Congressional Research
A \Nibervice
Foreign Science and Engineering Presence in
U.S Institutions and the Labor Force
Christine M Matthews
Specialist in Science and Technology Policy
March 23, 2010
Congressional Research Service veers go" 786
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Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force
Summary
The ineteased presence of foreign students n gahat eience the sclatfe workforce as been and conics to he of conser to some the Sleatiic ant engineeting prograns sin ‘onmpuniy: Enrollment of 11S citizens in graduate seience and engincering prograns has not ‘Kept pace with dat af foreign stems in hose programs In adliion t he numberof fecin
students a graduate seicace and eagincering yroesas a significant ume of university facully inthe scien seine are fein, an leis doctorates ae employed in age nuibers by inde
ew wil disput that U.S eniversties and indy have chosen foreign alent ofl many psitons Foreign seenists and enginers serve the nes indsty ath dato level and kohave heen founda serve in jo oles a the masters evel However, thee ate eitbes hat U.S, workers are adversely affected by the entry of foreign scieist ae engineers, ho
reportally accept lower wages than U.S citizens woul accept im adr w enero emai nthe Ute States,
[NSF data reves that in 2006, the foreign student population eared approximately 36.2% of the doctorate degrees in the sciences and approximately 636% of the dovtoate degrees in sincering Jn 200, foreign sats on temporary resident vist caned 32.0% of te torts inthe sciences, an 58.04 of the doctorate in engineering The pariiption rates in 2005 were XU and 38.4, respectively In 2006, pemmuncnt resident staus stents cared 42% ofthe ‘oesortes in bath the seiences ain eneincerine, a shah change frm the 2008 levels of 38% inthe sconces and 4.4% in engineerin,
‘Manin the scirtfe community ain ha in onder o compete with cous tht are Fapid expanding thei siete and technological eapabiis, the country needs to rine to the Unite States those hone 4s wil netic soety and wil emae ws to corer the ne technology based pla cca, The aeademic community ks enaceraed at hy mare srngent ‘sa regements or foreign tudes a have cond impo enollments in colleges und universes, Thar rete who Believe alt underlying prblcts af foreign stan in faust science and engineering programs sot nesesariy th tere are too many foreign-born
Students, but hus thee ate not enous native-born Stdents pursing scene an tecimicat —
Legislation has boom introduced inthe L11 Congress otras foreign tes the seeatiic apd tetical dscipines and to waitin the imerests of Amerian seientists H.R 4321, Comprehensive Iiigration Reform for Ameri's Sscurity and Prosperity As, woul, rong ‘the things, amend HIB visa employer application requirements by lengthening US, woeksr Proistion and prohibiting employer positinn anananeerants that spxity positions soley to, or $8e priority to, HAT visa holders HER, (781, Stopping Tene ip Amica PhDs fom Leaving the Enonony Act (STAPLE, would place mmerical tations on imran who have been swan doctorate degre in the stentfeeseplines from a US, iesiution and who hase a8 ‘ffecoemployraeatfrowna U.S employe in a degos-ratd ila
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Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force Contents
Foreign Studens in U.S lnsiuions
Participation ates in Seieace anal Engineering Sopp of orsign Stodeis in Grate Scho
Perceived Benefits and Probes, Foreign Scientists ani Engineers i the U.S Labor Fare Policy Implications
Figures
Figure 1, Poetoate Degrees: US an Nom US Citizens, 2006
Figure 2, Nou US, Citizens Awarded Dosorte in Seenee and Engineering ‘Citizenship, 2006 by Coantty Tables
Table | Science Doctorates: Now U.S, Ciizens—Temporary and Permuneat Residems as ‘Percentage of Total Awards, 1997-206,
“Table 2 Engincsring Doctorates: Non-US Catzene— Temporary and Permanent Residents asa Peesotage of Tal wands, 197-2006 “Table 3 Primary Sours of Financial Spon for Doctorate Reviiems, 2006 “Table 4 HIB Peitions Approved by Major Oseuption Group Fiscal Year 2008
Contacts
‘Author Contact Information
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US fstiuions an te Laon Force
