CONGRESS OF THE UNITED STATES

CONGRESSIONAL BUDGET OFFICE

CBO

Immigration Policy

in the

United States:

An Update

DECEMBER 2010

© Shutterstock Images, LLC
Pub. No. 4160
The Congress of the United States O Congressional Budget Office

CBO

Immigration Policy in the United States: 

An Update

December 2010
CBO

Notes and Definitions

Numbers in the exhibits and text may not add up to totals because of rounding. Unless otherwise indicated, the years refto in this document are federal fiscal years (which run from October 1 to September 30). Some of the data for 2004 in document do not match the data that the Congressional Budget Office reported in its 2006 paper Immigration Policy in 

United States because they have been revised by the Department of Homeland Security. 

Green card: A wallet-sized card showing that the bearer is a legal permanent resident of the United States.Legal permanent resident: A foreign-born individual authorized to live, work, and study in the United States permanen

Legal temporary resident or visitor: A foreign-born individual who is admitted to the United States with a temporary v

who is allowed to enter the country without a visa. Those categories include visitors who are in the United States for shoperiods and temporary residents who are in the United States for longer, although time-limited, stays.Refugee or asylum-seeker: An individual who is at risk of persecution in his or her country of nationality. Refugees applegal admission from outside the United States; asylum-seekers request admission from within the United States or at a port of entry (that is, a place where one may be checked by immigration officials and lawfully enter the United States).Removal: The expulsion of a foreign-born individual from the United States if he or she is found to be inadmissible at a of entry or otherwise in violation of U.S. immigration laws. An inadmissible individual is a person seeking admission at a of entry who does not meet the criteria of the Immigration and Nationality Act. U.S. visa: A permit allowing the bearer to apply for entry into the United States under a certain classification. Examples classifications include student (F), visitor (B), and temporary worker (H). The Department of State is responsible for issvisas at U.S. embassies and consulates outside of the United States. A visa does not grant the bearer the right to enter thUnited States. Officials with the Department of Homeland Security’s U.S. Customs and Border Protection determine whan individual can be admitted into the United States at a port of entry. A foreign national may be denied entry by an of

because he or she lacks proper documentation or because of public health or security concerns (or for other reasons).
Preface

CBO

The Immigration and Nationality Act sets immigration policy in the United States. The act provides for th

entry of foreign nationals on a permanent or temporary basis. In 2009, the United States granted legal permaneresident status to more than 1.1 million people. About two-thirds of those people were admitted to the United Sthe basis of family connections to current U.S. citizens or residents. Also in 2009, roughly 5.8 million temporawere issued, about three-quarters of which were for people visiting the United States for business or tourism for period.This document updates the Congressional Budget Office’s (CBO’s) February 2006 paper Immigration Policy in United States. It presents data through 2009 on permanent and temporary admissions of foreign nationals to thUnited States, the number and types of visas issued, the naturalization of residents, and enforcement of immigrlaws—and makes comparisons with 2004, which was the most recent year for which most data were reported in earlier paper. In keeping with CBO’s mandate to provide objective, impartial analysis, this document does not mrecommendations.Paige Piper/Bach and Brian Prest of CBO’s Microeconomic Studies Division wrote the document under the direPatrice Gordon and Joseph Kile. Sam Wice fact-checked it. The document benefited from the comments of PriHammett, Melissa Merrell, David Moore, Jonathan Morancy, David Rafferty, Jonathan Schwabish, and Jennifer all of CBO. In addition, staff members of the Congressional Research Service provided valuable assistance.Christine Bogusz edited the document, and Kate Kelly proofread it. Jeanine Rees prepared it for publication, anMaureen Costantino designed the cover. Monte Ruffin produced the printed copies, Linda Schimmel handled tdistribution, and Simone Thomas prepared the electronic version for CBO’s Web site (www.cbo.gov).

Douglas W. Elmendorf 

Director

December 2010
CBO

Exhibit 

List of Exhibits

Legal Permanent Residents

1. Categories of Admission of Legal Permanent Residents, 2009 2. Admissions of Legal Permanent Residents, by Category, 2009 3. Admissions of Legal Permanent Residents, by Method of Admission, 2004 to 2009 4. Admissions of Legal Permanent Residents, by Region of Birth, 2009 5. Admissions of Legal Permanent Residents, by Category, 2004 to 2009 6. Numerical Ceilings on Family-Based Visas Issued 7. Family-Based Admissions of Legal Permanent Residents, 2004 to 2009 8. Numerical Ceilings on Employment-Based Visas Issued 9. Employment-Based Admissions of Legal Permanent Residents, 2004 to 2009 

10. Numerical Ceiling on Diversity Program Visas Issued 11. Diversity Program Admissions of Legal Permanent Residents, by Region of Birth, 2004 to 2009 

12. Numerical Ceilings on Humanitarian Visas Issued 13. Humanitarian Admissions of Legal Permanent Residents, 2004 to 2009 
CBO

Exhibit Temporary Residents and Visitors

14. Types of Visas Issued for Temporary Residents and Visitors, 2009 

15. Visas Issued for Temporary Residents and Visitors, by Visa Class, 2009 16. Number and Type of Temporary Visas Issued, by Visa Class, 2004 to 2009 17. Admissions of Legal Temporary Residents and Visitors, by Visa Class or Program, 2004 to 2009 18. Admissions of Temporary Workers, by Visa Class, 2009 

Naturalization

19. Requirements for Naturalization 20. People Naturalized, by Region of Birth, 2004 to 2009 

Enforcement of Immigration Policy

21. Enforcement Efforts, 2004 to 2009 22. Reasons for Removal, 2004 to 2009 
CBO

Immigration Policy in the United States: 

An Update

The Immigration and Nationality Act sets immigration policy in the United States on the basis of four general objectives: B To facilitate the reunification of families by 

admitting people who already have a family member living in the United States,

B To attract workers to fill positions in certain 

occupations for which there are shortages, 

B To increase diversity by admitting people from 

countries with historically low rates of immigration to the United States, and 

B To provide a refuge for people who face the risk 

of racial, religious, or political persecution in their home country.

The law allows foreign nationals to enter the United States to become legal permanent residents (LPRs) or to be in the United States for a specific purpose during a limited stay as temporary residents or visitors. To enter the country as a legal permanent resident, a national of a foreign country must obtain a visa. To enter the country as a temporary resident or visitor, a foreign national must obtain a visa, be a qualifying citizen of Canada or Mexico, or be a qualifying citizen of a country that participates in the Visa Waiver Program. (That program allows citizens of certain countries to 

travel to the United States for business or tourism for up to 90 days without having to obtain a visa.) The law also outlines a process by which foreign nationals who have been granted legal permanent residence may apply to become naturalized U.S. citizens. In addition, the law establishes mechanisms to control the flow of legal entry into the United States, prevent the entry of individuals without authorization, and remove individuals who are in the United States without authorization. 

