to take over the Richmond
office space commencing January 19.
- 4 -
In view of the above, the Richmond to Dallas move
appears eminently sensible. The objection raised by
the Richmond opponents of the move is that it is not a
wise expenditure of federal funds. They base this
objection on the General Accounting Office's estimate of
the dollar cost of moving the personnel and equipment of
the Richmond office to the new Dallas location.
Unfortunately, the GAO report is far too limited for
the purposes for which it has been used. It does not
examine savings and efficiencies inherent in the total
I&NS regionalization plan, nor the overall Executive
Branch concept of using standard federal regions with
headquarters in standard federal region cities. Prior
to the adoption of this concept several years ago, OMB
conducted lengthy studies to determine the best method
of dealing with this difficult question of how best to
control the location of federal offices around the
country. This move is the final result of that process.
2
Harold R. Tyler, Jr.
MEMORANDUM
THE WHITE HOUSE
INFORMATION
WASHINGTON
January 15, 1976
MEMORANDUM FOR:
Jim Cannon
FROM:
Dick Parsons
D.
SUBJECT:
Relocation of the I&NS Regional
Headquarters in Richmond to Dallas
Attached is a draft Information memorandum from you to the
President which is self-explanatory. Basically, it outlines
the facts you, Paul O'Neill and I discussed yesterday con-
cerning the impending relocation of the I&NS regional office
in Richmond, Virginia, to Dallas, Texas.
I have discussed the contents of the memorandum with Bill
Kendall and Tom Loeffler, who were at the meeting with the
Virginia delegation, and they concur in the approach taken.
I believe the President should be aware of this situation
before the actual move takes place on January 19.
Attachment
THE WHITE HOUSE
INFORMATION
WASHINGTON
January 16, 1976
MEMORANDUM FOR THE PRESIDENT
FROM:
JIM CANNON
Jun
SUBJECT:
Illegal Aliens
The Attorney General has scheduled a meeting of the
Domestic Council Committee on Illegal Aliens for
Wednesday, January 21.
His agenda will include a discussion of legislation
pending in Congress which would affect illegal aliens
and a plan to organize task forces to report to him
by June 1, 1976.
CC: Jim Lynn
Dick Parsons
FORD LIBRARY
REQUEST
January 20, 1976
MEMORANDUM FOR: Jim Cannon
FROM:
Dick Parsons
GGR8LD FORD VIBRARY
SUBJECT:
Domestic Council Committee on
Illegal Aliens Meeting
The Attorney General has called a Cabinet-level meeting of
the Domestic Council Committee on Illegal Aliens, to be held
on January 21, 1976, at 1:00 p.m. You have been invited to
attend. This memorandum provides essential background for
your information.
BACKGROUND
The Domestic Council Committee on Illegal Aliens was created
by the President on January 6, 1975 (see memorandum at Tab A).
Although several meetings of the committee were held last year,
little was accomplished apart from a realization of the lack of
information concerning the status, location, etc., of the illegal
alien population.
In an effort to more clearly focus and revitalize the committee's
activities, the President, this past summer, directed that the
committee undertake a full-scale analysis of all aspects of the
illegal alien problem (see memorandum at Tab B). Partially in
response to this directive, the I&NS has commenced a major study
of the demography and impact of illegal aliens in the United
States. With the exception of this action, little else has been
done, however.
You should know that a separate but similarly charged entity,
the Department of State's Interagency Committee for the Study of
Problems Related to Illegal Mexican Migration into the United
States, has met with the Mexican government and begun a dialogue
on possible methods to resolve our mutual problem. Lynn May and
I have attempted to see that the work of the Interagency committee
is coordinated with that of the Domestic Council committee.
AGENDA
The meeting you will be attending on the 21st is designed to get
the Domestic Council committee moving again. The major agenda
items include (1) a discussion of pending legislation relating to
the illegal alien issue (see Tab C) and (2) a discussion of an
2
organization plan to carry out the committee's responsibility
for developing, coordinating and presenting to the President
policy issues that cut across agency lines dealing with the
illegal alien problem. This second item (discussed in detail
at Tab D) calls for the establishment of five task forces
focusing on the following areas:
Economic and Labor Market Impact.
Immigration Law and Policy.
Enforcement.
Social and Community Impact.
Foreign Relations.
GL8ALD FORD LIBRARY
THE WHITE HOUSE
INFORMATION
WASHINGTON
January 16, 1976
MEMORANDUM FOR THE PRESIDENT
FROM:
JIM CANNON Jun
SUBJECT:
Illegal Aliens
The Attorney General has scheduled a meeting of the
Domestic Council Committee on Illegal Aliens for
Wednesday, January 21.
His agenda will include a discussion of legislation
pending in Congress which would affect illegal aliens
and a plan to organize task forces to report to him
by June 1, 1976.
CC: Jim Lynn
Dick Parsons
FOR IMMEDIATE RELEASE
JANUARY 6, 1975
Office of the White House Press Secretary
THE WHITE HOUSE
January 6, 1975
MEMORANDUM FOR:
THE DOMESTIC COUNCIL
Secretary of State
Secretary of the Treasury
Attorney General
Secretary of the Interior
Secretary of Agriculture
Secretary of Commerce
Secretary of Labor
Secretary of Health, Education and Welfare
Secretary of Housing and Urban Development
Secretary of Transportation
Assistant to the President Baroody
Director, Office of Management and Budget
Chairman, Council on Economic Advisers
Chairman, Council on Environmental Quality
Administrator of the Environmental
Protection Agency
Director, ACTION
SUBJECT:
Domestic Council Committee on Illegal Aliens
I am today establishing a new Domestic Council Committee on Illegal Aliens.
