Taiwan Presidents’ U.S. Transit Visits

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Updated January 3, 2025

Taiwan Presidents’ U.S. Transit Visits

Introduction

Taiwan Presidents' U.S. Transit Visits

Introduction

Since 1994, five sitting presidents of Taiwanself-governing Taiwan, which also calls itself the Republic of China (ROC), have undertaken a combined 3030 trips abroad that have included transit stops in the United States. U.S. policy since 1995 has been to bar Taiwan presidents from making non-transit visits to the United States. The U.S. government presents this policy as being consistent with the unofficial nature of U.S.-Taiwan relations. (See also CRS In Focus IF10275, Taiwan: Background and U.S. Relations.)

Stakeholders in the U.S. government, Taiwan, and the People’s Republic of China (PRC) view Taiwan presidents’ U.S. transit visits differently. The U.S. executive branch has described them as private, unofficial, and consistent with the U.S. one-China policy. Some Members of Congress have criticized U.S. protocol for such transits as excessively restrictive. (In the 118^th Congress, S. 477 and H.Con.Res. 71 would have supported full U.S. visits for Taiwan presidents.) Taiwan governments have generally sought opportunities for presidential transit visits, portraying U.S. permission for such stops as affirmation of U.S. support. The PRC government, which claims sovereignty over Taiwan, has long criticized Taiwan presidents’ U.S. transit visits as inconsistent with U.S. commitments to maintain only unofficial relations with Taiwan.

Evolution of U.S. Policy on Transits

Unofficial Relations U.S.-Taiwan relations have been unofficial since January 1, 1979, when the United States terminated diplomatic relations with self-ruled Taiwan, which calls itself the Republic of China (ROC), in order to establish diplomatic relations with the PRC. In joint communiqués with the PRC in 1978 and 1982, the United States stated that it would “maintain cultural, commercial, and other unofficial relations with the people of Taiwan” (emphasis by CRS).

The 1979 Taiwan Relations Act (TRA; P.L. 96-8; 22 U.S.C. §3301 et seq.) provides the legal basis for unofficial U.S. relations with Taiwan. It refers to “[t]he President having terminated governmental relations between the United States and the governing authorities on Taiwan recognized by the United States as the Republic of China prior to January 1, 1979.” The TRA goes on to state that it is U.S. policy “to preserve and promote extensive, close, and friendly commercial, cultural, and other relations” with “the people on Taiwan.” The U.S. government presents the TRA and the U.S.-PRC communiqués, plus “Six Assurances” conveyed to Taiwan in 1982, as guiding the U.S. one-China policy. (See CRS In Focus IF12503, Taiwan: The Origins of the U.S. One-China Policy, and CRS In Focus IF11665, President Reagan’s Six Assurances to Taiwan.)

1994 Taiwan Policy Review For the first 15 years after terminating diplomatic relations with Taiwan, the U.S. executive branch interpreted unofficial relations with Taiwan as precluding visits of any sort by Taiwan presidents. In May 1994, the Clinton Administration for the first time permitted a Taiwan president to transit through the United States, allowing Taiwan’s then-President Lee Teng-hui to stop to refuel his plane in Hawaii on his way to Central America, but not to spend the night. Apparentlyhas been to permit the most senior Taiwan officials to stop over in the United States only while en route to other locations. Taiwan authorities have portrayed U.S. permission for such stopovers as affirmation of U.S. support for Taiwan, an East Asian democracy with which the United States has maintained close unofficial ties since 1979. The People's Republic of China (PRC, or China), which claims sovereignty over Taiwan but has never controlled it, asserts that such stopovers are inconsistent with U.S. commitments to maintain only unofficial relations with Taiwan.

In July 2025, a spokesperson for the Department of State maintained that "transits by high-level Taiwan officials, including presidents, are fully consistent with [U.S.] longstanding policy and practice." Other senior Taiwan officials restricted to transit visits have included Taiwan's vice president and premier. When Taiwan's then-President Tsai Ing-wen transited in 2023, a White House official stated that "[t]ransits are not visits," that they are "private, and they're unofficial," and that they are "consistent with [the United States'] longstanding, unofficial relationship with Taiwan." Department of State officials echoed those statements. One added, "Such transits are undertaken out of consideration for the safety, comfort, convenience, and dignity of the traveler." Taiwan presidents routinely meet with Members of Congress during their U.S. stopovers. Some Members have proposed allowing Taiwan presidents to visit the United States in other specific circumstances (see, e.g., the 118^th Congress's S. 477 and H.Con.Res. 71.)

