Documents
DHS Briefing Materials for November 2018 Meeting With UNHCR
June 14, 2019
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
MEETING WITH UNITED NATIONS HIGH COMMISSIONER FOR REFUGEES
FILIPPO GRANDI
November 1, 2018
Objective:
0 Thank the United Nations High Commissioner for Refugees (UNHCR) for its rapid
mobilization in response to the migrant caravan.
0 Get a status update from UNHCR regarding its talks with the Government of Mexico (GOM)
and actions to increase programming in Mexico.
0 Restate the importance of building asylum and third-country refugee resettlement capacity
throughout the Americas in order to allow migrants with protection needs to remain as close
to home as possible.
Key Messages
You been in continuous communication with your counterparts in Mexico and the Northern
Triangle as the caravan has unfolded, and you will continue to push for a comprehensive,
regional solution to migration, while continuing to enforce US. law. The United States
Government (USG) has already taken a number of steps to respond to and obtain information
about the caravan, in consultation with the Governments of Mexico and the Northern Triangle
countnes.
Key Issues:
DHS Issues to Address:
Asylum in Mexico
0 Earlier in the week, GOM of?cials indicated that they were considering granting all caravan
members asylum as a group instead of individual reviewing their claims.
Further clarification is still needed as to how GOM will proceed.
While this decision may not have an impact on U. S. operations, it could serve as a pull
factor to Mexico, and it could set a precedent of not granting asylum based on the merits
of a claim.
0 Staff recommendation: Comment that you are concerned with pull factors and establishing
unsustainable precedents, but that GOM can set its own asylum policy just like the United
States does.
hird?C ountry Refugee Resettlement
0 Mexico has informally allowed for a third-country refugee resettlement process to begin,
however, Mexico has not wanted to open or public about it.
DHS has already approached Canada and Australia. Costa Rica and Uruguay could also
be considered as options in the future.
I Both Canada and Australia were open to the idea should UNHCR have authorization
to proceed.
vision is that the resettlement program in Mexico will run concurrent with the
Protection Transfer Arrangement (PTA), not detracting resources from it.
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
MEETING WITH UNITED NATIONS HIGH COMMISSIONER FOR REFUGEES
FILIPPO GRANDI
November 1, 2018
Objective:
0 Thank the United Nations High Commissioner for Refugees (UNHCR) for its rapid
mobilization in response to the migrant caravan.
0 Get a status update from UNHCR regarding its talks with the Government of Mexico (GOM)
and actions to increase programming in Mexico.
0 Restate the importance of building asylum and third-country refugee resettlement capacity
throughout the Americas in order to allow migrants with protection needs to remain as close
to home as possible.
Key Messages
You been in continuous communication with your counterparts in Mexico and the Northern
Triangle as the caravan has unfolded, and you will continue to push for a comprehensive,
regional solution to migration, while continuing to enforce US. law. The United States
Government (USG) has already taken a number of steps to respond to and obtain information
about the caravan, in consultation with the Governments of Mexico and the Northern Triangle
countnes.
Key Issues:
DHS Issues to Address:
Asylum in Mexico
0 Earlier in the week, GOM of?cials indicated that they were considering granting all caravan
members asylum as a group instead of individual reviewing their claims.
Further clarification is still needed as to how GOM will proceed.
While this decision may not have an impact on U. S. operations, it could serve as a pull
factor to Mexico, and it could set a precedent of not granting asylum based on the merits
of a claim.
0 Staff recommendation: Comment that you are concerned with pull factors and establishing
unsustainable precedents, but that GOM can set its own asylum policy just like the United
States does.
hird?C ountry Refugee Resettlement
0 Mexico has informally allowed for a third-country refugee resettlement process to begin,
however, Mexico has not wanted to open or public about it.
DHS has already approached Canada and Australia. Costa Rica and Uruguay could also
be considered as options in the future.
I Both Canada and Australia were open to the idea should UNHCR have authorization
to proceed.
vision is that the resettlement program in Mexico will run concurrent with the
Protection Transfer Arrangement (PTA), not detracting resources from it.