Legal Permanent ResidentsPeople granted permanent admission to the United States are formally classified as legal permanent residents and receive a document, commonly known as a green card, that certifies that status. LPRs are eligible to live and work in the United States, own property, and join the armed forces; eventually, they may apply for U.S. citizenship. In 2009, the United States granted LPR status to roughly 1.1 million people.Foreign nationals who are eligible for permanent admission fall into one of five broad categories. Two of those categories—immediate relatives of U.S. citizens and family-sponsored preferences—are based on family relationships. Under a third category, employment-based preferences, workers 

with specific job skills admission. The fourth Diversity Program, wcountries with low ratUnited States to enter that provides a pathwdency. Finally, for humeign nationals are admrefugees or asylum-seeasylum or refugee statstatus.People granted permaeign nationals who enlegal permanent residein the country who wthe people granted LP463,000 (or 41 percenthe United States, and percent) were already 2009, foreign nationaaccounted for 413,00people granted LPR sborn in North AmericAmerica) accounted fThe total number of p2009 was about the avyears but 18 percent mstatus in 2004. (Over through 2009, the nu
CBO

IMMIGRATION POLIC

status averaged about 23 percent more than the number during the 2000–2004 period.) The number of immediate relatives of U.S. citizens who were granted LPR status increased by 28 percent from 2004 to 2009, accounting for nearly half of total permanent admissions in 2009. In contrast, the number of people admitted in the familysponsored preference category remained roughly constant from 2004 to 2009 and accounted for 19 percent of admissions in 2009. The number of individuals admitted on the basis of employment preferences decreased slightly between 2004 and 2009 and accounted for 13 percent of admissions in 2009. Admissions under the Diversity Program accounted for only 4 percent of the 2009 total and declined slightly from 2004 to 2009. The number of people admitted for humanitarian reasons, which constituted 17 percent of the permanent admissions in 2009, grew by almost 60 percent from its level five years earlier.Temporary Residents and VisitorsTemporary admission to the United States is granted to foreign nationals who seek entry for a limited time and for a specific purpose, such as tourism, diplomacy, or study. In addition, foreign nationals who meet certain criteria may be permitted to work in the United States for a limited time that depends on the type of visa they receive. However, foreign nationals with temporary visas are not eligible for citizenship, and to remain in the United States on a permanent basis they would be required to apply for permanent admission.

The federal government reports two types of data on foreign nationals who enter the United States as temporary residents or visitors—the number of temporary visas issued and the number of temporary admissions. The number of visas issued indicates the potential number of foreign nationals who may seek admission to the United States (excluding a large number who do not require a visa). The number of temporary admissions indicates the number of times that foreign nationals enter the United States, thus counting frequent travelers multiple times. About 5.8 million visas for temporary admission to the United States were issued in 2009. Twenty-four percent were for temporary residents and 76 percent were for visitors. Although the number of visas issued in 2009 was 755,000 (or 15 percent) higher than the number in 2004, it was down by almost 800,000 (or 12 percent) from the 6.6 million visas issued in 2008. The decrease was most likely a result of the global recession: Fewer visas were issued for business, for tourism, and for employment.The number of legal temporary admissions was much greater than the number of visas issued. The Department of Homeland Security (DHS) estimates that there were 163 million legal temporary admissions to the United States in 2009. That estimate includes 126 million admissions not requiring visas by Canadians traveling for business or tourism and certain Mexicans with Border Crossing Cards. It also includes about 36 million admissions of foreign nationals who were required to complete an Arrival/Departure Record (known as an I-94 form); about 16 million of those 

admissions were indivVisa Waiver Program, individuals had multideparted and reenterethe same year.The number of legal t2009 was the lowest sthose data in 2003 anthan the number admThe numbers presenterepresent the flow of fUnited States in accorlaw. Information on tresidents and visitors currently not recordedable only on departur

NaturalizationLegal permanent residthe United States throuralization. To becomapplicant must fulfill in the Immigration aneral, any legal perman18 years old and who period of continuous United States can app2009, about 744,000 U.S. citizens, well belin 2008 but close to tyears. Of the 2009 topeople were born in M(7 percent).
CBO

IMMIGRATION POLIC

Enforcement of Immigration PolicyIn addition to regulating the legal admission of permanent residents and temporary residents and visitors, U.S. law specifies policies for individuals in the United States without legal authorization. People found to be in the United States in violation of immigration law may be allowed to depart voluntarily or may be removed from the country through a formal process of adjudication, which can include the imposition of penalties (such as fines), a prohibition against future entry, or both. 

In addition, individuals convicted of certain crimes can be imprisoned before they are removed from the United States.The Department of Homeland Security is responsible for enforcing immigration law and acts to arrest, detain, return, and remove foreign nationals who violate U.S. laws. In 2009, about 580,000 people who were arrested or detained returned voluntarily under the supervision of a DHS official to their home country or to another country, a figure that is well below the number in recent years. Also in 2009, about 393,000 people were ordered 

removed, which is 63 ordered removed in 2removals, 107,000 wedited process designed people attempting to 2009, about two-thirdnoncriminal violationdocumentation, and tcriminal violations of estimates exist, there inumber of individualgally or how many of 
CBO

Legal Permanent Residents
LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 1.

Categories of Admission of Legal Permanent Residents, 2009

(Thousands of admissions)Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2009 Yearbook of Immigration Statistics (August 2010), Table 6.

Note: LPR = legal permanent resident. 

Legal Permanent Residents

(1,131)

Family-Based:

Immediate 

Relatives of 

U.S. Citizens 

(536)

Family-Based:

Family-Sponsored 

Preferences

(212)

Diversity Program

(48)

Unmarried sons and daughters of U.S. citizens(24)

Married sons and daughters of U.S. citizens(26)Siblings of adultU.S. citizens(63)

Spouses and dependent children of LPRs;unmarried sons and daughters of LPRs(99)

Employment-Based 

Preferences

(144)

Individuals withextraordinary abilities(41)Professionals withadvanced degrees(46)Skilled workers,professionals, andcertain unskilled workers(40)Special individuals(13)Investors(4)

Humanitarian

(191)

Refugees(119)AsylumSeekers(59)Others(14)

Spouses(317)Parents of adult U.S. citizens(120)Unmarried children under age 21(98)

People granted permStates are formally clidents and given a grlive and work in the and join the armed fapply for U.S. citizenThe United States grnationals who qualify the following five imate relatives of U.S. cpreferences, employmDiversity Program, anationals who are elicategories include cerand LPRs (such as spchildren under age 2employment-based pgrants LPR status to wincluding individuals professionals with adworkers in occupatiopeople may enter the Diversity Program, windividuals to gain peforeign nationals are for humanitarian reaseekers), which allowstatus. With the exception oand investor categorisponsored by a U.S. employer and have athe U.S. Citizenship (USCIS) in order to each major LPR cateare required for admi
LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 2.