Evolution of U.S. Policy

Unofficial Relations

U.S.-Taiwan relations have been unofficial since January 1, 1979, when the United States broke diplomatic ties with the ROC to establish diplomatic relations with the PRC. In 1978 and 1982 U.S.-PRC joint communiqués, the United States stated that it would "maintain cultural, commercial, and other unofficial relations with the people of Taiwan" (emphasis added). The 1979 Taiwan Relations Act (P.L. 96-8; 22 U.S.C. §3301 et seq.) provides the legal basis for unofficial U.S. relations. (See CRS In Focus IF10275, Taiwan: Background and U.S. Relations.)

1994 Taiwan Policy Review

After U.S. derecognition of the ROC, the U.S. executive branch initially interpreted unofficial relations with Taiwan as precluding any presence by Taiwan presidents on U.S. soil. In May 1994, the Clinton Administration adjusted that policy to allow then-Taiwan President Lee Teng-hui to refuel his plane in Hawaii on his way to Central America but not to spend the night. Reportedly piqued by U.S. restrictions, Lee declined to leave hishis plane. Some Members of Congress saw the Administration’s treatment of Lee as insufficiently respectful. At a hearing of the Senate Foreign Relations Committee immediately after the transit, then-Senator Frank H. Murkowski observed's treatment of Lee as disrespectful. A Senator observed that the U.S. government allowed figures such as Palestinian Liberation Organization Chairman Yasser Arafat and Tibet’'s exiled spiritual leader, the 14^th Dalai Lama, to visit the United States. The American public might not understand,question, Senator Frank H. Murkowski suggested, “"why our friends such as the Taiwanese are kept so far out and others without formal diplomatic relations with the United States can come to Washington.”

In September 1994, the Clinton Administration completed a review of U.S. Taiwan policy. Subsequently-declassified briefing papers for Under Secretary of State Peter Tarnoff’s travel to the PRC that month state that the Administration would now “[p]ermit normal transits of the U.S., but no visits or public activities, for Taiwan’s top leadership,” while continuing to “[f]orbid visits, as opposed to transits, by Taiwan’s top leadership.” On September 27, 1994, Assistant Secretary of State for East Asian and Pacific Affairs Winston Lord presented the outcome of the Taiwan Policy Review to Congress. He stated that President Bill Clinton “has decided to enhance our unofficial ties with Taiwan.” Under questioning from Senators, one of whom expressed “dismay” over the conditions of President Lee’s transit, Lord said “under [DC]." In September 1994, then-Assistant Secretary of State for East Asian and Pacific Affairs Winston Lord testified before Congress about a Clinton Administration Taiwan policy review. Under questioning from Senators, Lord stated, [U]nder our new policy, we will permit overnight visits. We will permit anything consistent with security and comfort and convenience so long as it’s a transit visit.” Lord added that “the Administration strongly opposes congressional attempts to legislate visits by top leaders of the ‘Republic of China’ to the U.S.”'s a transit visit." The next month, Congress passed the Immigration and Nationality Technical Corrections Act of 1994 (P.L. 103-416). Section 221 of the act statesdirects that whenever a Taiwan presidents or high-level Taiwan officials apply for visaspresident or "any other high-level official of Taiwan" applies to visit the United States for discussions with federal or state officials, they “shall be admitted.”

Taiwan President’s 1995 Private U.S. Visit concerning certain subjects, the official "shall be admitted." In the 119^th Congress, Section 206 of the Department of State Policy Provisions Act (H.R. 5300) would direct that no funds made available by the act be used in contravention of that provision of P.L. 103-416.

President Lee's 1995 Private U.S. Visit

In 1995, President Lee sought to make a private visit to his alma mater, Cornell University. The Clinton Administration initially denied the request and assured the PRC that no such visit would take place. President Clinton pivoted to

Taiwan Presidents’ U.S. Transit Visits

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approvingapprove the visit after the 104^th Congress passed H.Con.Res. 53, which stated the sense of Congress "that the President should promptly indicate that the United States will welcome a private visit by President Lee Teng-hui to his alma mater.", “Expressing the sense of the Congress regarding a private visit by President Lee Teng-hui of the Republic of China on Taiwan to the United States.” (The vote was 396-0 in the House, and 97-1 in the Senate.) Lee visited Cornell in June 1995 and addressed his fellow alumni. In response, the PRC carried out missile launches, live-fire exercises, a naval exercise, and an amphibious landing exercise over several months in 1995. In March 1996, the PRC undertook more missile launches anddelivered a public address celebrating the achievements of "the Republic of China on Taiwan." In response, the PRC carried out missile launches and major military exercises. In 1996, the PRC launched more missiles and staged a joint amphibious landing exercise in an apparent attempt to drive down support for Lee ahead of Taiwan’'s first direct presidential election, which Lee won. The United States responded by dispatching two aircraft carrier battle groups to the area. The events are now known as the third Taiwan Strait Crisis, following earlier crises in 1954 and 1958.