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
International Organization for Migration (IOM) based out of San Salvador will likely
manage the caseload for the Mexico resettlement program, in addition to the PTA in El
Salvador and Costa Rica.
Both of these programs, in addition to resettlement out of Ecuador, will remain limited by the
Fiscal Year 2019 refugee ceiling of 3,000 individuals for Latin America and the Caribbean.
Staff recommendations: Reinforce your support for PTA continuing alongside any
resettlement program in Mexico.
Mention that any admissions from Latin America and the Caribbean will remain limited
by the 3,000 individual ceiling for the region.
Dissuasive Messaging
DHS Attache to Mexico Edgar Ramirez reports that many migrants he spoke with were under
the false assumption that they would be given some sort of amnesty upon arrival to the US.-
Mexico border.
He spoke with them about actual vs. perceived US. policy.
One challenge facing DHS is that migrants may hear the actual US. policy, but they still
have anecdotal stories from friends and family who were allowed to stay in the United
States.
Ramirez and social media report that many elderly people and children are part of the
caravan, and people are exhausted from the walking
Caravan leaders have promised migrants that they will not have to walk the whole way,
but Mexican Federal Police are preventing migrants from boarding buses and tractor-
trailers and plan to shut down trains routes for migrants.
Social media reports that hundreds of migrants are willing to accept voluntary
repatriation, in addition to the 3,116 Hondurans who have returned from Guatemala and
Mexico as of October 25.
Staff recommendation: Thank UNHCR for engaging in a messaging campaign to encourage
caravan members to apply for asylum in Mexico and to debunk any misconceptions about
US. immigration policy.
Inform High Commissioner Grandi that the US. Government is also coordinating
messaging to send a clear message from the United States and the region.
Biometric Results
Between October 18-23, 2018, DHS has received biometric information on 153 members of
the caravan with criminal convictions.
In addition to Central Americas, there are numerous Indians, Bangladeshis, Cameroonians,
Congolese, Haitians, Nepalese, Pakistanis, Sri Lankans, Angolans, Eritreans, Ethiopians,
Ghanaians, Afghans, Somalis, Yemenis and Sierra Leoneans participating in the caravan.
Staff recommendation: State the importance of capturing biographic and biometric
information on the members of the caravan to uncover any nefarious actors who are
infiltrating the ?ows.
Remark that any help UNHCR could play in capturing this information in conjunction
with the United States would be very appreciated.
Background
UNH CR Engagement with Government of Mexico
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
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FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
International Organization for Migration (IOM) based out of San Salvador will likely
manage the caseload for the Mexico resettlement program, in addition to the PTA in El
Salvador and Costa Rica.
Both of these programs, in addition to resettlement out of Ecuador, will remain limited by the
Fiscal Year 2019 refugee ceiling of 3,000 individuals for Latin America and the Caribbean.
Staff recommendations: Reinforce your support for PTA continuing alongside any
resettlement program in Mexico.
Mention that any admissions from Latin America and the Caribbean will remain limited
by the 3,000 individual ceiling for the region.
Dissuasive Messaging
DHS Attache to Mexico Edgar Ramirez reports that many migrants he spoke with were under
the false assumption that they would be given some sort of amnesty upon arrival to the US.-
Mexico border.
He spoke with them about actual vs. perceived US. policy.
One challenge facing DHS is that migrants may hear the actual US. policy, but they still
have anecdotal stories from friends and family who were allowed to stay in the United
States.
Ramirez and social media report that many elderly people and children are part of the
caravan, and people are exhausted from the walking
Caravan leaders have promised migrants that they will not have to walk the whole way,
but Mexican Federal Police are preventing migrants from boarding buses and tractor-
trailers and plan to shut down trains routes for migrants.
Social media reports that hundreds of migrants are willing to accept voluntary
repatriation, in addition to the 3,116 Hondurans who have returned from Guatemala and
Mexico as of October 25.