Admissions of Legal Permanent Residents, by Category, 2009

Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2009 Yearbook of Immigration Statistics (August 2010), Table 6.

Family-Based:

Immediate Relatives of

U.S. Citizens

 (47%)

Family-Based:

Family-Sponsored

Preferences

 (19%)

Employment-Based

Preferences

 (13%)

Diversity

Program

 (4%)

Humanitarian

 (17%)

In 2009, the Uniteto 1.1 million indivage for the 2005–2admissions, which immediate relatives sions under the propreferences, togethof total admissions dents in 2009. The prised humanitariaadmissions under eences (13 percent), admissions (4 percefamily-sponsored pbased preferences, ato annual limits; by immediate relatives admissions for humunlimited.Those annual limit2004–2010 periodlimits on asylum-se2005) and employmwhich specific legiscertain years). LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 3.

Admissions of Legal Permanent Residents, by Method of Admission, 

2004 to 2009Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2009 Yearbook of Immigration Statistics (August 2010), Table 6. 

Note: n.a. = not applicable.

2004 2005 2006 2007 2008 2009

First-Time Entry to the United States 374 384 447 431 467 463 24Change of Status to Legal Permanent Resident 584 738 819 621 641 668 14

____ ______ ______ ______ ______ ______

 958 1,122 1,266 1,052 1,107 1,131 18

First-Time Entry to the United States 39 34 35 41 42 41 n.a.Change of Status to Legal Permanent Resident 61 66 65 59 58 59 n.a.

____ ____ ____ ____ ____ ____

Total 100 100 100 100 100 100 n.a.

Percentage Change,

2004 to 2009

Admissions (Thousands)

Percentage of Yearly Total

Total

In 2009, about 40 individuals granted United States for thresident. The other als who were alreadthey were granted Lwho are in the Unication with the U.Sapproved, would chtemporary resident nent resident. In 20to LPR status were 463,000 admissionMost of those adjubased on a family rU.S. citizen or LPRThe total number owas 173,000 (or 18 number in 2004. Lfirst-time entrants t24 percent, and chwho were already in 14 percent. From yyear period, howevgranted LPR status example, that numAccording to DHSadmissions may steincluding the strenand how quickly apUSCIS. LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 4.

Admissions of Legal Permanent Residents, by Region of Birth, 2009

Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2009 Yearbook of Immigration Statistics (August 2010), Table 3.

a. Oceania includes Australia, New Zealand, and the islands of the South Pacific.

b. North America includes Central America. 

Asia

 (37%)

North America

 (33%)

Africa

 (11%)

Europe

 (9%)

South America

 (9%)

Oceania

 (0%) (1%)

b

a

Of the people gran413,000 (or 37 per375,000 (or 33 perAmerica (which incThose shares remai2004 to 2009.Of the total LPR aest share was peoplcent) and the seconborn in China (6 p
LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 5.

Admissions of Legal Permanent Residents, by Category, 

2004 to 2009(Thousands)Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2009 Yearbook of Immigration Statistics (August 2010), Table 6.

Category of Admission 2004 2005 2006 2007 2008 2009Family-Based

Immediate relatives of U.S. citizens 418 436 580 495 488 536 28Family-sponsored preferences 214 213 222 195 228 212 -1

Employment-Based Preferences 155 247 159 162 167 144 -7Diversity Program 50 46 44 42 42 48 -4Humanitarian 120 180 260 158 183 191 59

____ ______ ______ ______ ______ ______

 Total 958 1,122 1,266 1,052 1,107 1,131 18

Percentage Change, 

2004 to 2009

About 536,000—oadmitted in 2009 wU.S. citizens (spou21 years of age or odren under age 21)under family-sponstuted the next large212,000 new LPRs In recent years, the LPR admissions (thof U.S. citizens and reasons) were the oany significant growadmissions of immzens increased by 2admissions), and hsions increased by 5admissions). Those of longer-term trenate relatives over th26 percent greater 2000 through 2004humanitarian reasoBy contrast, admisscategories (family-semployment-based Diversity Program) resulting in relativeto 2009. However, sions under employoccurred in 2005 bthat allowed more vyear. LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 6.

Numerical Ceilings on Family-Based Visas Issued

Sources: Congressional Budget Office based on Department of Homeland Security, U.S. Citizenship and 

Immigration Services, “Green Card Through Family”; Ruth Ellen Wasem, U.S. Immigration Policy on 

Permanent Admissions, CRS Report for Congress RL32235 (Congressional Research Service, July 20, 

2009); and Department of Homeland Security, Office of Immigration Statistics, U.S. Legal Permanent 

Residents: 2009, Annual Flow Report (April 2010).

Note: LPR = legal permanent resident.

Category Who Qualifies for Category NoteImmediate Relatives of Spouses, parents of citizens UnlimitedU.S. Citizens 21 years of age or older, and 

unmarried children underage 21 

Family-Sponsored Preferences

First preference Unmarried adult (ages 21 and older) 23,400 Plus unused visas from fourth

sons and daughters of U.S. citizens preference 

Second preference Spouses and dependent children of 114,200 Plus unused visas from first 

LPRs; unmarried sons and daughters preferenceof LPRs 

Third preference Married sons and daughters of 23,400 Plus unused visas from first or

U.S. citizens second preference

Fourth preference Siblings of adult U.S. citizens 65,000 Plus unused visas from first, 

second, or third preference

________

Total 226,000

Ceiling on 

Visas Issued

The number of imU.S. citizens allowenot limited under cily members consischildren under 21 ycitizens who are 21 amounted to the sinadmissions in 2009Family-sponsored vbroader set of famiand residents. Thosystem of preferenchas a set number ovisas in each preferedown to the next cathe lowest preferenup to the first categvisas under the ceilence category (sibliwhich are currently unused visas from tence categories) manumerical limit for gory (unmarried socitizens, which are to 23,400). Since 2issued under familyhad an annual limi
LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 7.

Family-Based Admissions of Legal Permanent Residents, 

2004 to 2009(Thousands)Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2009 Yearbook of Immigration Statistics (August 2010), Table 6.

Notes: LPR = legal permanent resident.

Admissions for a category in one year may be over or under its established ceiling on visas issued in that year (see the previous exhibit). On the one hand, actual admissions may exceed the ceiling because immigration law allows unused visas from one category to be allocated to another category or because some individuals are issued an LPR visa in one year but are not actually admitted to the United States until a subsequent year. On the other hand, actual admissions may be less than the established ceiling because of fewer applications for an LPR visa or because of processing backlogs of such applications in certain 

years.