‘i nthe scenic workfonvs has been an continues to he of concern some inthe Scientific comma, Enollent of U.S ction in graduate sense and engineerin programs has not ket pace wih that of forsian stunts in those programs In aditon to te "hình af foreigh stents in taht science ad ensncsrine poetann, & siiieat umber of University tieu Ta he scene dseipines are foreign a foreign dotorates are employed in lange mimes by dst
T: netease presence of foreign studs in gubate sence and enginectng prograns
“Those inthe scenic community, arguing foe elings om admissions fo immigrants, msn Thai foreign students use US, graate education programs as stoping toe lò inmieraon "woush sponsorships fr legal permanent residence" Approximately 56% of Torign doctorate -dege te 0 temporary “se remujA 0 he United Sates, with many’ eventually heconing ‘iuzens.' Data on alsin fon temporary vss to perma stats evel hat approximately 61m 19 sew permanent resideas ocurred i oth 2007 ad 2008 fom adusteats ‘status admissions.” In 2008, approximately 5.08 of dove individuals awarded legal Permanent reser salu sue from employment based prefect,
Fey wil spurte that U.S universities and industry have chosen foreign alee fill many positions” Foreign cits an enginces serve the neds of indus a the doctorate eve! and ko ave bool serve inno oles a he masters level” No spisnely, here ae
ful tythe nie Sear al lpn se example
See Foun, Fie, Pl-Tne rate Sot Exe io Saxe and Egiesng ind Cerone, ‘Mme Tee Sn eee Bh Nev Reed Higa Tae ove of
+Fregn ao pntiog oo inte Unie Sas allo aanon y y el ipie wl a ‘Ss nant eno me orn tre tac Mel Sy eof Foreign Dara eof cients el Enger etn Oak Re eis Se
Trang 5Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force charges tha U.S workers ae aersely affect by the ey of foreign scientists an engineers no reportedly accep lower wags than U.S citizens would accept in oder eater of emit the Linked Stats" These arguments occur inthe context of «debate on prsstions url potential inbulancss in cena seirfc anf ictal disciplines"The US Barc of Lahr Saistios repos tht ten the years 2008 al 2016, cmployren in scknge and engineting el wil increase 9 faster rate than other profesional eos, The grout rte wil sul, prin, From aro ia mahematis ad computer relate ecapalons,”
‘Much tenon i the sion comity has facased om the HB temporary amiss Program, pot ofthe Nations Seience Fouastion (NSF) dvi the late 1980 claiming & Tatlonwide shortage of sietsts and engineers ny ave contibuted to the decision by Congiss to expan the skill preference ssstem ead a the Insnigration Ac of 199)" The 1990 legislation more than doubled employment-based inuigration inching sccm ane
‘nginses ering under the H-IB visa category The at ase the sutedca nits or clings ‘on permanent employment-based adinissons, fom 4.000 o L900 annually i ation, the legislation ascribed high priory tothe ea of selected skilled and profesional workers and
simplified adnissions procedures for foreign nationals secking to emmporaniy work, si conduct snes inthe Unite Stats
‘On October 17, 2000, the Antica Competitiveness i the Twenly-Fts Centary Act of 2000 ‘vas sane int aw (PL 106-313), sins changing the 1-10 posta snd the
enploymvnt.basalnmisraio proaram, The ksishton ase the aia amber of HIB visas 1 195.00 for FY 204 FY2O2 an PY 200% ad tamed to 65,00 in FY, exe ‘om he new eiig all 1B nonimmigrant ho are employed by insutions of higher “alisdioD ad nonprofit or governmental sea rganieatons The la authorized alitonat
rig Werorefor tented Sater Repo othe Cares Onc ny Resch
Sate kay an sopra cmon obasn a }CUB von nth cr aroun pe
cư nace CRS Reet ROSS migration Eye foes nun rena Spe
Trang 6ig Soy ond Ennorng Pesns nUS Istiution nthe Laon Force HIB visas for FY1990 woffa she visas inaertendy apposed for the yer tha exceaded the cap In aon the law inczcased the fees employers pai foreach petition for nonimmigrant Sturus—fFom $508 to $1.00 pe petition." or the development of private public partnerships in K-12 edacaton, the expansion of computer A pti of he fes were made available othe NSF
Science engineering, and mathemati scholars, ad th esthlshmsent of demonstration roerame or project tha provide tcc skills aig for U.S, workers, both employed a Unemployed.”