Staff recommendation: Thank UNHCR for engaging in a messaging campaign to encourage
caravan members to apply for asylum in Mexico and to debunk any misconceptions about
US. immigration policy.
Inform High Commissioner Grandi that the US. Government is also coordinating
messaging to send a clear message from the United States and the region.
Biometric Results
Between October 18-23, 2018, DHS has received biometric information on 153 members of
the caravan with criminal convictions.
In addition to Central Americas, there are numerous Indians, Bangladeshis, Cameroonians,
Congolese, Haitians, Nepalese, Pakistanis, Sri Lankans, Angolans, Eritreans, Ethiopians,
Ghanaians, Afghans, Somalis, Yemenis and Sierra Leoneans participating in the caravan.
Staff recommendation: State the importance of capturing biographic and biometric
information on the members of the caravan to uncover any nefarious actors who are
infiltrating the ?ows.
Remark that any help UNHCR could play in capturing this information in conjunction
with the United States would be very appreciated.
Background
UNH CR Engagement with Government of Mexico
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
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FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
UNHCR has been present at the Mexico-Guatemala border since the arrival of the ?rst waves
of the caravan, and is working closely with Mexico? National Migration Institute (INM),
which is facilitating access to international protection.
As of October 25, 1,743 people have claimed asylum in Mexico.
UNHCR Country Director in Mexico, Mark Manley, spoke with Secretary Videgaray on
October 22.
GOM has given UNHCR permission to continue making low-key resettlement referrals
to third countries.
UNHCR is collaborating with the Mexican Refugee Assistance Commission (COMAR) to
pre-register applicants for asylum and to identify and increase COMAR staf?ng needs.
On October 24, COMAR agreed to increase staf?ng by 22 people, with 11 new asylum
of?cers beginning by the end of the week.
UNHCR has recommended that COMAR increase its staff by a total of 100 of?cers.
GOM has agreed to issue CURP cards for employment authorization to asylum seekers, in
addition to recognized refugees, which will allow them to move outside of Chiapas.
This will ease the burden on services in Chiapas and allow asylum seekers access to a
less saturated labor market.
UNHCR estimates that it can relocate 300 asylum seekers per week, ideally to the
industrial belt in northern Mexico where obs are more plentiful.
UNHCR has offered to identify pro?les within caseload that would meet speci?c
resettlement criteria, and process them for third-country resettlement.
Shelter Space."
The fairground in Tapachula referred to as ?La Feria? has been identi?ed as a temporary
shelter until an applicant?s release to UNHCR for transfer to the safe space shelters. (Release
is generally within 1-2 days following registration with UNHCR).
Shelter capacity of La Feria is up to 12,000 persons in separated spaces with gender
separated bathrooms and lighting in the shelter areas.
As of October 24, 1,028 asylum seekers were staying at La Feria, with 461 additional
asylum seekers remaining at the INM Siglo XXI detention center.
UNHCR has identi?ed 113 safe shelters and is working to increase the capacity of shelters to
receive even more applicants.
Paralegals are present at the shelters to provide legal assistance to asylum seekers so that they
understand the process, which better ensures that they do not abandon their application and
continue traveling to the United States.
Other UNH CR Operations in Mexico:
UNHCR has 41 staff on site in Tapachula as of October 24 and hopes to have as many as 70
in the coming weeks.
UNHCR is assisting with the need to respond to additional equipment needs g. laptops,
wireless networks, etc.)
UNHCR and civil society organizations (CSOs) are actively working to dispel
misinformation and encourage migrants to apply for asylum.
UNHCR believes that CSOs will be well organized to conduct outreach if and when the
caravan reaches Mexico City.
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
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FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
UNHCR has been present at the Mexico-Guatemala border since the arrival of the ?rst waves
of the caravan, and is working closely with Mexico? National Migration Institute (INM),
which is facilitating access to international protection.
As of October 25, 1,743 people have claimed asylum in Mexico.
UNHCR Country Director in Mexico, Mark Manley, spoke with Secretary Videgaray on
October 22.
GOM has given UNHCR permission to continue making low-key resettlement referrals
to third countries.