Category of Admission 2004 2005 2006 2007 2008 2009Immediate Relatives of U.S. Citizens 418 436 580 495 488 536 28Family-Sponsored Preferences

First preference: unmarried 26 25 25 23 26 24 -9

adult sons and daughters of  U.S. citizens

Second preference: spouses 94 100 112 86 103 99 5

and dependent children of LPRs;unmarried sons and daughters of LPRs

Third preference: married sons and 29 23 21 21 29 26 -10

daughters of U.S. citizens

Fourth preference: siblings of 66 65 63 65 69 63 -3

adult U.S. citizens

____

____

____

____

____

____

 Total 214 213 222 195 228 212 -1

2004 to 2009 

Change, 

Percentage

Under the program erences, which is suU.S. citizens and Limmediate relatives In 2009, about 212of all new legal pergranted admission Admissions througsponsored preferen226,000 in most of 2009, averaging 21Admissions for a cawhole) in one year established ceiling (see Exhibit 6 for dthe one hand, actuthe ceiling because unused visas from oto another category als are issued an LPnot actually admittuntil a subsequent actual admissions mlished ceiling becauan LPR visa or becof such applicationMost of the family-allocated to spouses LPRs, unmarried sand siblings of aduthose categories hav179,200 visas, whiccent of the visas allopreferences. Over taverage of about 16ted per year in thos
LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 8.

Numerical Ceilings on Employment-Based Visas Issued

Sources: Congressional Budget Office based on Department of Homeland Security, U.S. Citizenship and 

Immigration Services, “Green Card Through a Job”; Ruth Ellen Wasem, U.S. Immigration Policy on 

Permanent Admissions, CRS Report for Congress RL32235 (Congressional Research Service, July 20, 

2009); and Department of Homeland Security, Office of Immigration Statistics, U.S. Legal Permanent 

Residents: 2009, Annual Flow Report (April 2010).

Category Who Qualifies for Category NoteEmployment-Based Preferences

First preference Priority workers: individuals with 40,040 Plus unused visas from fourth 

extraordinary ability in the arts, and fifth preferencesathletics, business, education, or the sciences; outstanding professors; and certain multinational executives and managers

Second preference Professionals who hold advanced 40,040 Plus unused visas from first 

degrees or who are considered to preference 

have exceptional ability

Third preference Skilled workers with at least two 40,040 Plus unused visas from first or

years' training or experience in labor second preference; 10,000 of sectors deemed to have shortages those are reserved for unskilled

and professionals with baccalaureate workersdegrees; unskilled workers in labor sectors deemed to have shortages

Fourth preference Special individuals: ministers, other 9,940 Religious workers limited to 

religious workers, certain foreign 5,000nationals employed by the U.S. government abroad, and others

Fifth preference Employment-creation investors who 9,940 3,000 minimum reserved for

commit at least $1 million to the investors in rural or highdevelopment of at least 10 new jobs. unemployment areas(The amount of the investment may be less for rural areas or areas with high unemployment.)

________

Plus unused family-sponsored

Total 140,000 visas from previous year

Visas Issued

Ceiling on 

U.S. immigration pworkers with certaiwith extraordinary degrees). Like famiemployment-based a system of preferenthe number of visas gives priority to indabilities (the first pfollowed by professdegrees and other whave labor shortageaddition, immigratfurther preference csmaller ceilings: spereligious workers) ainvestors. Unused efrom a given preferpassed down to the any unused family-available for emploFor most foreign nunder the employmemployer must firstion request to the department must tnot enough U.S. wperform the intendemployment of the affect wages and woUnited States. (Certhree preference catspecial workers, woabilities, and investAfter receiving certmust file a petition the worker. LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 9.

Employment-Based Admissions of Legal Permanent Residents, 

2004 to 2009(Thousands)Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2009 Yearbook of Immigration Statistics (August 2010), Table 6.

Notes: * = fewer than 500; ** = not shown because of small number of admissions in 2004.

Admissions for a category in one year may be over or under its established ceiling on visas issued in that year (see Exhibit 8). On the one hand, actual admissions may exceed the ceiling because immigration law allows unused visas from one category to be allocated to another category or because some individuals are issued an LPR (legal permanent resident) visa in one year but are not actually admitted to the United States until a subsequent year. On the other hand, actual admissions may be less than the established ceiling because of fewer applications for an LPR visa or because of processing backlogs of such 

applications in certain years.

Category of Admission 2004 2005 2006 2007 2008 2009Employment-Based Preferences

First preference: 

Individuals with extraordinary abilities 31 65 37 27 37 41 31

Second preference: 

Professionals with advanced degrees 33 43 22 44 70 46 40

Third preference: 

Skilled workers, professionals, and 86 129 90 85 49 40 -53certain unskilled workers

Fourth preference: 

Special individuals 5 10 10 5 10 13 149

Fifth preference:

 Employment-creation investors * * 1 1 1 4 **

____ ____ ____ ____ ____ ____

Total 155 247 159 162 167 144 -7

Change,

2004 to 2009

Percentage

About 144,000 peounder employmentaccounting for roumanent admissionsthe statutory ceilinbecause unused fammade available for Overall, about 7 pewere admitted undemployment-based in 2004. For the firries, the number of the number of admpreference category sions for the fourth gories increased frorepresented only a The spike in the nuadmitted under emin 2005 and the eleyears were in part a made more visas avThe American ComCentury Act of 200temporarily increasnumber of employmover the 2005–200Act of 2005 (P.L. 1ment of State to caunused employmenyears (which were u2007). Admissions ing because unused from 2007 were ca
LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 10.

Numerical Ceiling on Diversity Program Visas Issued

Sources: Congressional Budget Office based on Department of Homeland Security, U.S. Citizenship and 

Immigration Services, “Green Card Through the Diversity Immigrant Visa Program”; Ruth Ellen Wasem, 

U.S. Immigration Policy on Permanent Admissions, CRS Report for Congress RL32235 (Congressional 

Research Service, July 20, 2009); and Department of Homeland Security, Office of Immigration 

Statistics, U.S. Legal Permanent Residents: 2009, Annual Flow Report (April 2010).

Ceiling on 

Category Who Qualifies for Category Visas Issued

Diversity Program Citizens of foreign nations with historically low levels of admission to 50,000

the United States. To qualify for a diversity-based visa, an applicantmust have a high school education or its equivalent or at least two years of training or experience in an occupation.

The Immigration ADiversity Program, admissions of peoptorically low levels United States. Sincdiversity-based visabeen limited to 50,annual limit was 55Diversity-based vislottery administereState. Eligible counregions, and visa limon the basis of permpast five years and Applicants must hadiploma or its equiexperience within toccupation requirintraining or experienaccounted for more admissions across apreceding five yeargram. Applicants sement who meet all complete the applicLPR status. LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 11.

Diversity Program Admissions of Legal Permanent Residents, by 

Region of Birth, 2004 to 2009(Thousands)Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2004–2009 Yearbooks of Immigration Statistics (selected years), Table 8 (in 2004) and 

Table 10 (all other years).