Siebaf in law on Docenbgr 8 2064 PL 1OS-117, The Consolidated Appropsinons Act, 2005, Readbadzad HIB funding," The fe employers pay for each petition vas asl Fo SI HH0 tà S110 per peiton, Foreuphoyers wil ss than 25 ull tinw equivalent employes, the ee wk Sefar $750 per potion Ao, the gldfonerealal an aHifiaml 20100 E TP vkax ox FY 2005 for thse wo Mad cared a mastrs degre o highs: Fon a US aston of higher education, The ses common as heen vide over props to ingesesteete maton bits ‘on people with vjeife aidteerieal skis Aten ose upon the Pane Between the nesdk for a highly skilled siemife and echnical werkores ad the sd! opt and ens nh opportunities, salaries and working conditions of US, seeafe personne wil Comings to he debated "This paper adareses these tues
Foreign Students in U.S Institutions
The mah o non U S, c2 enrolling in U.S colleges and universities slows fling the September 1” terrorist aachs "The slowing of enrollments his been Intel 1o, on siher Things, dhe giening of US, visa pies and ineteased pls] competition far grades the sess ere Cnc Acrnay Oc: Cadre 18 VF eee Werf Ned a
"St ln Stemi Ree eer ni 8
leper Ean Ma 9
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Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force ‘siete and echnical diseiplines fom counties such sẽ Chia, Inia, ad Cana * However 3 2109 report of the lta of Intemational Education reveal that forthe avademse yest 2008 309 the mnber of foreign-born students (ial disciplines incase by 8.0% the lagest, Fecorded incase sine 1080 The growth of students trom China conisibuted significant the increase In ation, new freien ste eollnent fr 2008 2009 ineeased by apqwoximately 16.0% fromthe previos academic year The nes envollments aes 0 result tran haih meRlimenfffufs by Ù.S iefuioreanl se improved visa processing fo stunts" Te ineratonal sere eollment changes ate fefeced sifeverly by ypes of
insitions, vel of study, an selves
‘There ate nacsble ferences hy word region of origin nthe Flow of frei stents the Unite States India's stunts were 15.4% of te population for acadene year 2008-2009 The ‘ther cousics of eign of foreign staat alg within the op ten were China (14.6%), South Korea (11.29), Cana (4.4%) Japan 44%), Taiwan (4.2%), Mesico (22), Turkey (20%),
‘Vietnam, (19%), and Sal Arabia (196) Ta top te Hels of study fr all forsiga sudents swore: busines atid management (20.85), cnginecing (17.7%), physical adie senses 9.2%) Social sciences (854), muteraties Fine an apie as (3.2%), nese English ledge (4.29%), humanities (2.9), edscation and computer eines (84%) healt prfesions (5.2%)
(2.74), and agriclre (1380)
Participation Rates in Science and Engineering
[NSF dats reveal hat in 206, the foreign student population eared proximately 6.2% ofthe No degrees in the sciences ap approximately 636% ofthe detorate depres i engineeũng ` In 2006, Freign students om temporary resident visas” carnal 32.0% ofthe > Sc for angle Mio, Dy “Wid wc 1S, Opp, He Links Api sre 8p ta re, Nr nu rao
‘ned Stes Rete te Top ja Stans?” Choe an ml 964, pp 19-24
2N opm Sees
‘Ghose Acomutliy Of, Higher Edel ted Siac a Oar Comrie Stet or aig
Trang 8Foreign Scene ond ngacying Presect nS Iattutions an the Labor Force “dctorates inthe seiences, and 58.6% ofthe doctorates in engineering.” (Se Figure 1.) The Participation rates in 2003 were 30.8% and 58.4%, respectively In2006, permanent resident
tus” students carmed 4.25 ofthe doctorates in both he scienes and engincerin, ash ‘change from the 205 levels of 3.8% in the seencesand-4.4% in engineering Trend data for Science and engineering depres for the years 1996-2008 reveal that ofthe non-US etizen
population, temporary naiden tats stunts consistently have earned the majority of the ‘doctorate dynes (See Table 1 and Table 2.)