This Committee will develop, coordinate and present to me policy issues that
cut across agency lines to provide better programs for dealing with this
National problem. The Attorney General will serve as the Chairman of this
Committee. The membership of the Committee will consist of the Secretary
of State, Secretary of the Treasury, Secretary of Agriculture, Secretary
of Commerce, Secretary of Labor, Secretary of Health, Education, and
Welfare, Assistant to the President Baroody, and the Director of the Office
of Management and Budget.
GERALD R. FORD
###
THE WHITE HOUSE
ACTION
WASHINGTON
June 16. 1975
MEMORANDUM FOR:
THE PRESIDENT
PROM:
JIM CANNON Jue
SUBJECT:
Domestic Council Committee on Illegal Aliens
BACKGROUND:
On January 6, 1975, you established the Domestic Council Committee on
Illegal Aliens to develop, coordinate and present policy issues that cut across
agency lines to provide better programs for dealing with the national problem
of illegal aliens. The meetings of the Committee have revealed the current
total lack of solid data on the problem and the difficulity in obtaining it. The
Committee is divided on its future course -- whether it should adopt a limited,
methodical approach which would take several years to carry out or attempt
a quicker resolution with several attendant risks. Your guidance is necessary
to resolve this impasse.
OPTIONS:
There are two competing alternatives for the Committee's future activities and
al non exclusive third option.
1. Limited Step by Step Approach:
A limited option would be to establish 2 legislative strategy for the passage
of the Rodino Bill. which establishes penalties for the employment of illegal
aliens, and determine 2 position on the Kennedy Bill, which would confer
legal status on illegals who have resided in the United States for more
than three years. The Committee would also monitor an Immigration and
Naturalization study, currently awaiting Congressional appropriations
approval, which would identify the number, location and employment
patterns of illegals in the United States. Following completion of this
preliminary study and building on the data it provides, a series of impact
studies could then be devised, if considered necessary, to examine the
effect 55 illegal aliens in areas like jobs, schools. social welfare, etc.
This option would permit a positive step by step approach
without incurring great additional costs or creating mandates
for further action. :: would furnish data necessary to
establishing the parameters of the problem and for the formulation
of a logical sequence of studies lending to solutions.
Con - It is 2 limited approach to the problem and would not do much
before the election to solve the larger accompanying economic
and social impact of the pressure of illegal aliens apart from
establishing sanctions against employment.
2. Immediate Comprehensive Approach:
An alternative approach would encompass the legislative and monitoring
activities outlined above plus the immediate commencement of long-range
impact studies to examine such problems as:
2. What are the cost effects of illegal aliens on social services like
welfare, unemployment insurance, health delivery and education?
b. What is the cultural and social impact of illegal aliens on areas in
in which they settle? Do they make contributions to the communities
in which they concentrate or are they parasites?
C. What is the effect of the illegal aliens influx on our foreign policy and
international relations? (This question would be examined in concert
with the Secretary of State's Interagency Committee for Study of
Problems Related to Illegal Mexican Migration into the United States.)
d. How many and what type of jobs do the illegals take away and in what
industries? Can these jobs be filled by Americans and is the U.S.
labor force adequate and willing to work in jobs now occupied by
illegal aliens?
Pro - It would provide a large body of background data and accelerate
your Administration's efforts to deal with the problem.
Con - This proposal would take time, money and the commitment of a
full time staff of agency personnel or consultants. The impact
studies could heighten tensions among Spanish speaking
groups and the results, particularly in the social services
area, could produce evidence of the inordinate cost of illegal
aliens on state and local governments. This could create
pressures for Federal subsidies to ease the problem.
Review of Immigration and Work Entry Laws:
An option, not excluded by adoption of either of the proceding two,
would be an examination of current laws covering immigration and admission
of aliens for employment. This study would seek to determine whether or
not liberalizing these laws would remove the influx of illegals and their
impact on the economy. It could review the policies of other countries in
this regard, notably Europe, and evaluate the old Federal "Bracero"
employment program. in which Mexican citizens were allowed entry for
employment under 2 quota system.
Pro - Would provide the data for a "legalistic" solution to the problem
by examining the feasibility of admitting more aliens as
immigrants and legal workers.
Con - The study could incur the opposition of organized labor to
whom the "Bracero" program was an anathema.
RECOMMENDATIONS
Option 1 (Limited Step by Step Approach)
- Levi, Buchen, Marsh
Seidman
Option 2 (Immediate Comprehensive Approach)
- Dunlop, Lynn, Cannon
Option 3 (Review of Immigration and Work Entry Laws) - Levi, Buchen, Marsh,
Lynn, Cannon
DECISION:
Option 1
or
Option 2
Option 3
Yes
No
FORD LIBRARY j GERALD
Pending Legislation Relating to the Illegal Alien Issue
H.R. 8713 - The "Rodino Bill"
H.R. 8713 would prohibit the knowing employment of illegal
aliens. It is intended to eliminate the opportunities for employ-
ment which attract illegal aliens. H.R. 8713 would not require an
applicant to show proof of citizenship or eligibility to work in
order to obtain a job and would not require that an employer in-
quire as to his status. The bill proposes a three-step penalty
structure, with a warning for a first offense, a civil fine for a
second offense and criminal penalties for subsequent offenses. It
would also provide for legalization of status for most illegal aliens
who have been in the United States since 1968.
H.R. 8713 has been criticized for conflicting reasons. Some
have asserted that a requirement that an applicant show proof of
citizenship or eligibility to work is necessary if the prohibition
is to be effective. Others argue that it is inappropriate to involve
employers in enforcing the immigration laws. Strong concern has been
expressed, by the U. S. Commission on Civil Rights among others, that
the bill would encourage illegal discrimination against members of
minority groups seeking employment.
The Administration has supported H.R. 8713 in the belief that
a prohibition against the knowing employment of illegal aliens would
be widely complied with voluntarily and that the many compromises
reflected in the bill adequately meet the various criticisms of it.