UNHCR is collaborating with the Mexican Refugee Assistance Commission (COMAR) to
pre-register applicants for asylum and to identify and increase COMAR staf?ng needs.
On October 24, COMAR agreed to increase staf?ng by 22 people, with 11 new asylum
of?cers beginning by the end of the week.
UNHCR has recommended that COMAR increase its staff by a total of 100 of?cers.
GOM has agreed to issue CURP cards for employment authorization to asylum seekers, in
addition to recognized refugees, which will allow them to move outside of Chiapas.
This will ease the burden on services in Chiapas and allow asylum seekers access to a
less saturated labor market.
UNHCR estimates that it can relocate 300 asylum seekers per week, ideally to the
industrial belt in northern Mexico where obs are more plentiful.
UNHCR has offered to identify pro?les within caseload that would meet speci?c
resettlement criteria, and process them for third-country resettlement.
Shelter Space."
The fairground in Tapachula referred to as ?La Feria? has been identi?ed as a temporary
shelter until an applicant?s release to UNHCR for transfer to the safe space shelters. (Release
is generally within 1-2 days following registration with UNHCR).
Shelter capacity of La Feria is up to 12,000 persons in separated spaces with gender
separated bathrooms and lighting in the shelter areas.
As of October 24, 1,028 asylum seekers were staying at La Feria, with 461 additional
asylum seekers remaining at the INM Siglo XXI detention center.
UNHCR has identi?ed 113 safe shelters and is working to increase the capacity of shelters to
receive even more applicants.
Paralegals are present at the shelters to provide legal assistance to asylum seekers so that they
understand the process, which better ensures that they do not abandon their application and
continue traveling to the United States.
Other UNH CR Operations in Mexico:
UNHCR has 41 staff on site in Tapachula as of October 24 and hopes to have as many as 70
in the coming weeks.
UNHCR is assisting with the need to respond to additional equipment needs g. laptops,
wireless networks, etc.)
UNHCR and civil society organizations (CSOs) are actively working to dispel
misinformation and encourage migrants to apply for asylum.
UNHCR believes that CSOs will be well organized to conduct outreach if and when the
caravan reaches Mexico City.
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
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FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
UNHCR-Identi?ed Issues:
0 INM processing at the Ciudad Hidal go port of entry is slow enough that migrants who do not
want to wait swim across the Suchiate River and enter Mexico illegally.
INM is not releasing asylum applicants from detention quickly, which is making potential
applicants rethink the decision to avail themselves to protection.
Watch Out For/ If Asked:
Global Compact on Refugees (GCR):
UNHCR will likely assert that all work it is doing in Mexico is consistent with the GCR.
UNHCR will likely press for the United States to support the OCR, noting that efforts have
been made to accommodate U.S. concerns.
0 Staff recommendation: Remark that DHS appreciates the efforts made by UNHCR on the
GCR, which includes the position that refugees should remain as close to their country of
origin as possible.
State that Deputies are currently meeting with the White House to determine the U. S.
position on the GCR.
Return to Territory
0 UNHCR Washington has raised multiple times (to both DHS and Department of State) the
concern that its refugee processing efforts would be used by the United States to deny due
process to would-be asylum seekers who arrive at the U.S.-Mexico border.
0 At the staff level, DHS has told UNHCR that the migrants who go through the refugee
screening process, who are not accepted by the whichever country they are referred to, and
still come to the U.S-Mexico border to request asylum would be processed through credible
fear consistent with U. S. immigration law.
However, DHS expects that process would be expedited (barring a change in the
applicant?s circumstances) since these migrants were already screened and already found
to not qualify.
0 There has been no explicit mention that section 23 of the Immigration and
Nationality Act (INA) is being considered.
0 Staff recommendation: Respond that the United States will perform its sovereign function of
considering asylum requests in compliance with US. laws and international obligations,
irrespective of UNHCR actions in the region.
History:
0 You last spoke with High Commissioner Grandi on June 25, 2018, but you have not met with
him in person while in your current position.
a You spoke with Assistant High Commissioner for Protection Volker Turk on October 22,
2018.