Figure I Doctorate Degrees: U.S.and Non-US Citizens, 2006
Séence tngneeing 0500 mm Temanet ớt \ on tes, imesiee —\an J
‘Source Sens an nghewig Dera Avar 006 Table
Note: A aon 186 depres th src an 4 dares in engrng ere tarde indie ‘tenn aon
Disaggregated data for the subfields of science provide a detailed picture of dogroe recon by US etizeaship and non-U.S citizenship stats In 200, foreign students (temporary and Permanent resident status) were avarded 47.9% ofthe doctorates inthe physical sciences, an Increase from the 46.2% avarded in 2008 n mathemati, 55.3% ofthe doctorates were awarded to foreign students in 2006, a light increase from te 551% award in 2008 Fr the computer sciences, 61.3 were award to foreign stadens, an increase above the 2008 level of $8 ‘The eanh, atmospheric, and occan sciences and the agrcutural and biological sciences awarded 354% and 3.6 of the dere respectively to foregn-botn students in 2006, compared 1 the 2005 fvels of 38.7% and 32.1%, Inthe socal siences and paycholog, 24,65 ofthe doctorates ‘were awarded to foreign tude in 2006, almost evel withthe 24.5% avardein 2008.” lasses he vice shin pron nthe Une Ses sora isan pos [Teena een senor apc opt
Trang 9Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force ‘Table | Science Doctorates: Non-US Citizens—Temporary and Permanent Residents asa Percentage of Tatal Awards, 1997-2006
TT sa ae ae hề vs sos mm 0 +“ os ÁP 1280 sp sẽ 2
‘Table 2 Engineering Doctorates: Non-U.S, Ctizens—Temporary and Permanent Residents asa Percentage of Total Awards, 1997-2006
Tout Temporary At af Yora "As ot Tonal
we sont san = s8 a
1 so Ist a wo ta
ae) asa 52 26 se
The NSP provid spociic data on the county f rin of frsig- horn selene an engineering doctorate swans Data foe 2006 reveal thao the armed daterate dear hors (on-US ‘Gtizene), 345% wete fon China, 1.0% were from Ing, 34 were fom Taiwan, 28% fom ‘Canad, 3.45 from Aldea, 288 fom Turkes, 1.7% tom Japan, sid 145 fom German.” Sve
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Foreign Scene ond ngacying Presect nS Iattutions an the Labor Force Figure 2 fr adtionaldisagerepatd data on doctorate degrees awarded 10 non-US
‘country of ein
ens by Figure 2 Non-US Citizens Awarded Doctorates in Science and Engineering by ‘Country or Citizenship, 2006 loop 170.8% Sah nia 5351428 ne 200 33.54 — och ica 52% — Mia 348 [_— acts 2146 Wess, te (Lom 8s hhổn((99108% ` Sourea Sane an Enghowing Darra Ava 806 Ti ị
Note: Atal o 5 dares ware warded trend csers fom curr rin,
Support of Foreign Students in Graduate School
‘Certain restitons have boon placed on foreign students with temporary resident student status who ate engl in graduate programs in U.S isto Foreig graduate students ae requzed to be fulltime studems, and are proibited, duc to visa restrtions, fom seeking employment." While they are prohibited also from obtaining mest fellowships, waineshipso federally uaranee lous, they are able to be employed as research assistants or teaching assistants on Federally fund research projects
Foreign and US science and engineringsraduate students receive Financial support from many resources personal university (primarily through teaching sistantships, research asistgtshipstrainesships ellowships/iseration grants)” foreign government employer, and
‘other Many foreign students receive suppor fom their home cours, though its generally Tinted tothe ist yea of sty." For the continuing years, the university wsbaly provides
soorcesof sige muy oes inte tne Seem E80 nT mee NSE
Enoear “Us Sls Corte rand Sen Seas fete Hew Pe, Sepa
Trang 11Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force support pst inthe form of research asistanships ot teaching asistatships, While temporary resident foreign student ae ineligible force edt she university support povided to them trough research aestantships and teaching assistantship often rvs fom forall Funded esearch grunts avardlt9 te ho indiMnion
“The 2007 report Doctorate Reipiens fom United Sates Universities: Summary Report 2006 reveals hit institutions of higher education provide a siniicam amour of supper pray through racing asistntsips esac ansistatshipstsincesbis, aa fllowshpldsseation fas, foreign tdents on Temporary and permanent tesiden sisas "I al Gok greater peentage of non-US etizen daca repens revive Final assisance fom universities Than do US doctoral repent (Soe Table 3 for pimry scutes of inane appar) “lsagetegaton of the daa by race/ethnicity revel that 40 6% of Native Americar sk [Natives doctoral students reloved on thsi owa rsouaces to finance thir sade suis, Followed hy blacks at 38.8%, whites, a 30.1%, Hispanics at 0.7%, and Asians, at 16%.”