Notes: People categorized as “unknown” are those whose region of birth cannot be verified.

* = fewer than 500; ** = not shown because of small number of admissions.

a. North America includes Central America.

b. Oceania includes Australia, New Zealand, and the islands of the South Pacific.

Region 2004 2005 2006 2007 2008 2009Africa 20 16 18 19 18 24 19Asia 8 7 8 7 8 14 67Europe 19 20 15 12 14 9 -53North Americaa * 1 1 * * * **

Oceaniab 1 1 1 1 1 1 **

South America 2 2 2 2 1 * **Unknown * * * * * * **

___ ___ ___ ___ ___ ___

 Total 50 46 44 42 42 48 -4

2004 to 2009

Percentage Change,

In 2009, foreign naaccounted for 24,0people admitted unand nationals from (or 28 percent)—evAsian countries (Chble for the program and several other Able in 2009 becausthan 50,000 permaUnited States durincountries that were include Canada, M(except Northern IAmerican countrieNigeria accounted admissions than annearly 4,000 admisIn 2004, Asian cousmaller share of adm(8,000, or 16 perceEuropean countries foreign nationals adThe annual limit onot always reached not meet the requircertain years. LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 12.

Numerical Ceilings on Humanitarian Visas Issued

Sources: Congressional Budget Office based on Department of Homeland Security, U.S. Citizenship and 

Immigration Services, “Green Card Through Refugee or Asylee Status”; Ruth Ellen Wasem, 

U.S. Immigration Policy on Permanent Admissions, CRS Report for Congress RL32235 (Congressional 

Research Service, July 20, 2009); and Department of Homeland Security, Office of Immigration Statistics, U.S. Legal Permanent Residents: 2009, Annual Flow Report (April 2010).

Note: LPR = legal permanent resident.

Ceiling on 

Category Who Qualifies for Category Visas Note

Humanitarian

Refugees Foreign-born individuals who have been granted Unlimited No limit on adjustments from 

refugee status in the United States because of refugee status to LPR status, but the risk of persecution or a well-founded fear of the President determines a ceiling persecution. Refugees must wait one year before on the number of individuals who petitioning for LPR status. may be granted refugee status.

Asylum-Seekers Foreign-born individuals who have been granted Unlimited

asylum in the United States because of the risk ofpersecution or a well-founded fear of persecution.Asylum-seekers must wait one year beforepetitioning for LPR status.

Others Various classes of people, such as Amerasians, Unlimited Dependent on authority to grant 

parolees, certain Central Americans, Cubans, and LPR status in applicable legislationHaitians, whose status is adjusted to LPR,and certain people granted LPR status followingremoval proceedings.

The U.S. governmgrant LPR status to and other people fosons. Refugees and uals who are at risk country of nationalreligion, membershgroup, or political ries are distinct in tstatus from outside asylum-seekers appStates or at a port olimit on the numbethe United States eRefugees and asyluapply for LPR staturefugee or asylum sdoes not currently gees or asylum-seekLPR status in any yber of asylum-seeketheir status to LPR year. However, the eliminated that ceilOthers granted admreasons include peoCubans, and Haitiability for LPR statuThe category also ipeople who would but are granted temurgent humanitariasion is determined benefit. LEGAL PERMANENT RESIDENTS IMMIGRATION POLIC

CBO

Exhibit 13.

Humanitarian Admissions of Legal Permanent Residents, 

2004 to 2009(Thousands)Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2009 Yearbook of Immigration Statistics (August 2010), Table 6.

Category ofAdmission 2004 2005 2006 2007 2008 2009Refugees 61 113 100 55 90 119 95Asylum-Seekers 10 30 117 81 76 59 473Others 49 37 44 22 16 14 -71

____ ____ ____ ____ ____ ____

Total 120 180 260 158 183 191 59

Percentage Change, 

2004 to 2009

In 2009, about 191seekers, and others humanitarian groucent from 2004. Thfor the most humanwere Cuba (18 percand Somalia (7 perIn 2005, the DeparSecurity reduced a refugees for LPR stcations and allowinthat status. In addi2005 eliminated thsions for asylum-sechanges led to a laradmissions beginni
CBO

Temporary Residents and Visitors
TEMPORARY RESIDENTS AND VISITORS IMMIGRATION POLIC

CBO

Exhibit 14.

Types of Visas Issued for Temporary Residents and Visitors, 2009

(Thousands of visas issued)Source: Congressional Budget Office based on Department of State, Bureau of Consular Affairs, Report of the 

Visa Office 2009, Table XVI.

Temporary Visas Issued

(5,804)

Visas for Visitors

(4,386)

Visas for 

Temporary Residents

(1,419)

Students and Exchange Visitors(708)Temporary Workers andTheir Families(516)Other Temporary Resident(195)

Temporary admissigranted to foreign na limited time and including tourism, Such temporary visor temporary resideerally for a longer pIn general, anyone rary visa for admissfor a specific purpoevidence that the vto depart at the end possess a valid passresidence, be able tmeans (in most casand conditions of awho want to come fully to work tempemployer must genbehalf with the DeUSCIS. TEMPORARY RESIDENTS AND VISITORS IMMIGRATION POLIC

CBO

Exhibit 15.

Visas Issued for Temporary Residents and Visitors, by 

Visa Class, 2009Source: Congressional Budget Office based on Department of State, Bureau of Consular Affairs, Report of the 

Visa Office 2009, Table XVI.

a. Includes families of some temporary workers because the Department of Homeland Security does not 

separately report admissions of those workers and their family members.

Visitors

 (76%)

Students and

Exchange Visitors

 (12%)

Temporary Workers

 (7%) Spouses and Children of Temporary Workers

 (2%)

Others

 (3%)

Temporary Residents

(24%)

a

According to data fthe United States istemporary visas in cent of those visas wUnited States for toThe rest were for testudents, exchange workers. In 2009 (according here), foreign natiofor 2.1 million (or rary visas issued, anAmerica accounted cent). By country, tissued to nationals the second largest sof China (9 percen
TEMPORARY RESIDENTS AND VISITORS IMMIGRATION POLIC

CBO

Exhibit 16.