Transits Since 1994 After 1995 Since President Lee’'s 1995 private visit to Cornell remains the sole non- transit visit to the United States by a Taiwan president in the era of unofficial relations., the U.S. government has confined all Taiwan presidents routinely transitto transits through the United States on visitsen route to and from other destinations (i.e., the dwindling number of countries that maintain diplomatic relations with Taiwan). (Of. (Seven of Taiwan’s remaining 12 diplomatic partners's 12 remaining diplomatic partners, seven are in Latin America and the Caribbean. Three, three are in the Pacific, and one, —the Holy See,—is in Europe. See CRS In Focus IF12646, Taiwan and the International Community.) Pursuant to the Taiwan Relations Act, the United States conducts unofficial relations with Taiwan through the in Europe.)

The main office of the American Institute in Taiwan (AIT), a private corporation that operates under a contract with the U.S. Department of State. AIT's Taipei Main Office issues transit visas for Taiwan presidents and their delegations. AIT's Washington [DC] Headquarters, the ostensibly private entity through which the United States conducts unofficial relations with Taiwan, issues visas for Taiwan presidents and their delegations transiting through the United States. AIT’s Washington, DC-area headquarters processes their requests for port courtesies, including expedited processing and clearance at U.S. ports of entry and security arrangements. U.S. government practice is not to make executive branch officials available for meetings with transiting Taiwan presidents. Members of Congress and state and local officials often do meet with Taiwan presidents on U.S. transit stops. Transiting Taiwan presidents also commonly attend banquets with Taiwan expatriates. The AIT chairperson usually accompanies the Taiwan president in the United States. Transits now routinely involve overnight stays and media coverage.

The Taiwan Travel Act (2018) Some Members of Congress and state and local officials have publicly met with transiting Taiwan presidents. Executive branch officials have not. Stopovers have sometimes included visits to U.S. government facilities and have frequently included banquets with members of the Taiwan diaspora. Transiting presidents have not visited Washington, DC. Extensive Taiwan media coverage has become routine. The chairperson of AIT's Board of Trustees has usually accompanied Taiwan presidents on their stopovers, with the managing director of AIT's Washington [DC] Headquarters filling in when needed. (The position of AIT chairperson has been vacant since the start of the second Trump Administration.)

The Taiwan Travel Act (2018)

In 2018, Congress passed the Taiwan Travel Act (P.L. 115- 135). Section 3(b)(2) of the act states that it should be U.S. policy to “"allow high-level officials of Taiwan to enter the United States, under conditions which demonstrate appropriate respect for the dignity of such officials, and to meet with officials of the United States,” including officials from the DepartmentsDepartment of State and the Department of Defense [DOD] and other Cabinet agencies." (DOD is now "using a secondary Department of War designation" under Executive Order 14347 of September 5, 2025.)

Taiwan Presidential Transits 2016-2026

Over two four-year terms in office (2016-2024), President Tsai of Taiwan's Democratic Progressive Party (DPP) of State and Defense.

Taiwan Presidential Transits 2016-2024

Between 2016 and 2023, then-Taiwan President Tsai Ing- wen made seven overseas trips with transit stops in the United States (see Table 1). On a March-April 2023 trip, Tsai met in New York with House Minority Leader Hakeem Jeffries and other Members, and then in California Table 1). On her last stopover, in 2023, Tsai met with then-House Speaker Kevin McCarthy and other Members. McCarthy was, the highest-ranking U.S. official to meet with a Taiwan president on U.S. soil in the era of unofficial relations. The PRC response. The PRC response included three days of large-scale joint military exercises around Taiwan.