The bill has passed the House of Representatives in each of the last
- 2 -
two Congresses, but has not been acted upon by the Senate. In
this session it has been favorably acted upon by the House Judi-
ciary Committee, but is unlikely to be reported for floor action
soon.
H.R. 981
H.R. 981 would amend the Immigration and Nationality Act to
create for the first time a preference system and annual country
quotas for Western Hemisphere immigration, for which visas are now
issued on a first come - first serve basis. The preference system
and annual 20,000 per country quota now applicable to the Eastern
Hemisphere would be applied to Western Hemisphere, except for
Mexico and Canada which would receive annual quotas of 35,000 each.
In addition, the bill would simplify and expedite the labor certi-
fication process for the admission of needed workers.
The bill would serve to create more orderly Western Hemi-
sphere immigration. It would reduce for those entitled to prefer-
ences the current two to three year waiting period for obtaining
a visa and make the labor certification process a more viable
means of obtaining needed labor legally. In these ways it whould
alleviate some of the incentive for illegal immigration. Alter-
ing its prior position, the Administration now supports applying
the 20,000 quota to Mexico and Canada. Providing for immigration
subject to the quotas of either 35,000 or 20,000 would, however,
- 3 -
reduce authorized immigration from Mexico, although it could in-
crease immigration from Canada. Thus, it might exacerbate the
pressures for illegal immigration from Mexico.
With the exception noted, the Administration supports H.R.
981. There is a general consensus among the interested parties that
H.R. 981 is a desirable effort to improve the system of Western
Hemisphere immigration, but would not alone substantially reduce
illegal immigration. It is still being considered by the House
Judiciary Committee and, absent a strong effort, its enactment
in this Congress is not anticipated.
DOMESTIC COUNCIL COMMITTEE ON ILLEGAL ALIENS
Background and Proposed Organization Plan
BERALD FORD LIBRARY
The Committee
In January 1975, President Ford established the Domestic
Council Committee on Illegal Aliens, chaired by the Attorney General,
"to develop, co-ordinate and present policy issues that cut across
agency lines to provide better programs for dealing with this
national problem." Surveys of agency attitudes and approaches
to various aspects of the illegal alien problem were prepared and
certain possible legislative proposals were explored. Subsequently,
the President refined the Committee's mandate, requesting develop-
ment of a legislative strategy, initiation and evaluation of long
range studies on key questions regarding the impact of illegal aliens,
and review of the U.S. immigration laws to assess whether they should
be modified in light of the influx of illegal aliens. A task force
approach to discharging these responsibilities was suggested.
The Illegal Alien Problem
Immigration to the United States is intended to be governed
by the Immigration and Nationality Act of 1965, under which approxi-
mately 400,000 aliens are admitted annually. Actual immigration,
however, bears little relation to the program prescribed by law.
In 1974, 788,000 deportable aliens were located, about twice the
number authorized admission that year. Latest estimates indicate
that there are now 8 million illegal aliens in the United States.
- 2 -
Historically, illegal aliens have been Mexicans, concen-
trated upon our Southwest border, performing agricultural work.
Today, however, only about 60% of illegal aliens are Mexican and
there are increasing concentrations of illegal aliens in urban,
industrialized areas throughout the country. There are, for
example, estimated to be 1 million in the New York City metropoli-
tan area alone. While most Mexicans seem to enter the United States
surreptitiously and illegally, the majority of others enter legally
in a temporary status and become illegal aliens when their visas
expire.
Illegal aliens come to the United States seeking economic
opportunity. Population trends in the countries from which they
primarily come suggest that the incentive to emigrate in search
of jobs should be expected to increase in the foreseeable future.
The influx of unauthorized immigrants has important, but some-
what unclear, implications for the United States. Many compete for
jobs which are of interest to American workers. Many others, how-
ever, seem to accept employment for which Americans are unavail-
able. Nevertheless, because of their illegal status, all live in
fear of apprehension and are subject to economic exploitation or
abuse. The question of how illegal immigration and the proposals
to deal with it affect the needs and interests of the United States
is of central importance.
- 3 -
Immigration should be controlled by a system of laws which
are fair and effective. The Committee's goal should be to de-
velop an improved immigration policy, sensitive to economic
realities, reflecting democratic values and faithful to our tradi-
tion as a nation of immigrants.
Organization of the Committee
The Committee consists of the Attorney General, the Secretaries
of Agriculture; Commerce; Health, Education, and Welfare; Labor;
Treasury; and State; the Director, Office of Management and Budget;
and Special Assistant to the President Baroody.
It is proposed the Committee be organized into 5 task forces:
Economic and labor market impact
Immigration law and policy
Enforcement
Social and community impact
Foreign Relations *
The task forces are intended to be working committees whose
members are available to commit a substantial percentage of time
and agency resources, including travel if necessary, to this effort.
Task force chairmen should be senior officials of their departments
selected by their respective Secretaries. The task force chairmen
will comprise a steering committee for coordination and immediate
* Note: This subject will be handled by a previously constituted
group, the Interagency Committee on Mexican Migration to the U.S.
The Committee is chaired by the Department of State and was estab-
lished pursuant to meetings between President Ford and President
Scheverria of Mexico in 1972. The scope of its activities as origin-
ally defined will be broadened for purposes of the Domestic Council
Committee.
- 4 -
response purposes. A modest level of staff support, located in
the Department of Justice, will be available.
It is proposed that task force reports to the Committee be
made by June 1, 1976. Task force efforts should include recommenda-
tions on pending legislation and other proposals, development of
studies and pilot programs, identification of new areas for inter-
agency cooperation, new contracts or use of existing resources to
develop needed data, and contacts with affected constituencies
within and outside government. The advice of interests and experts
from outside the federal government should be considered parti-
cularly important. The task force reports should provide a basis
for a full range of recommendations from the Committee to the Presi-
dent.