Number and Type of Temporary Visas Issued, by Visa Class, 

2004 to 2009(Thousands)

Continued

Visa Types Visa Class 2004 2005 2006 2007 2008 2009Visitors (Excluding Visa Waiver Program)

Business and tourism B-1/B-2/BCC 3,414 3,741 4,076 4,514 4,696 4,117 21

Others (Transit visitors, commuter students, C, C-1/D, D-Crewlist,

sea and air crews) F-3, M-3 336 325 303 323 290 269 -20 _____

_____

_____

_____

_____

_____

Subtotal 3,750 4,066 4,379 4,838 4,986 4,386 17

Temporary Residents

Temporary students and exchange visitors

Students F-1, M-1 224 244 281 308 351 340 52Spouses and children of students F-2, M-2 19 18 21 22 23 22 16Exchange visitors J-1 255 275 310 344 359 314 23Spouses and children of exchange visitors J-2 28 29 30 32 33 32 15 ____

____

____

____

____

____

Subtotal 525 566 642 706 767 708 35

Temporary workers

Workers of distinguished merit and ability H-1B 139 124 135 154 129 110 -21Seasonal workers in agricultural services H-2A 32 32 37 51 64 60 89Seasonal workers in nonagricultural services H-2B, H-2R 76 89 123 130 94 45 -41

Workers with extraordinary ability O-1, O-2 9 10 11 12 14 14 56Internationally recognized athletes or entertainers P-1, P-2, P-3 31 34 33 35 38 33 6Intracompany transfereesa L-1 63 65 73 85 84 65 3

Treaty-related workers and spouses and 

children E 37 37 40 41 40 35 -6

Free trade agreement professionals, shortage area

nurses, and trainees H-1B-1, H-1C, H-3 2 2 3 4 4 3 78

International media workers and spouses 

and children I 16 17 16 16 17 15 -7

Cultural exchange workers Q-1, Q-2 2 22222 3Religious workers R-1 9 9 9 10 10 3 -69NAFTA professional workers TN 1 2 3 4 5 4 354 ____

____

____

____

____

____

Subtotal 416 423 483 542 503 388 -7

H-4, L-2, O-3, P-4, 

Q-3, R-2, TD 149 136 145 167 153 127 -14

Percentage 

Change, 

2004 to 2009

Spouses and children of 

temporary workersb

The intended purpfacts determine whrequired under U.S80 types of temporing those for foreigvisitors for business vocational studentsof temporary visas by the letter and nuthe subsection and tion and Nationalitvisa; for example, Beign students, and participants. Many of visas are part of H-1B is a specific tvisas). Exhibit 16 dcategories, but instcategories into theiTemporary studentwell as members of 708,000 visas in 20and their families rthat year. H visas (fspecialty workers) mcategory of temporment: About 218,0visas in 2009. Varionumerically cappedcertain exemptionsries of H visas, the ers of distinguished 110,000 H-1B visa
TEMPORARY RESIDENTS AND VISITORS IMMIGRATION POLIC

CBO

Exhibit 16. ContinuedNumber and Type of Temporary Visas Issued, by Visa Class, 2004 to 2009(Thousands)Source: Congressional Budget Office based on Department of State, Bureau of Consular Affairs, Report of the 

Visa Office 2009, Table XVI; and Report of the Visa Office 2008, Table XVI.

Note: NAFTA = North American Free Trade Agreement; * = fewer than 500; ** = not shown because of small 

number of visas issued.

a. Includes executive, managerial, and specialized personnel with an international firm or corporation.b. This category does not include families of treaty-related workers or families of international media 

representatives because the Department of Homeland Security and the Department of State do not report the number of visas issued or admissions of family members separately.

c. This category includes spouses, children, and dependents of legal permanent residents, as well as fiancé(e)s 

of U.S. citizens.

Visa Types Visa Class 2004 2005 2006 2007 2008 2009Temporary Residents (Continued)

Other temporary residents

Expected long-term residentsc K, V 72 57 49 51 45 41 -44

Diplomats and other representatives A, G, N, NATO 136 142 138 141 149 154 13Victims of trafficking or other criminal activity T, U * * * * * * **

____ ____ ____ ____ ____ ____

Subtotal 209 199 187 192 194 195 -7

Total 5,049 5,389 5,837 6,444 6,603 5,804 15

Change, 

2004 to 2009

Percentage 

Although the total 2009 was 755,000 the number issued was nevertheless do12 percent) from thlion visas issued. Tstemmed from the fewer visas were issand employment. Operiod, the numbeally lower than it wthrough 2001. The dropped from 7.6 m5.0 million in 2003gent criteria for visa following the 2001 
TEMPORARY RESIDENTS AND VISITORS IMMIGRATION POLIC

CBO

Exhibit 17.

Admissions of Legal Temporary Residents and Visitors, by 

Visa Class or Program, 2004 to 2009(Thousands)

Continued

Visa Class or

Admissions Program 2004 2005 2006 2007 2008 2009

Admissions Without I-94 Forms 149,419 143,297 141,433 134,150 136,018 126,368 -15Visitors

Business and tourism B-1/B-2 11,538 12,191 13,943 16,017 16,424 15,089 31

Visa Waiver Program for tourism WT 13,380 13,463 12,828 13,470 15,099 14,273 7

Visa Waiver Program for business WB 2,223 2,250 2,355 2,486 2,546 1,977 -11

Others (Transit visitors, commuter C, F-3, M-3,

students, Guam Visa Waiver Program) GB, GT 427 844 1,072 1,329 1,365 1,206 182

______

______

______

______

______

______

 Subtotal 27,569 28,748 30,198 33,302 35,434 32,544 18

Temporary Residents

Temporary students and exchange

visitors

Students F-1, M-1 620 630 704 801 875 910 47

Spouses and children of students F-2, M-2 36 34 37 41 43 42 16Exchange visitors J-1 322 343 385 443 459 413 28

Spouses and children of exchange

visitors J-2 39 40 42 46 47 46 19

_____

_____

_____

_____

_____

_____

 Subtotal 1,017 1,046 1,168 1,331 1,424 1,411 39

Temporary workers

Workers of distinguished merit 

and ability H-1B 387 407 432 462 410 339 -12

Seasonal workers in agricultural 

services H-2A 22 26 a 46 87 173 150 576

Seasonal workers in nonagricultural 

services H-2B, H-2R 87 103 a 134 155 110 57 -35

Workers with extraordinary ability O-1, O-2 33 37 42 47 54 59 75

Internationally recognized athletes or 

entertainers P-1, P-2, P-3 54 59 63 70 74 70 29

Intracompany transfereesb L-1 314 312 321 364 383 333 6Treaty-related workers and spouses

and children E 183 193 217 239 243 229 25

Free trade agreement professionals, H-1B-1,

shortage area nurses, and trainees H-1C, H-3 2 3 4 6 6 5 101

International media workers and

spouses and children I 37 42 41 44 46 44 19

Cultural exchange workers Q-1, Q-2 2 3 2 2 3 3 21

Percentage 

2004 to 2009

Change,

DHS estimated thatemporary admissioabout 5.8 million tin that year (see Exexceed visa issuancadmissions do not visa can last for sevple entries into the of legal temporary lowest since DHS b2003 and was abounumber admitted iThe total number oincludes roughly 12Canadians and MeUnited States withohave to fill out an A(an I-94 form) wheincludes Canadian ness or tourism and with Border Crossino form to count, of those types of legthe United States oThe total also inclusions of foreign natI-94 forms, an incr18 percent) from 2cent of those admisvisitors, authorized for up to six monthtourism. (The rest mostly students, exrary workers and th
TEMPORARY RESIDENTS AND VISITORS IMMIGRATION POLIC

CBO

Exhibit 17. ContinuedAdmissions of Legal Temporary Residents and Visitors, by Visa Class or Program, 2004 to 2009(Thousands)Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2009 Yearbook of Immigration Statistics (August 2010), Table 25.