‘Table 3 Primary Sources of Financial Support for Doctorate Recipients, 2006 Permanent Temporary Primary Source of Support Toul —US.Ciman Perma Vier
eens * Po ° tr os
—————
Source: Deze cpl Fam Unt Stes Uni: Surry Repar 2006 8-2
Notes nud nl dort rein whe reported privy erat of por
In thophysical scenes, which include mathematics computer an information seenees, univers provided the prim suppor for SL of temporary reside stents, 73.1% for Permanent resents, and 58.8% for US izes,” In ginseng L.A oftemporary sesient
‘sated ate pce Popa hve ape ian spss nd saan wth rede
isnot extn of fnanca suppn Used hy sic nl eincring page tan _
Trang 12Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force stunts received pinay Finacial support fom universe, a8 dil 63.9% of permanent nsidet ‘Nuon and 42.8% of US ciizea doctoral talents Exch i hose ciples where torien Stilents donot parcpate with any degree of frequency (h education apd the socal scenes, larger petcontagesof foreign doctoral students on temporary atl permet resident visas ‘hand her primary nancial assis ravers ha ed comparable U.S, sds In the fe of easton, 43.6% of temporary residem dptoral stents reve thei Primary
Financial appt from universes for permanent eid tae, 413%, aa foe US eins 134, Inthe social sence, universities povided nana supp 10 34.0% of femperay neldew dactoral sudcne 439% for permanent resides, and 38.7% for U.S, citizens
Perceived Benefits and Problems
“There are divergent views in the scenic and academic community about the ffs of a ‘measurable foreign student presence in graduate science ad engineering programs Some argue that US universities heeft froma lage foreign elizencnmlmen by hein to mes the oe ‘ofthe university and for those stent ho remain nthe United Stats, the mien S onomy
Fevviga sadn uaa de dint pes of astral costs and sais as 13 erect frig side emai in the ned Sat, pray creating Dc aun ‘fakilsd workersin he be fre, Second feign stants eileen xo ae npn prt ofthe workewe a hose sions, pricy a large esac ‘nary een stents pay ion and hme esses ay ean pian sec incom for clustonal ists
“The noticeable participation of Frei steno prada programs hs generate exitica respuases by many in the minriy community Blacks, Hispanics, al Native Ameria Tistoscaly underrepresented inthe science and engineerin Tek, coger tha csp exists in the univers seine community with respect foreign sudens I is charged tha dere ince
Ase a Enna 3 Work anion Raj, 108 Cag, ea, May, AT, Wen
Trang 13Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force xual access for U.S minorities to graduate edeation, exept of scholarships, promotion 0 higher ranks recip of research funds, acces outstanding rscrch collaborators, an ‘oattorship of papers and thse ols for scenic pubbcations Fonk L, Mocs frmir professor, Univers of Tens, charged ha colleges and universities employ exclasionary
‘nechanisns Rather dha soppoating minority graduate toes, instinnons proved the Iajority oftheir esonces to deparitenl Bạt ave ated fein silent estima hele the 3tbeonrnfte on Inamiraton sind Claims, Mores tte that
“Te gers immigration pticy sop! wih she moh ber and dispopartont ed rc etry ot of US tapas uns fie eal sk oer al Aso ‘cea sans, Ts har etd stan that plat ecco wl Reng of the ain opeparctorer competing ana ished sly ‘scholar den cust ad fue U.S economy
noth erictn note by some at feign shen eacking assistants do ot commie ‘wel with American students, Langage ssa arias hen a perennl problem for sone Foroign stdens" There ate charges that the "acceso English ofthe foreign teaching sistant aes the earning process A laze number of graduate school equite Foreign teaching
Assistants to demonseae their prociency in English, hat problems emai Soveral states have assed esition sting Enlislaguage andra Hor fig tens Serving as each
Some academics and scent donot view seietife migration asa problem, but as ant gain Those proeinents hive tht the ntermationl flow of know and personnel has embed the USS ceunomy to remain the cuting-ege of scence and technolney A 2008 repert of he Ngtoml Acxleniet lates hat:
“Tae pariipton of rational pradute stds pastoral eboss sa ipetat arto therscrch clr the United Sa nee fel they make ap mae fan Fat te popeltion of gaat stants and posteseal schiars fh presence ee Sabana ial, porn ecard cab ties ead, ss sod fea labels wold eva parca savers a ie we
{ning ean np Seaking The Chote Aighr Baas Du PAD
“hư ito of es rid Ste 968
Trang 14Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force
Foreign Scientists and Engineers in the U.S Labor Force