The membership and responsibilities of the proposed task
forces are as follows:
1. Economic and Labor Market Impact Task Force
Chair: Labor
Members: Agriculture
Commerce (Bureau of Economic Analysis-
Balance of Payments)
Treasury (Internal Revenue Service)
Office of Management and Budget
As indicated earlier, most illegal aliens enter the U. S.
in search of jobs. Many believe they take agricultural and indus-
trial jobs normally filled by American workers, compete as low-
skilled laborers most directly with unskilled ethnic or minority
- 5 -
groups, depress wages of American workers, adversely affect the
balance of payments by sending money out of the U. S., and impose
costs on American taxpayers by using public services and directly
or indirectly contributing to the cost of welfare. There are indi-
cations, however, that illegal aliens perform economically essential
functions for which Americans are unavailable, thus contributing to
our economy and country. Analysis and consensus on the economic
impact of illegal aliens are critical. This task force would
analyze the economic impact of illegal aliens from two vantage
points: (a) the labor-market economic sector and geographical
distribution of illegal workers, their behavior and movement in the
labor market, and their effects on native workers; and (b) the fiscal
effect of illegal aliens on public expenditures, tax revenues and
the balance of payments.
2. Immigration Law and Policy
Chair: Justice (Immigration and Naturalization Service)
Members: State (Security and Consular Affairs)
Labor
Office of Management and Budget
The goals of the Immigration and Nationality Act are the re-
uniting of families and the admission of needed workers and cer-
tain refugees. However, the Act has had several unforeseen effects,
contributing to the long backlog in obtaining admittance from the
Western Hemisphere which is itself an inducement to illegal immi-
- 6 -
gration. This task force would evaluate the basic premises of
the Act and how it might be improved. This would include con-
sideration of the approaches to immigration of other countries,
the numerical limits on authorized U. S. immigration, the possi-
bility of a preference system and country quotas for the Western
Hemisphere, and means of improving the process for admitting needed
workers on a permanent or temporary basis, including the possibility
of bilateral arrangements to control the flow of what is now illegal
immigration.
3. Enforcement Task Force
FORD LIBRARY
Chair: Justice (Immigration and Naturalization Service)
Members: State (Security and Consular Affairs)
HEW (Social Security Administration)
Treasury (Internal Revenue Service)
Special Assistant to the President for
Hispanic Affairs.
Law enforcement resources appear to be inadequate to meet
the demands posed by present levels of illegal immigration. This
task force would examine ways to organize and utilize these re-
sources more effectively. This would include consideration of
means of preventing visa abuse and use of fraudulent documents,
compliance with and enforcement of FICA and withholding tax require-
ments, INS enforcement programs, and present practices in issuing
social security numbers. The task force would also evaluate the
resource implications of other possible law enforcement techniques.
In the case of both present and possible law enforcement programs,
explicit consideration should be given to their impact on U. S.
citizens and authorized aliens.
- 7 -
4. Social and Community Impact
Chair: Health, Education and Welfare
FORD :- LIBRARY GERALD
Members: Commerce (Bureau of the Census)
Assistant to the President
Agriculture (Food and Nutrition Service)
Justice (Community Relations Service)
The influx of large numbers of immigrants has traditionally
created community tensions, animosity from those who feel most
threatened and sympathy from many others. It has also imposed
additional public responsibilities on the communities in which
they settle. These factors are complicated by the secret, illegal
status of much of the current generation of immigrants. This task
force would also be a vehicle for communication and cooperation
Between the Committee and the many ethnic, immigrant and state and
local groups intensely interested in this area. This task force
would assess the social ramifications of illegal immigration,
including its effect on federal, state and local tax-supported
services and programs, its population growth and distribution
implications, and its consequences for legal resident aliens and
minority groups.
5. Foreign Relations
Existing Interagency Committee on Mexican Migration
chaired by the Department of State.
This task force would be responsible for co-ordination and
communication with those countries from which illegal aliens pri-
marily come. In conjunction with the other task forces it would
also develop short-run proposals which might be adopted by foreign
- 8 -
countries to discourage emigration and long range recommendations
for assisting in the alleviation of conditions which cause aliens
to emigrate. The primary emphasis of this task force would be
on Mexico.
REQUEST
January 20, 1976
MEMORANDUM FOR: Jim Cannon
FROM:
Dick Parsons
GERALD FORD
SUBJECT:
Domestic Council Committee on
Illegal Aliens Meeting
The Attorney General has called a Cabinet-level meeting of
the Domestic Council Committee on Illegal Aliens, to be held
on January 21, 1976, at 1:00 p.m. You have been invited to
attend. This memorandum provides essential background for
your information.
BACKGROUND
The Domestic Council Committee on Illegal Aliens was created
by the President on January 6, 1975 (see memorandum at Tab A)
Although several meetings of the committee were held last year,
little was accomplished apart from a realization of the lack of
information concerning the status, location, etc., of the illegal
alien population.
In an effort to more clearly focus and revitalize the committee's
activities, the President, this past summer, directed that the
committee undertake a full-scale analysis of all aspects of the
illegal alien problem (see memorandum at Tab B). Partially in
response to this directive, the I&NS has commenced a major study
of the demography and impact of illegal aliens in the United
States. With the exception of this action, little else has been
done however.
You should know that a separate but similarly charged entity,
the Department of State's Interagency Committee for the Study of
Problems Related to Illegal Mexican Migration into the United
States, has met with the Mexican government and begun a dialogue.
on possible methods to resolve our mutual problem. Lynn May and
I have attempted to see that the work of the Interagency committee
is coordinated with that of the Domestic Council committee.
AGENDA
The meeting you will be attending on the 21st is designed to get
the Domestic Council committee moving again. The major agenda
items include (1) a discussion of pending legislation relating to
the illegal alien issue (see Tab C) and (2) a discussion of an
2
organization plan to carry out the committee's responsibility
for developing, coordinating and presenting to the President
policy issues that cut across agency lines dealing with the
illegal alien problem. This second item (discussed in detail
at Tab D) calls for the establishment of five task forces
focusing on the following areas:
Economic and Labor Market Impact.