0 Office of Policy and USCIS staff maintain a constant working relationship with UNHCR
representatives in Washington DC. and throughout the hemisphere.
Attachments:
A. Talking Points
B. Biography
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
13
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
UNHCR-Identi?ed Issues:
0 INM processing at the Ciudad Hidal go port of entry is slow enough that migrants who do not
want to wait swim across the Suchiate River and enter Mexico illegally.
INM is not releasing asylum applicants from detention quickly, which is making potential
applicants rethink the decision to avail themselves to protection.
Watch Out For/ If Asked:
Global Compact on Refugees (GCR):
UNHCR will likely assert that all work it is doing in Mexico is consistent with the GCR.
UNHCR will likely press for the United States to support the OCR, noting that efforts have
been made to accommodate U.S. concerns.
0 Staff recommendation: Remark that DHS appreciates the efforts made by UNHCR on the
GCR, which includes the position that refugees should remain as close to their country of
origin as possible.
State that Deputies are currently meeting with the White House to determine the U. S.
position on the GCR.
Return to Territory
0 UNHCR Washington has raised multiple times (to both DHS and Department of State) the
concern that its refugee processing efforts would be used by the United States to deny due
process to would-be asylum seekers who arrive at the U.S.-Mexico border.
0 At the staff level, DHS has told UNHCR that the migrants who go through the refugee
screening process, who are not accepted by the whichever country they are referred to, and
still come to the U.S-Mexico border to request asylum would be processed through credible
fear consistent with U. S. immigration law.
However, DHS expects that process would be expedited (barring a change in the
applicant?s circumstances) since these migrants were already screened and already found
to not qualify.
0 There has been no explicit mention that section 23 of the Immigration and
Nationality Act (INA) is being considered.
0 Staff recommendation: Respond that the United States will perform its sovereign function of
considering asylum requests in compliance with US. laws and international obligations,
irrespective of UNHCR actions in the region.
History:
0 You last spoke with High Commissioner Grandi on June 25, 2018, but you have not met with
him in person while in your current position.
a You spoke with Assistant High Commissioner for Protection Volker Turk on October 22,
2018.
0 Office of Policy and USCIS staff maintain a constant working relationship with UNHCR
representatives in Washington DC. and throughout the hemisphere.
Attachments:
A. Talking Points
B. Biography
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
13
FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
Staff Responsible for Brie?ng Memo: Morgan Plumer, Deputy Director, Mexico, PLCY,
Michael Huston, Principal Director, Americas, PLCY,
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FOR OFFICIAL USE LAW ENFORCEMENT SENSITIVE
Staff Responsible for Brie?ng Memo: Morgan Plumer, Deputy Director, Mexico, PLCY,
Michael Huston, Principal Director, Americas, PLCY,
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FOR OFFICLAL USE ONLY
MEETING WITH UNITED NATIONS HIGH COMMISSIONER FOR REFUGEES
FILIPPO GRANDI
November 1, 2018
Talking Points
Topline Messages:
The United States Government has taken a number of steps to respond to and obtain information
about the caravan, in consultation with the Governments of Mexico and the Northern Triangle
countries.
UNHCR support in Southern Mexico is crucial to ensuring that migrants with protection needs
understand how to seek asylum and to supporting COMAR with the capacity to process those
dams
Coordinated messaging to correct misinformation is vital.
Topic/Issue
Thank you for rapid mobilization and response to the migrant caravan. Your work in
Southern Mexico has made it possible for thousands of asylum seekers to apply for protection.
The United States Government is still working through some details about opening a third-country
resettlement stream from Mexico and hopes to rapidly resolve any issues.
Any third-country resettlement program out of Mexico should be a regional effort, with countries
such as Canada, Costa Rica and Uruguay accepting refugees as well.
DHS recognizes the importance of the Protection Transfer Arrangement (PTA) for providing
protection for the most vulnerable populations before they decide to make the dangerous journey to
the United States.