Taiwan Current President Lai Ching-te, in office since May 2024, undertookalso of the DPP, who succeeded Tsai in May 2024, made his first overseas trip as president in late November and early December 2024, visiting diplomatic partners the Marshall Islands, Tuvalu, and Palau, with2024, with transit stops in Hawaii and the U.S. territory of Guam. In Guam, Lai spoke by phone separately with the U.S. House Speaker and Minority Leader. Following Lai’s return home, a PRC Taiwan Affairs Office spokesperson stated China’s “firm opposition to any official interaction between the U.S. and Taiwan, and any ‘transit’ by a Taiwan leader to the U.S. in any name or under whatever pretext.” From December 9 to 11, the PRC’s People’s Liberation Army (PLA) conducted unannounced air and naval drills near Taiwan, perhaps the PRC’s largest maritime operation since 1996. An AIT spokesperson stated that AIT viewed the military activity as part of “a broader increase in the PLA’s military posture and military exercises over the last several years,” and not as a response to Lai’s U.S. transit visits.

Table 1. Then-President Tsai’s Transit Visits 2016-2023

Dates

in U.S.

Diplomatic

Partners

Visited

U.S.

Places

Transited

Selected

Activities

3/29-31, 4/4-6, 2023

Guatemala, Belize

New York, Los Angeles

Met Speaker Kevin McCarthy in LA and Minority Leader Hakeem Jeffries in NYC

7/11-13, 7/19-21, 2019

Haiti, Saint Kitts and Nevis, Saint Vincent and Grenadines, St. Lucia

New York, Denver

Visited National Center for Atmospheric Research. Met Colorado Governor.

3/26-27, 2019

Palau, Nauru, Marshall Islands

Honolulu Videoconference address to D.C.- based Heritage Foundation

8/12-13, 8/18-19, 2018

Paraguay, Belize

response, a spokesperson for the PRC's Ministry of Foreign Affairs stated that the PRC "firmly opposes any form of official interaction between the U.S. and the Taiwan region." The spokesperson urged the United States to abide by its commitments and "stop aiding and abetting 'Taiwan independence' separatist forces."

In August 2025, President Lai reportedly sought to transit through New York and Dallas on his way to and from Paraguay, Guatemala, and Belize—all diplomatic partners of Taiwan. The second Trump Administration reportedly declined to grant approval for the New York stop. President Lai did not make the trip. He has yet to transit through the continental United States as president.

Table 1. Transit Visits by Taiwan Presidents Lai Ching-te (2024-present) and Tsai Ing-wen (2016-2024)

Leader/ Dates in U.S.

Diplomatic Partners Visited

U.S. Transit Sites

Selected Activities

Lai: 11/30-12/2, 12/4-5, 2024

Marshall Islands, Tuvalu, Palau

Honolulu, Guam

Met Hawaii and Guam governors; calls with Speaker Mike Johnson and Minority Leader Hakeem Jeffries

Tsai: 3/29-31, 4/4-6, 2023

Guatemala, Belize

New York, Los Angeles

Met Speaker Kevin McCarthy, Minority Leader Jeffries, New Jersey governor

Tsai: 7/11-13, 7/19-21, 2019

Haiti, Saint Kitts and Nevis, Saint Vincent and the Grenadines, St. Lucia

New York, Denver

Call with Speaker Nancy Pelosi; visited National Center for Atmospheric Research; met Colorado governor

Tsai: 3/26-27, 2019

Palau, Nauru,* Marshall Islands

Honolulu

Live public video address to D.C.'s Heritage Foundation

Tsai: 8/12-13, 8/18-19, 2018

Paraguay, Belize

Los Angeles, Houston Spoke at Reagan Presidential Library; met New Mexico governor; visited NASA', Houston

Visited NASA’s Johnson Space Center in Houston.

10/28- Tsai: 10/28-29, 11/ 3-4, 2017

Marshall Islands, Tuvalu, the Solomon Islands

*

Honolulu, Guam , Guam

Visited USS Arizona Memorial in Hawaii. Met Guam Governor.

; met Guam governor Tsai: 1/7-8, 1/13-14, 2017

Honduras,* Nicaragua,* Guatemala, El Salvador

Houston, * Houston, San Francisco

Visited MD Anderson Cancer Center; met Texas Governor.

governor Tsai: 6/24-25, 6/30-7/1, 2016

Panama,* Paraguay

Miami, Miami, Los Angeles

Spoke by phone Call with House Speaker Paul Ryan.

Source: Office of the President, Taiwan.

Susan V. Lawrence, Specialist in Asian Affairs

IF12371

Taiwan Presidents’ U.S. Transit Visits

https://crsreports.congress.gov | IF12371 · VERSION 8 · UPDATED

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