Immigration Law and Policy.
Enforcement.
Social and Community Impact.
Foreign. Relations.
FORD is LIBRARY GERALD
DOMESTIC COUNCIL COMMITTEE ON ILLEGAL ALIENS
January 21, 1976
Attendees
Dept. of Justice
Edward H. Levi, Attorney General,
Chairman, Domestic Council Committee
on Illegal Aliens
Leonard H. Chapman, Commissioner,
Immigration and Naturalization Service
Doris M. Meissner, Executive Director,
Domestic Council Committee on
Illegal Aliens
Mark Wolf, Special Assistant to the
Attorney General
Dept. of Agriculture
J. Dawson Ahalt, Deputy Director of
Agricultural Economics
Dept. of Commerce
James A. Baker, III, Under Secretary
Robert B. Ellert, Acting General Counsel
Dept. of Health,
William A. Morrill, Assistant Secretary
Education and Welfare
for Planning and Evaluation
Ira Goldstein, Executive Assistant to
Assistant Secretary for Planning and
Evaluation
Dept. of Labor
John T. Dunlop, Secretary
Abraham Weiss, Assistant Secretary,
Planning Evaluation and Research
Dept. of State
Lawrence Eagleburger, Deputy Under
Secretary for Management
William H. Luers, Deputy Assistant
Secretary for Inter-American Affairs
Loren E. Lawrence, Deputy Assistant
Secretary, Security and Consular Affairs
Dept. of the Treasury
Stephen S. Gardner, Deputy Secretary
Office of Management
Calvin J. Collier, General Counsel
and Budget
- 2 -
Attendees
White House
Myron Kuropas, Special Assistant
to the President for Ethnic Affairs
Domestic Council
James M. Cannon, Assistant to the
President for Domestic Affairs
Richard Parsons, Associate Director,
Domestic Council
January 22, 19 76
MEMORANDUM FOR:
Jim Cavanaugh
FROM:
Dick Parsons
SUBJECT:
Weekly Report
1.
Drug Abuse: Nothing new.
GERALD FORD LIBRARY
2.
Civil Rights: Nothing new.
3.
Illegal Aliens: The Attorney General chaired a meeting
of Cabinet members of the Domestic Council Committee on
Illegal Aliens yesterday, at which a new five-task force
organizational structure was agreed upon. The new
structure involves task forces on:
Economic and Labor Market Impact
Immigration Law and Policy
Enforcement
Social and Community Impact
Foreign Relations
The task forces are to make preliminary reports to the
full committee by June 1, 1976.
I will be meeting with Doris Meissner, Executive Director
of the Domestic Council Committee on Illegal Aliens,
tomorrow morning to help her organize this effort.
4.
Puerto Rico: The House Subcommittee on Interior and
Insular Affairs commenced its hearings Tuedday on the
Proposed Compact of Permanent Union between the United
States and Puerto Rico. It appears at this point that
those hearings will move very slowly, giving us an oppor-
tunity to develop an Administration response to the
proposed compact.
Judge Taylar , Illegal Alians
2/2/26
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FORD & LIBRARY GERALD
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THE WHITE HOUSE
WASHINGTON
Copie To:
DUVIN
1976 OCT. 22 AM 7.23
October 19, 1976
MEMORANDUM FOR:
MAX FIREDERSDORF
FROM:
PATRICK ROWLAND PR
SUBJECT:
Rep. Del Latta (R- Ohio)
Rep. Del Latta called regarding a broadcast today by commentator
Paul Harvey. Harvey stated that Mondale made a speech in the
southwest announcing that Carter would grant amnesty to illegal
aliens now residing in the country.
This statement would seem to parallel a proposal in the 94th
Congress to grandfather in illegal aliens in return for tougher
enforcement laws on the hiring of illegal aliens in this country
passed on to the President.
Latta wanted to be sure that this Carter-Mondale JAN209
Ca
Jim
FYI GERALD R. FORD LIBRARY
102201
MEMORANDUM
THE WHITE HOUSE
WASHINGTON
April 9, 1976
MEMORANDUM FOR:
Jim Cannon
FROM:
Dick Parsons
A
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.
UNITED STATES DEPARTMENT OF JUSTICE
PUSTIDA
WASHINGTON, D.C. 20530
OFFICE OF
POLICY AND PLANNING
March 23, 1976
MEMORANDUM
To:
Domestic Council Committee on Illegal Aliens
From:
Doris M. Meissne P.M. Executive Director
Domestic Council Committee on Illegal Aliens
Subj:
Steering Committee Meeting Minutes,
March 4, 1976
Attached please find minutes from the Domestic
Council Committee on Illegal Aliens Steering Committee
meeting of March 4, 1976 and work outline for each
task force which were reviewed and adopted at that
meeting.
FORD & LIBRARY GERALD
Attachments
Dosh Parson
Can I get
a miss summary
Committee of about live This done
so for.
RICANA REVOLUTION WENTENNER
The
1776-1976
DOMESTIC COUNCIL COMMITTEE ON ILLEGAL ALIENS
STEERING COMMITTEE MEETING
March 4, 1976
Attendees:
Edward H. Levi, Chairman
Sam Bernsen, INS
Leonard F. Chapman, INS
Barry Chiswick, CEA and Technical
Adviser to Steering Committee
John Dreyfuss, State
Ronald Gainer, DOJ
Ira Goldstein, HEW
James F. Greene, INS
Edward Guss, INS
Fred Kahn, DOL
Norbert Krieg, State
Doris Meissner, DOJ
John Nahan, INS
Richard Parsons, Domestic Council
James Purcell, OMB
Dennis Roth, DOL
Victor Vazquez, HEW
Abraham Weiss, DOL
Michael Wenk, DOJ
Mark Wolf, DOJ
Each of the five task forces established at the
January 21, 1976 meeting of the full committee reported
its progress and future agenda.