Note: NAFTA = North American Free Trade Agreement; * = fewer than 500; ** = not shown because of small 

number of admissions; DHS = Department of Homeland Security.

a. DHS recorded 129,327 H-2 admissions for 2005 but did not distinguish between H-2A and H-2B. The numbers 

reported for those categories for 2005 are CBO’s estimates based on historical shares of H-2 admissions.

b. Includes executive, managerial, and specialized personnel with an international firm or corporation.c. Excludes families of treaty-related workers or families of international media representatives because DHS 

and the Department of State do not report the number of visas issued or admissions of family members separately.

d. Includes spouses, children, and dependents of legal permanent residents, as well as fiancé(e)s of U.S. citizens.

e. Comprises people whose I-94 Arrival/Departure Records are incomplete or unreadable.

Visa Class or

Admissions Program 2004 2005 2006 2007 2008 2009

Temporary workers (continued) 

Religious workers R-1 22 22 23 25 25 17 -20

NAFTA professional workers TN 66 65 74 85 88 99 50

_____

_____

_____

_____

_____

_____

Subtotal 1,210 1,272 1,399 1,585 1,615 1,404 16

H-4, L-2, O-3,

 workersc P-4, Q-3, R-2, TD 298 300 310 347 334 299 1

Other temporary residents

Expected long-term residentsd K, V 104 85 77 76 59 53 -49Diplomats and other representatives A, G, N, NATO 277 287 293 303 315 323 17Victims of trafficking or other criminal

activity T, U * * * * * * ** ____

____

____

____

____

____

Subtotal 381 372 370 379 374 376 -1

Unknowne 307 264 222 205 200 196 -36

Total Admissions With I-94 Forms 30,781 32,003 33,667 37,150 39,382 36,232 18

Estimated Total Admissions 180,200 175,300 175,100 171,300 175,400 162,600 -10

2004 to 2009

Percentage 

Change,

Spouses and children of temporary

The I-94 form, whentry, shows the daarrived in the Unitauthorized period oresidents and visitofill out an I-94 form States, as are short-participating in the Under that programcountries visiting thor less may enter thHowever, they are I-94 form upon arrcurrently participattries, as well as AusKorea. (Most of thunder the Visa WaiUnited Kingdom, JFrance.) By far, the largest nadmissions in 2009 (135 million). Thamillion admissions who did not need a States; the other 9 temporary residenta visa and filled oumillion admissions visitors who complest share was citizenwith 15 million adThe countries with Mexico (18 percen(13 percent). TEMPORARY RESIDENTS AND VISITORS IMMIGRATION POLIC

CBO

Exhibit 18.

Admissions of Temporary Workers, by Visa Class, 2009

Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2009 Yearbook of Immigration Statistics (August 2010), Table 25.

a. Includes families of foreign media representatives (I) and treaty-related workers (E) because the Department 

of Homeland Security does not separately report admissions of those workers and their family members.

Workers of

Distinguished Merit

and Ability (H-1B)

 (24%)

Intracompany

Transferees (L-1)

 (24%)

Treaty-Related

Workers (E)

 (16%)

Seasonal Workers

(H-2A, H-2B, H-2R)

 (15%)

Workers with

Extraordinary Ability

or International

Recognition

(O-1, O-2,

P-1, P-2, P-3)

 (9%)

Others (H-1B-1, 

H-1C, H-3, I, 

Q-1, Q-2, R-1, TN)

 (12%)

a

a

To work temporariforeign nationals nthe type of work thtypes of temporary prospective employpetition; in some cfrom the DepartmeThe U.S. Citizenshvices must approve applicant can requeIn 2009, about 1.4 were admitted (see numbers were for wmerit and ability (3worker admissions) ferees (333,000, or multinational compily relocated to the L-1 visas.Workers of distinguenter the country wvisas. Those visas ahave highly specialsuch as engineeringsciences, medicine, To apply for an H-petition the Deparon behalf of the wogenerally must possbachelor’s degree. Hence can substitute on the individual’s 
CBO

Naturalization
NATURALIZATION IMMIGRATION POLIC

CBO

Exhibit 19.

Requirements for Naturalization

Continued

Preconditions

Characteristics of theApplicant

Time as Resident

ContinuousResidencea

Physical Presencea

Time in District/Stateb

Is a permanent resident with no special circumstances Five years Five years 30 months Three monthsHas been married to and living with a U.S. citizen for the past three years, and spouse has been a U.S. citizen for the past three years

Three years Three years 18 months Three months

Was in the armed forces or discharged less than six months earlier, and served for at least one year

Must be a permanent resident at the time of interview

Not required Not required Not required

Was in the armed forces for less than one year, or was in the armed forces for more than one year and discharged more than six months earlierc

Five years Five years 30 months Three months

Performed active military duty during World War I, World War II, the Korean War, the Vietnam War, the Persian Gulf War, or on or after September 11, 2001

Not required Not required Not required Not required

Is a widow or widower of a U.S. citizen who died during active duty

Must be a permanent resident at the time of interview

Not required Not required Not required

Is an employee or an individual under contract to the U.S. governmentc

Five years Five years 30 months Three months

Is performing ministerial or priestly functions for a religious denomination or an interdenominational organization with a valid U.S. presencec

Five years Five years 30 months Three months

Is employed by an American institution of research recognized by the Attorney General, an American-owned firm or corporation engaged in the development of foreign trade and commerce for the United States, or a public international organization of which the United States is a member by law or treatyc

Five years Five years 30 months Three months

Naturalization is thpermanent resident ship. To be naturalfulfill certain requiImmigration and Nany legal permanen18 years old and wspecified period of presence in the Unnaturalization. By lfor naturalization, gration Services muis of “good moral cU.S. history, governguage; and is willinUnited States and iMost LPRs may apthree to five years oFor certain groups, served in the U.S. mfor continuous residmay be shortened ofor U.S. residency avary according to asituation. NATURALIZATION IMMIGRATION POLIC

CBO

Exhibit 19. ContinuedRequirements for NaturalizationSource: Congressional Budget Office based on Department of Homeland Security, U.S. Citizenship and 

Immigration Services, A Guide to Naturalization (August 2010).

Note: In addition to the requirements listed above, all applicants must be at least 18 years of age. a. Physical presence means not leaving the United States during the period. Trips outside of the United States for 

six months or longer constitute a break in continuous U.S. residency.

b. Most applicants must be a resident of the district or state in which they are applying.

c. Certain exceptions are made for time spent out of the country for these applicants.