‘Putin the 1980s, the umber of immigrant seintsts and enginseing emtesing dhe United Sates ‘emuinel somewhat stable (12,000), repstering nly slight annual increases, In 1992, here was & Inarke increase in the admissions of selensts and engnectng lle primarily by the changes inthe Immigration Act of 1990 that alowed sienticam ineteass in employ ment ased quotas of HLIB visas By 1093, the numberof sciemiss and enginces on permaent visas increase to 23594 The marhers were increase further av are the Chinese Silents Protection Act ‘1992 The proponton of foreign boa scientists an enginecr nthe U.S, abo force reaches con in 2000, revealing high Ives of etry hy boldex of permanent ard emporaty Wsa6 ‘luring the 1990s, The snow f peranens visas the pst ow yeas has Deen impacted by 1uminsrative ehanges athe US Citizenship aa anigration Services (USCIS), charges in
inwigration legislation an any inpaet of September 11”
Foreign siensss and engineers As previously stated, rent leystation has increased the annual qa forthe H-1B program in on temporary work vsas have generate considerable wseusson ‘which freign-hoe workers etn obtain vias ta workin an cceupation for up ta sx yeas The H 1 progran, generally is though of a5 am esr for ecology Workers, but is Ue also to ire ‘othe shill workers A repor ofthe NSF nots that “An H-1B visa is srmetines used lla eslion nt considered temporary, fora company may view en H-IB visa asthe ony way 0
Employ workers waiting long pesos for a permarkem visa" Dalaon eset eccuptions for "ích companies Have been piven persion Tà ise H-IB visu Worker ne contin in Table
‘Table 4.H-1B Petitions Approved by Major Occupation Group, FiscalYear 2008,
“— Raed Onions Dil6 ee
trợneesg, Arch and Sanyng 200s too
Ue Sire rt So Set igo 2
Paha pt Py Senne se au
6282 12000
Nan Sns Fate, Mor Dien Adon of ay
Geo te Eins Cerny Og ke En
Trang 15Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force Teen Ocagaton Wario 18 Foe Yor 260 My 0908 I 7e MOIE “Dang acs Yes" 23a pproved 176052418 atone sabre typos on ett aan wera Th ear ‘appro ptr ace rnb of nial eB arin bene ore han one US epoer ‘aad by sempre rach orpranonee govern ran mạn rể pA
Some argue that the ita of immigrant scientists and engncers has resulted in depressed job ‘oppotuntcs lowered wages, and declining working conltions for U.S seine personel White many businesses, especially high ch companies, have recaly downsized the feral overnient issue thoysands of H-ID vses fo foreign workers, Thre ate tose in the seine fa tectnical comment who contend that a ewer tellance a H- vka workers oil igh lech positions has Weakened optics fr the U.S wvkForce Many US, workers ae that a nanber of the available prstons are Being filed by foreign labor hie ¢ ker salaries > ‘Thwse ciel ofthe influx of inns sefentins have advocated placing esttons on the hiring of Foreign skilled employees in ation Yo enforeing the existing laws designed ta protet ‘workers Those in suppom ofthe H-1 pram muntsin tht thre 90 “lear evidence’ tat foreign workers displace U.S workers incompursbl positions aa that tis aocessary to hire forsian worker fill nse postions, even ding pero o slow economic growth." A September 2006 report of the Govern Aceuntailiy Olfice (GAO), H-1B Vea Program: More Oversight by Labor Cox Improve Compliance with Program Requires sates ta
Lato seve of mplyer’ HB appicons sini by lot sniping oon and bows Inaccuacies, ut 86 found cs ht conse Hen al vis imaccracies Later’ Wage and Flour Dien CWUD) enforces 1B program mranbenenshjlavedgaing =ngiiemalsagime TP cngiorsanlreernlyEere andor inti pes pogam ltrs Fo Ese yet 200 gh tien, Year 2008, complains ee vias need but canes the program, such 2 ‘Emery increatesinvsscas ay haber afte However, USC Is desta Feel mechanism 0 rept sh information Lar, an erent av ples WHI frm sing this rermaton to mitt an msetgaton oan employer Isto pss hares fed by US marker lleging hey were nei were Upc soa Senko be hired ined, tt aud sy ems ot ses
Soe example Gambon Sea,“ High ech Wares Da Quan he Waring Pose May
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Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force ‘The maturing of the computer industry has wroup its own set of problems nlaive 1o
employment of foreign scents and engineers.” Tete are some who contd at the sary of the foreign-bor computer professionals working inthe United Sates fer thân that of tei US, counterparts who ae the same age and ection level hes charg hu the hiring of H 1 workers “unsermines the status and bargaining position of U.S workers! The Department ‘of Labor (DOL) his seh to elo the eine Pies o temporary employment of onimnigralfondlen workers ker HB vss, ao penalize thse emplayers wh te Fa