For the Immigration Law and Policy Task Force, General
Chapman, chairman, reported that the work of the task force
would proceed in two phases: the first, to be completed in
March, will recount the history and basis of our present
law and will assess its impact; the second will be an
attempt to articulate what our law ought to be and will
be based on the findings of the other task forces. It will
consider the full range of options from no immigration to
unrestricted immigration.
Because the other task forces may not report with
sufficient information or time prior to the June 1 reporting
date, Attorney General Levi urged the Immigration task force
to develop some assumptions of what the impact of illegal
aliens might be in order to analyze possible policy
alternatives.
- 2 -
Abraham Weiss, chairman of the Economic and Labor
Market Impact Task Force, reported that his group had
developed a broad outline of questions that need to be
answered before any definitive statements about illegal
alien impacts can be made. The basic data needs on illegals
will be supplied by a census-type study which will be funded
by INS but is not yet underway. Mr. Weiss offered the
technical services of his staff to INS in structuring the
study.
The main interest of the Economics task force is in
labor-related questions. It will assess experience with
the worker certification and farm labor contractor programs
and offer modifications as necessary. It sees the June
report as a status report outlining the state of the art
and does not believe any definitive information can be
available by that time. Census and related data on the
foreign born were suggested as useful sources of information
for comparison group analysis to further the work of this
task force.
The Economics task force suggested inviting a resource
group of experts to meet with all task forces and lend
assistance with the difficulties of learning about illegals.
Mr. Levi cautioned against the danger of not giving equal
opportunity for interested parties to be heard. It was
agreed that individual meetings of task forces with
select researchers and academics were appropriate but
should not create high visibility or be accompanied by
circulation of task force papers.
Victor Vazquez, chairman of the Social and Community
Impact Task Force, reported that his group would produce
a descriptive portrait of the social impact of illegals
to be based on statistics where possible. They will also
outline perceptions of illegals and propose research
which would serve to validate or disprove these perceptions.
Both the Economics and Social task forces propose to
consider social services programs in their work. The
former will take a cost-benefit approach and the latter
will look at program use and impact.
For the Enforcement task force, James Greene, chairman,
explained that his group will report on four areas: (1) how
to enforce current authorities more effectively; (2) law
enforcement priorities; (3) necessary legislation; and
(4) disincentive measures to decrease the flow of illegals.
Conclusions from other task forces should affect the work
product of the Enforcement group and will be incorporated
when they become available.
- 3 -
John Dreyfuss, State, reported for the Foreign
Relations Task Force in the absence of William Luers,
chairman. This task force will meet in April with
government of Mexico officials. The U.S. wishes to
convey to Mexico our belief that the illegal alien issue
is a serious one and that the status quo may change.
In addition to the Mexico meeting this task force will
develop information for the June 1 report on international
migration push-pull forces and foreign policy aspects of
changes in immigration policy.
The remainder of the meeting was devoted to a discussion
of (a) the proposed INS census survey on the numbers,
characteristics and flows of illegal aliens in the U.S.
and (b) a recent Supreme Court decision, DeCanas V. Bica,
February 25, 1976, which upheld California's right to
pass a state law regulating the employment of illegal
workers but remanded the statute in question to the
California courts for a ruling on whether or not it
conflicts with federal immigration laws.
Respectfully submitted,
Doris M. Meissner
Executive Director
Domestic Council Committee
on Illegal Aliens
Domestic Council Committee
Steering Committee Meeting
March 4, 1976
Agenda
A. Opening remarks
B. Reports on work of task forces
1. - Immigration Law and Policy - INS, Gen. Chapman
- Economic and Labor Market Impact - DOL,
Abraham Weiss
- Social and Community Impact - HEW, Wm. Morrill
- Enforcement - INS, James Greene
- Foreign Relations - State, Wm. Luers
2.
Clarify areas of overlap; identify issues overlooked
C. Information and data needs
1.
Presentation of INS research plans - Edward Guss,
Director, Office of Planning and Evaluation, INS
2.
Additional data needs; how to meet them
D. June report
E. DeCanas V. Bica - February 25, 1976 Supreme Court
decision - Sam Bernsen, General Counsel, INS
F. Other
IMMIGRATION LAW AND POLICY TASK FORCE
Work Outline
1. Brief historical run-down on U.S. immigration. (For INS)
A. Early laws.
B. Who came (nationalities, workers, relatives) when
and why?
2. Theoretical premises of 1965 amendments of Immigration
and Nationality Act. (For State)
A. Exclusion of undesirables and unneeded workers.
B. Numerical limitation on immigration with preferences
for relatives, workers and refugees.
C. Control of non-immigrants.
3. Impact of the 1965 amendments and their administration.
A. Who came since 1965? (For INS)
1. Immigrants
2. Non-immigrants.
3. Illegal aliens and workers.
B. Who wants to come? (For State)
1. Documented demand
2. "Invisible" demand factors
C. How are we administering the present law. (For State,
INS and DOL).
4. Relevant immigration policies of other countries.
A. Canadian and Australian immigration systems. (For State)
B. Western Europe's guest worker system. (For DOL)
5. Conclusions and recommendations including options for
revising basic immigration system and administration --
to be considered later.
DOMESTIC COUNCIL COMMITTEE ON ILLEGAL ALIENS
Economic and Labor Market Impact Task Force
Work Outline
The initial charge to the task force was to analyze
the economic impact of illegal aliens from two vantage
points: (a) the labor-market economic sector and geograph-
ical distribution of illegal workers, their behavior and
movement in the labor market, and their effects on native
workers; and (b) the fiscal effect of illegal aliens on
public expenditures, tax revenues and the balance of payments.