It is our desire that any third-country resettlement program in Mexico not detract from those
efforts.
Our DHS Attache to Mexico was recently in Chiapas and reported that many migrants believed they
would receive amnesty once they reached the U.S.-Mexico border.
This demonstrates the importance of coordinated governmental and non-governmental
messaging to ensure that caravan members understand the realities of US. immigration law and
policy.
Thank you for your efforts to encourage caravan members to apply for asylum in Mexico and to
dispel about US. immigration policy.
FOR OFFICLAL USE ONLY
20
FOR OFFICLAL USE ONLY
MEETING WITH UNITED NATIONS HIGH COMMISSIONER FOR REFUGEES
FILIPPO GRANDI
November 1, 2018
Talking Points
Topline Messages:
The United States Government has taken a number of steps to respond to and obtain information
about the caravan, in consultation with the Governments of Mexico and the Northern Triangle
countries.
UNHCR support in Southern Mexico is crucial to ensuring that migrants with protection needs
understand how to seek asylum and to supporting COMAR with the capacity to process those
dams
Coordinated messaging to correct misinformation is vital.
Topic/Issue
Thank you for rapid mobilization and response to the migrant caravan. Your work in
Southern Mexico has made it possible for thousands of asylum seekers to apply for protection.
The United States Government is still working through some details about opening a third-country
resettlement stream from Mexico and hopes to rapidly resolve any issues.
Any third-country resettlement program out of Mexico should be a regional effort, with countries
such as Canada, Costa Rica and Uruguay accepting refugees as well.
DHS recognizes the importance of the Protection Transfer Arrangement (PTA) for providing
protection for the most vulnerable populations before they decide to make the dangerous journey to
the United States.
It is our desire that any third-country resettlement program in Mexico not detract from those
efforts.
Our DHS Attache to Mexico was recently in Chiapas and reported that many migrants believed they
would receive amnesty once they reached the U.S.-Mexico border.
This demonstrates the importance of coordinated governmental and non-governmental
messaging to ensure that caravan members understand the realities of US. immigration law and
policy.
Thank you for your efforts to encourage caravan members to apply for asylum in Mexico and to
dispel about US. immigration policy.
FOR OFFICLAL USE ONLY
20
FOR OFFICLAL USE ONLY
0 DHS is concerned about gang members and migrants with criminal convictions participating in the
caravan, in addition to the number of extra-continental migrants who have taken advantage of the
opportunity to join the caravan.
DHS is doing its best to continue to monitor the composition of the flows in preparation that the
caravan does reach the U. S.-Mexico border.
Potential Questions Answers
0 Q: Do you have an update on the United States Government?s position on the Global Compact on
Refugees?
A: DHS appreciates the efforts made by UNHCR to develop elements of the GCR indicating that
countries should share responsibility for providing protection and that refugees should remain as
close to their country of origin as possible.
A: The Department Deputies are currently meeting with the White House to determine the US.
position on the GCR.
0 Q: Is the United States considering enacting section 23 in response to the caravan?
A: The United States will perform its sovereign function of considering asylum requests in
compliance with U. S. laws and international obligations.
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FOR OFFICLAL USE ONLY
0 DHS is concerned about gang members and migrants with criminal convictions participating in the
caravan, in addition to the number of extra-continental migrants who have taken advantage of the
opportunity to join the caravan.
DHS is doing its best to continue to monitor the composition of the flows in preparation that the
caravan does reach the U. S.-Mexico border.
Potential Questions Answers
0 Q: Do you have an update on the United States Government?s position on the Global Compact on
Refugees?
A: DHS appreciates the efforts made by UNHCR to develop elements of the GCR indicating that
countries should share responsibility for providing protection and that refugees should remain as
close to their country of origin as possible.
A: The Department Deputies are currently meeting with the White House to determine the US.
position on the GCR.
0 Q: Is the United States considering enacting section 23 in response to the caravan?
A: The United States will perform its sovereign function of considering asylum requests in
compliance with U. S. laws and international obligations.
FOR OFFICLAL USE ONLY
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