to bein vation
‘Monin the scientific community maintain tha aoe compete with counties tha sre rapidly expanding tei ienifc amlIhalugiedl capabiiies, the Unie Stes nae ing in thane whose sll will ene society a wil enable us Wo compet inthe n26-technology base gloat economy Individuals sporting this postion do beieve that he conditions under
‘which frei alent eters U.S ollges and universes a he bor fore should be monitored tne caretlly Aad there afe ầexe conn ha the wnderlying eancern of Foeipn stents in grodute science and enginecring programs isnt necessarily that here are too many fore oan stents, hut dat thee are not enough raise horn stuns entering the scene ad technical seiphines”
In esting before de Howse Subcommitee on 21* Century Competiivenes nd Selet [ihcation, C.D, Mots, te, Presiden, Univesity of Maryland, College Park stated a
‘er nations ae cope ftv fr [ese students and schon cae sd ‘iginceing| ant il gn technologie! alvinces, wekeuing eae econ and tectolotel postion and nữ <owlg, New vữghdax inthe fetcly compete ‘vironment of higher ebwaton merge daily China bass goal gral crease over nn apn alo plan oud anes Thengh ot of he ls pune ‘ry ine US any ae deernod to chang this blac andthe py wl To
* See for example a, avi ML The mon Tosi ad anton own Prion od Fv ernie es Wang, 300,
soc eanple Nol Soest
Trang 17Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force remain compet in he coming das, we mae cnt to embra the ms capele
Policy Implications
The date onthe presence of foreign sven in grat sien an engineering gen the workforce intesied followin the termristatachs of September I, 201 it en reper ha freon tades i the United Slates ape encore" propessivey inhospitable envionment" A ge 2006 report of the Assoeition of Inertial Ecatons are
KResioring U.S Competsenese for fierasonel Stade and Scholar, states hat (Foe the Sst the Usted States sms to he Tosi ts status a the destiaton af choice for
international sted”
‘Concems have Been expres aout cerainfrcga students eeciving education and taining a Sensiive ares.” There his been increased discussion about the acvess of foreign seeaists and s9gineer to research and development (RAD) feted 0 chessical and biological weapons Also theres stents Fon coats tht sponsor
lcroriam’” Te academic community is conecsno tha the more singer equiements of orsign students may ave a connie impact om enllments in alles and universes
nt feria Snds
taal Ee Do Fria Reto 80) A
Se fr example neon Ae, Tocgn Stet Lad “Ta Wondng Ris Al." The are 3 sp Al Br, es “Pow esate i acon 54 Sapembar 300 Ral Cpe He and Tm str "Dan
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Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force ‘Oretscomtend hat a posh reduction inthe invitation of frei siesists may ae negatively on the compattivenss of U.S industry and compromise commitments made i long Sanding international cooperative aeteeents
‘The issue of tacking fveignstudens attending US instutons has neste parila debate inthe academe ant sciomifie community following the September September 11" the tlegal lsmration Reform aed [maniaant Responsibility Act (PL, M208) 11” terest asks.” Poe
sutra the Stlnt an Exchange Visa Progran'CooriastedIncragency Partacrship
RepatingInvermtioa Shaken’ ¢SEVP/CIPRIS).” This eectone intormaton porting stem f0 tnedjng forcian stents an rexenrhers wast pace the exsing paper basal forma The legislation quired colleges atl uiversitis to monitor aa compile dt 0 og sade sstending ther rexsive stitutions a such areas a date of enallnendtepovting Held of study, ‘reits eamed, apd souree of financial suppoe for he stadeal” The information was 0 be Provided o the INS bythe eoleges and universes However the system was never filly
Tinplementc, rimarly hcauseinatintions desert as Bing tw coll a "unnecessary horn on colleges and univers,” and an uncasonahle hari o foreign stadents,
The USA Patriot Act (PL 107-56) andthe Enbanced Border Secu a Visa Entry Reform Act (UL 107-173) vie and eafance the press for colccling and monitoring data on foreign Students and resarhers in U.S tstttons "In response to the lesson the INS develop the Stadent stad Exchange Visor Inixmmton Sssemy SEVIS), SEVIS, 2 wehsbased system, as