(Organization Plan adopted January 21, 1976)
In view of time and staff constraints, it has been
agreed by the chair and the Executive Director of the
committee that this task force would outline the state of
the art within the purview of the task force and propose a
plan to find some solutions to any knowledge gap deemed
critical in determining the economic impact of illegal aliens.
Below is the work outline for this task force:
1. Demographic Profile (Basic data collection-INS)
a) Definition: distinction between nonimmigrants
who overstay, those who enter illegally, and
nonimmigrants who engage in work.
b) Description: Size, composition, marital status,
sex, age, education level, place of origin,
current location, and length of stay.
- 2 -
c) Labor market status: earnings, industry,
occupation.
d) Economic objectives of illegal aliens (acquisition
of low-skill, labor occupation and/or higher
status?)
e) Is illegal immigration largely a rural phenomenon,
an urban phenomenon, or both?
f) Frequency of illegal entry in a year. Any
previous apprehensions? If so, this year? other
years? Frequency of apprehensions.
2. Labor Market
a) What is the extent of jobs held by illegals at
the expense of those which citizens and legal
immigrants would otherwise fill (displacement
effect) ?
b) What is estimated cost of displacement in lost
earnings to American workers and what is increase
in tax burden as the result of such displacement
(unemployment compensation, welfare, etc.) ?
c) How do wages paid illegals, by industry and
occupation, compare with average wages paid for
comparable jobs in the labor market area?
d) If citizens and/or legal aliens spurn jobs held
by illegals, are illegals filling appropriate
labor market function and enabling marginal firms
to continue to operate? (In absence of illegal
- 3 -
alien labor supply, would firms redesign pro-
duction function in direction of more capital
intensive operation?)
e) Are lower wages paid illegals reflected in lower
prices and hence possibly offsetting disemployment
of American workers (in broad economic terms) ?
f) Proportion of total working population accounted
for by illegals.
g) What is the extent of substandard wages and
working conditions encountered by illegal aliens
and who are the most frequent offenders?
h) Dynamics of occupation and geographical movement.
i) Projections for the future.
3. Balance of Payment/International Income Transfer
If in work status, do illegal aliens send part of
savings to country of origin?
a) If so, approximate amount per year?
b) What is aggregate amount of money sent outside
U.S. by illegals?
c) What is percent of money sent by illegals to total
balance of payments status for that year?
FORD CIRRARY
- 4 -
d) What is percent of money sent out to other countries
by citizens and legal aliens?
e) What is percent of money sent out to other countries
by Federal agencies e.g., social security payments?
f) What is effect of such outflow on economies of
foreign countries? (e.g. is this a form of informal
foreign aid?)
g) What is effect of such outflow on U.S. economy?
4. Are wages paid to illegal aliens subjected to
either Federal or State taxation procedures? What
is extent of tax evasion?
5. Critique of current labor certification and FLCRA
programs (DOL programs)
a) Effectiveness
b) Cost
c) Labor market impact
d) Court cases
e) Desired legislative changes in program
6. Economic implications of enforcement costs (apprehension,
detention, deportation) 1/
7. Domestic and foreign experience with guest and/or
imported labor and/or illegals.
1/ The data will be collected by the Enforcement Task Force.
However, the economic analysis will be performed by this
task force.
FK/pml 3/2/76
3-1-76
DOMESTIC COUNCIL COMMITTEE ON ILLEGAL ALIENS
Social and Community Impact Task Force
The Social and Community Impact Task Force in its first meeting
held on March 1, 1976 discussed the issues and problems
its
surrounding these issues and decided to approach
goal
through
the following activities:
1. Develop a review of the literature to determine what
information is available which bears on the problem
and how it can be used to address the social and
community perspectives.
2. Develop an assessment of descriptive data on ethnic
communities which can be used in determining extent
of use of domestic programs and services by illegal
entrants. The task force anticipates developing a
rationale which would permit generalization to the
illegal alien segment from the descriptive portrait
developed for the like domestic minority community.
3. Examine the effects of enforcement activities on
the domestic minority communities to determine what
their impact is on the social activities of these
communities and their illegal alien members.
4. Assess the social impact of current and proposed
immigration policies on the domestic minority
communities, as well as upon the broader domestic
scene.
-2-
ideas
5. Identify data gaps and develop research
which
can be presented to the Domestic Council Committee
on Illegal Aliens with recommendations for further
development and eventual funding.
In general, the Task Force was painfully aware not only of the
lack of data on social impact issues, but also of the apparent lack
of mechanisms for obtaining this information. The members felt that
ways for obtaining the needed information would
have to be found and that some empirical data base would have to be
developed before any meaningful discussion of the issues could be held.
It was with this perspective in mind that the Task Force identified
the following activities to be completed prior to their next meeting
scheduled for March 15, 1976:
1. develop and circulate a "mini" review of the available
literature
2. circulate copies of key studies to Task Force members
an
3. prepare outline of data available which may be useful in
developing a descriptive profile of minority communities
for use in assessing utilization of programs and services
by their illegal alien status members. (Bureau of the Census)
4. develop for presentation at next meeting an outline of
available program data which may be useful in determining
extent of service delivery to illegal aliens. (each member agency)
Enforcement Task Force
I. History of Immigration Enforcement
A.
Traditional U.S./Mexico Border problem
1.
Past experience with importation of Mexican
workers
2.
Concept of an "open" border policy.
B.
Public's increasing sensitivity to immigration
enforcement during difficult economic periods
C.
Illegal alien problems defined to some extent
by allocation of resources
1.
Geographical deployment of resources
2.
Inherent nature of system geared to keeping
persons out -- ill equipped to deal with persons
once they are here
D.
Court decisions
1.
Individual aliens rights
2.
Impact on enforcement techniques
II. Present Enforcement System
A.
Department of Justice: Immigration and Naturalization
Service
1.
Basic authorities
2.
Enforcement techniques
3. Resources
4.
Priority of programs
B.
Department of State: Bureau of Security and
Consular Affairs
1.