Preconditions

Characteristics of theApplicant

Time as Resident

ContinuousResidencea

Physical Presencea

Time in District/Stateb

Is a spouse of a U.S. citizen who is a member of the armed forces, or in one of the three previous categories, and who is working abroad under an employment contract with a qualifying employer for at least one year (including the time at which the applicant naturalizes) 

Must be a permanent resident at the time of interview

Not required Not required Not required

Is a U.S. national (a noncitizen who owes permanent allegiance to the United States, such as an American Samoan) and has become a resident of any state, and otherwise qualifies for naturalizationc

Not required The same 

requirements as any other applicant for naturalization, depending on qualifications

The same requirements as any other applicant for naturalization, depending on qualifications

Three months, or not required, depending on qualifications

Served on a vessel operated by the United States or on a vessel registered in the United States and owned by U.S. citizens or a U.S. corporationc

Five years Five years 30 months Three months

Has been employed for five years or more by a U.S. nonprofit organization that promotes the interests of the United States abroad through the communications media

Five years Not required Not required Not required
NATURALIZATION IMMIGRATION POLIC

CBO

Exhibit 20.

People Naturalized, by Region of Birth, 2004 to 2009

(Thousands)Source: Congressional Budget Office based on Department of Homeland Security, 2009 Yearbook of Immigration 

Statistics (August 2010), Table 21.

Notes: People categorized as unknown are those whose region of birth cannot be verified.

** = not shown because of small number of naturalizations.

a. North America includes Central America.

b. Oceania includes Australia, New Zealand, and the islands of the South Pacific.

Region of Birth 2004 2005 2006 2007 2008 2009Africa 35 39 50 42 54 60 75Asia 224 244 264 244 330 276 23Europe 84 92 101 82 109 90 7North Americaa 151 181 223 241 462 250 66

Oceaniab 4 4 4 3 5 4 11

South America 39 45 60 48 85 62 59Unknown 1 1 1 1 1 1 **

____ ____ ____ ____ ______ ____

Total 537 604 703 660 1,047 744 38

Percentage change,

2004 to 2009

About 744,000 peoU.S. citizens in 200share was born in Mthe second largest s(7 percent). Becausof processing appliof Homeland Secunaturalized fluctuatthat reason, averageaccurate indication izations. Between 2of naturalizations waverage, than it wathe 2004–2009 perthat experienced thin naturalizations wcent increase, and Npercent increase. According to the DSecurity, people namedian of seven yedents before becoming backlogs can defor many people. In surge in applicationincrease in the natuprocessing backlog backlog was finally than 1 million peothat year. As of the 230,000 applicants awaited a decision, number of applicatof any of the previo
CBO

Enforcement of Immigration Policy
ENFORCEMENT OF IMMIGRATION POLICY IMMIGRATION POLIC

CBO

Exhibit 21.

Enforcement Efforts, 2004 to 2009

(Thousands)Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, Immigration Enforcement Actions: 2009 (August 2010), Table 1; and 2009 Yearbook of 

Immigration Statistics (August 2010), Tables 35 and 36.

Notes: The sum of all removals and voluntary returns may not equal total apprehensions for various reasons. 

Some people who are allowed to withdraw their application for admission at a port of entry are counted as voluntary returns but are not counted as apprehensions. In addition, removal proceedings for some apprehended people may take months or years to resolve, so a person apprehended in one year may not be removed until a later year. Finally, other apprehended individuals may be granted an adjustment of status following an immigration hearing.The numbers of apprehensions, removals, and returns are counts of events, not individuals. That is, the same individual can be counted as having been arrested, removed, or voluntarily returned more than once 

in the same year.

2004 2005 2006 2007 2008 2009

Apprehensions 1,264 1,291 1,206 961 792 613 -52Nonexpedited Removals 190 159 170 213 245 287 51Expedited Removals 51 88 111 106 113 107 109

____ ____

____

____

____

____

Total removals 241 246 281 319 359 393 63

Voluntary Returns 1,167 1,097 1,043 891 811 580 -50

Percentage Change,

2004 to 2009

Removals and Returns 

Apprehensions

The Department ois responsible for thtion laws, reported 2009 for violations hensions were conc91 percent (or 556the U.S. Customs a(CBP’s) Border Patapprehensions repoless than half the npartly because of chbeginning in 2007transferred apprehecertain programs wrecorded each such sion. As of 2007, Dthose transfers in itand as of 2008 it alhensions by state anagencies. Some othafter 2006 may be attempting to enter because of increased of reduced employmUnited States.Some foreign natioattempting to enter who have violated immigration status ceedings; others leareturns are most coviolations are evideple were allowed to voluntarily, about h(Although various way to count the towho enter the counhended, and leave v
ENFORCEMENT OF IMMIGRATION POLICY IMMIGRATION POLIC

CBO

Exhibit 22.

Reasons for Removal, 2004 to 2009

Source: Congressional Budget Office based on Department of Homeland Security, Office of Immigration 

Statistics, 2009 Yearbook of Immigration Statistics (August 2010), Table 38.

Notes: According to the Office of Immigration Statistics, the annual number of removals for previous years was 

revised in 2006; also, the category Administrative Reason for Removal that was shown in CBO’s 2006 report is no longer available for all Department of Homeland Security removals. n.a. = not applicable; CBP = Customs and Border Protection.

a. Refers to people removed because of a criminal conviction. However, the numbers for 2008 and 2009 exclude 

criminals removed by CBP because the agency did not identify whether an individual removed in those years was a criminal. Because all CBP removals are counted as noncriminal removals, the number of criminals 

removed may be underreported in 2008 and 2009.

2004 2005 2006 2007 2008 2009

Noncriminal 148 154 182 217 254 265 79Criminala 92 92 98 102 105 128 39

____ ____ ____ ____ ____ ____

Total 241 246 281 319 359 393 63

Noncriminal 62 63 65 68 71 67 n.a.Criminala 38 37 35 32 29 33 n.a.

____ ____ ____ ____ ____ ____

 Total 100 100 100 100 100 100 n.a.

2004 to 2009

Percentage Change,

Removals (Thousands)

Percentage of Yearly Total

Two agencies withito enforce immigrafor determining the individuals at desigand the apprehensicross land and coasauthorization. U.Stoms Enforcement enforcing immigratof the United State298,000 foreign na95,000.Removals increased 2004 and 2009. Exallow immigration removal of a foreign involvement) more period, and standarducted before an imabout 50 percent (speople from Mexic75 percent of the 1In 2009, 265,000 rwere for noncriminproper documentatfrom the country. Tremovals (128,000criminal activity, mactivity, traffic offenviolations. CBP did individual removed criminal. Because ayears are counted anumber of criminareported for 2008 a