“desig to main eurent sforation on Topeigm stadents te te they ative inthe Unite Stats, per atthe stain praktrmned exchange a exchange visitor i exe 10 Prouram, and properly sain hoe visa sas cri tesa.” Congeess cee the then [NS to ave the racking syst in operation by Fanuy 3, 2003 The dealine for
inplementtion of SEVIS was extended to February 15,2003.” However, SEVIS experience
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Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force considerable problems and ereatal excessive delays in processing visa appcatons "The move Figoros sreening of vse applicans was one facorcontibuting tothe delays." The existing problems with SEVIS are deserbed as Being primarily dese relating lo tehnis waters a Personne oss Cras there i propa npn econ generation system, SLVES {that wld expan the cpabites of he cutret racking spsiem a acess ay reported
echnical dificnis ot see ss,
‘On September 13,2005, the House Subvomnitee on National scart, Emerging Thess, ae Inveratonal Relations eld hearing lo examine the proces uti pace ta coms the paps am vlpeahiiiesn the visa process” Aeon wes dceted athe mechan thats sce To stength the vss proces a a aiteronst ool while uglfaheouslg actating legitimate sel hy tovign tudes, scien, researcher, a thers i the United Stats Witacsses ested tht consul workloads had inressc significantly yo the via-procssing
office conti to ack stetepe direction adogute resources, and tang In addition, reliable ‘ta were no ely avilable aero and umong departincats and agencies, o determine Sceurity sri vsa fd reste iss aul overall creased visa wales Witnesses atl that Isause vise policies ad requirements are onging a ea change quickly, clea procs on ‘st istance and monitoring operations workiide ste necessary to eae st visas ae juiced inconsistent munher at each ie ong ba,
‘The Government Aecovnabiicy Ofise (GAO) has elena several septs detain the lu andthe improvement ve Dee rs nthe vss poessing, Other reports of the GAO ASessel 5E do pruges in implementing resonmuted ehangs in sa operations" An April
‘hii sus essen intra eh tems IDEAS we hncetcaSopembe 1 SiS nd
My, Casa Nah,
ao if rer gro AOS 7 2p Pr Mee
‘Boner Sear Shon Vi Proce Med Keio preven Sing a formation Shai
Trang 20Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force 4, 2008 repot—Borer Seow Reaseasnens of Consular Regulements Could Help Adeans su Delos state tat while step have ben aken to improve the visa appiaton sem,
clonal ses roquied immediate attention." The recommendations inluded cla(ying vss Policies and proclirs in nro facbtate th implementation and ensuing that consular Unicers have acess othe need oo prove mabional seco al pate lesiinae travel ‘Comprehensive immigration seform legislation was dshatd an unde coeideraion Ising o he {IU Congress Those alters at rtorm fai ant comprchensive elon ing the
legislation ws no revistat Comprehensive feet] immigration rtormt has been reintroduce in the IIT” Congres, H.R 432}, Conpehemsive Innigtation Reta for Americas Seer and Prospaity Ac, wold among oer tings, exer spaced catepaies of US educated insta trom employment-based iraigeaton ts The ill Would abo sine H-1B visa ‘iaployer appeation requirements by lengthening U.S worker dsplaccicat protection and Probie employer poston snnouscements that speci posts oly t,o ha ines
Priory to LTD migrants, Inacio, ills have eon nod nthe {11 Congres tat fe direct at atacting frei sade nth scientific and total cseipines while ais the tres of American scientists" HR, 1736 Intermaional Science ard
Technolgy Cooperation Act, wu, among oer tings, ables the watogs issues hat pee the abi of US seiensts and engineers to collaborate with fncign countespats, 8.887, HỆ |, ahd Lol Wis Reform) Act, would mend H-1B exployerruirements by liiting the nude of HLIB and employees that an employer of 50 or more workers inthe United States muy hire The bill woul also dirt she DOL to condi annual suits of fsinescs With large rims of HEIR workers, H.R 191, Stopping ruiad in America Phi rom Leaving the Economy Act
{STAPLE), would isct omic limtutons on immigrants who hav been aad a dctrate den the scenic dips fom U.S tition and wh have an offer of employment Frama U.S employer in degtee tela fel In aditon, the bill Would provide HIB visa
rnercalinststions on inn granis wha Rave earned a dcorate io a scene spline aa ‘vith respest to petitioning emplaer,regures Uist eicaon a condion of employment
sa sri GN (6a: DE, ph, nny ee ose
ac ry AaB a ina apn ern oO
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Fog Sens ond Bxgaring Presto nS Istitutons and he Labor Force Author Contact Information
Cisne M, Mantis Silat in Seen an Teshnooey Policy ——