Basic authorities
2.
Screening mechanisms
3. Resources
4.
Priority of function
2
C. Indirect Involvement
1. Department of Labor
2. Department of Treasury (Customs and IRS)
3. State and local law enforcement
III. Further Interagency Cooperation
A. Test case: 1972 Social Security Act Amendments
1. Administrative difficulties
2. Extent of INS/SSC cooperation
3. What has been the impact?
4. What experience tells us about future
interagency cooperation efforts
B. Administrative improvements in INS/Visa Office
cooperation
1. Greater exchange of currency
2. Additional information needed
3. Pilot programs
C. Department of Labor
1. Laws that affect illegal aliens
2. Extent of current enforcement
3. Pilot programs
D. IRS
1. Studies
2. Experience of pilot projects
3
IV. Dilemmas for Future Enforcement
A. The relative priority assigned to immigration
enforcement within total criminal justice system
1. Ratio of immigration violations to prosecution
as compared to other violations
2. Incompatibility of system for immigration
enforcement, e.g., U.S. Attorney's policy
and penal system
B. Inadequacy of System's Controls
1. Fradulent documentation and problems of
identification
2. Lack of departure controls
3. Records keeping
C. What level of compliance are we aiming for?
V.
Disincentives
A. Aimed at individual
1. Deprive from economic benefits
2. Deprive from benefits under ITNACT
3. Increased sanctions
B. Aimed at employer
1. Sanctions, e.g., criminal and civil
2. Eliminate tax benefits
c. Narrow benefits that can be obtained
1. Develop consistent federal guidelines
2. Work to insure consistency of state and
local regulations
4
D. Other
1. Harsher punishment for smuggling
2. Greater restrictions on travel and stay.
Foreign Relations Task Force
Work Outline
I.
Meeting with Mexican government officials -- scheduled
for early April
Agenda
A.
Overview of problem of undocumented aliens -
advance exchange of papers
B.
Exchange of basic research documents and information
C.
Legislation
1.
Review of current and proposed U.S. and Mexico
legislation dealing with undocumented migration
2.
Review of obligations and commitments assumed
by each country in the light of international
law and opinions rendered by international
bodies.
D.
Suggestions for ameliorating the problem of the
migratory flow of Mexican laborers to the U.S.
E.
International coordination or cooperative measures
which might result in slowing the flow.
F.
Proposals for regularizing the status of undocumented
Mexicans in the U.S.
G.
Protection of undocumented migratory workers in U.S.
II. Migration causal factors
A.
Push forces: Unavailability of economic opportunity
-- rural to urban migration -- political oppression --
uneven economic development ---- population pressures
B.
Pull forces: International economic disparity --
U.S. demand for cheap labor -- cultural and family
ties -- lack of penalties.
III. Major illegal alien sending countries
A.
Identify characteristics
B.
Analysis of U.S.-sending country relations
IV. Foreign policy implications of changes in U.S. immigration
policy or illegal alien constraints
- 2 -
V. Competing foreign policy actions
A. Foreign student and foreign visitor travel policies
B. Foreign aid priorities
18
file
MEMORANDUM
Justice- Slegal Aliens
THE WHITE HOUSE
INFORMATION
WASHINGTON
May 20, 1976
MEMORANDUM FOR THE PRESIDENT
FROM:
Jim Cannon Juni
FORD & GERALD LIBRARY
SUBJECT:
Domestic Council Committee on Illegal
Aliens -- Status Report
The purpose of this memorandum is to briefly review the progress
of the Domestic Council Committee on Illegal Aliens.
The full Committee met on January 21, 1976, to consider the
Attorney General's recommendation that several task forces be
established to better and more efficiently handle the subject
matter. The Committee endorsed the Attorney General's recom-
mendation and created Task Forces in the following five areas:
Economic and Labor Market Impact;
Immigration Law and Policy;
Enforcement;
Social and Community Impact; and
Foreign Relations.
The Committee also established a Steering Group to coordinate
the work of these Task Forces.
All of the Task Forces have met regularly since their creation.
The initial emphasis has been on the development of a sound
information base upon which further analysis can proceed. In
addition, the Foreign Relations Task Force recently met with a
delegation of Mexican officials to explore how our two countries
might better cooperate in combating the illegal alien problem.
The Attorney General is hopeful that he will be able to give you
an interim report by mid- to late June.
Hold- tube staffed 11/3
CLEARANCE SHEET Check wl Parsons
DATE: 9-27-76
JMC ACTION
Required by:
STAFF RESPONSIBILITY PARSONS
SUBJECT:
Preliminary Report of the Domestic Council
Committee on Illegal Alien
RECEIVED FROM:
DATE RECEIVED:
Parsons
STAFF
QUERN / MOORE
COMMENTS: Dorh APPROVE REVIEW COMMENDATION: & COMMENT pm wing should I believe rélease that we the was can report. and
GERALD FORD LIBRARY
It
is
solid,
factual
and
DISCUSS
doesn' /purport to beganything
more than a "preliminary report.
CANNON ACTION:
Material Has
Signed
Changed
Been: Let [and and forwarded signed DATE: ASAP 29 EB 6. FORD
Noted
Returned 10/11 per conversation
LIBRARY is GERALD
Comment:
JIM Jul CANNON
N92904
MEMORANDUM
THE WHITE HOUSE
INFORMATION/DECISION
WASHINGTON
September 27, 1976
MEMORANDUM FOR:
Jim Cannon
Jim Cavanaugh
Jim Lynn
FORD
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)
A
Preliminary Report
Domestic Council Committee on Illegal Aliens
Executive Summary
FORD LIBRARY & GERALD
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
ANVURIT
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.
FORD
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
B
- 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.
FÜRDA LIBRARY if GERALD
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
FORD
time under which circumstances are the questions we
LIBRARY
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.
- 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
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.
FORD & LIBRARY DERALD