Order Code RS21342
April 22, 2004
Immigration: Diversity Visa Lottery
Ruth Ellen Wasem
Specialist in Social Legislation
Karma Ester
Technical Information Specialist
Domestic Social Policy Division
Summary
The diversity visa lottery offers an opportunity for immigration to nationals of
countries that do not have high levels of immigration. Aliens from eligible countries had
until noon on December 30, 2003 to submit their applications for the FY2005 diversity
visa lottery. Aliens who are selected through the lottery, if they are otherwise
admissible under the Immigration and Nationality Act (INA), may become legal
permanent residents of the United States. Participation in the diversity visa lottery is
limited annually to 55,000 aliens from countries that are under-represented among
recent immigrant admissions to the United States. In FY2001, over 8 million aliens
from around the world sent in applications for the FY2003 lottery. Of the diversity
visas awarded in FY2002, European immigrants comprised 39.4% of the diversity visa
recipients and African immigrants received 38.1%. This report does not track
legislation and will not be regularly updated.
Background
The purpose of the diversity visa lottery is, as the name suggests, to encourage legal
immigration from countries other than the major sending countries of current immigration
to the United States. The law weighs allocation of immigrant visas heavily towards aliens
with close family in the United States and, to a lesser extent, aliens who meet particular
employment needs. The diversity immigrant category was added to the Immigration and
Nationality Act (INA) by the Immigration Act of 1990 (P.L. 101-649) to stimulate “new
seed” immigration, i.e. to foster new, more varied, migration from other parts of the
world.1 The current diversity lottery began in FY1995 following 3 transitional years with
temporary lotteries.2
1 §203(c) of INA.
2 From FY1992 to FY1994, the State Department conducted a lottery for 40,000 immigrant visas
that were available to natives of countries that have been “adversely affected” by the 1965
amendments to the INA that ended the country quota system. According to §132 of the 1990 Act, *RS21342*
40% (16,000) of these “transitional” diversity visas each year were earmarked for natives of Ireland. *RS21342*
CRS-2
The diversity lottery makes 55,000 visas available annually to natives of countries
from which immigrant admissions were lower than a total of 50,000 over the preceding 5
years. The United States Citizenship and Immigration Services Bureau (USCIS)
generates the formula for allocating visas according to the statutory specifications: visas
are divided among six geographic regions according to the relative populations of the
regions, with their allocation weighted in favor of countries in regions that were under-
represented among immigrant admissions to the United States. The Act limits each
country to 7%, or 3,850, of the visa limit, and provides that Northern Ireland be treated as
a separate foreign state. Recipients of the visas become legal permanent residents (LPRs)
of the United States.
While the diversity lottery has not been directly amended since its enactment in
1990, the Nicaraguan Adjustment and Central American Relief Act of 1997 (NACARA)
temporarily reduces the 55,000 annual ceiling by up to 5,000 visas annually. Beginning
in FY1999, the diversity ceiling became 50,000 to offset immigrant visa numbers made
available to certain unsuccessful asylum seekers from El Salvador, Guatemala, and
formerly communist countries in Europe who are being granted LPR status under special
rules established by NACARA. While the offset is temporary, it is not clear how many
years it will be in effect to handle these adjustments of status.
Trends in Admission
In FY2002, there were 42,829 persons actually admitted or adjusted as LPRs with
diversity visas, according to the FY2002 USCIS admissions data. This number represents
4% of all LPRs in FY2002 and is comparable to FY2001, when 42,105 diversity
immigrants comprised 3.9% of all LPRs. The top five countries in FY2002 (the latest year
for which detailed data are available) were Albania, Ethiopia, Nigeria, Poland, and the
Ukraine.
As Table 1 details, these five countries have consistently ranked among the top
diversity visa sending countries, along with Bangladesh, Bulgaria, Morocco, Romania,
and Russia. Citizens of Ireland, Poland, and the former Soviet Union won the most visas
in the mid-1990s, but their participation in the lottery has fallen in recent years. Albania
ranks as the top sending country for this entire period, followed by Nigeria. The numbers
for Russia and Ukraine may be understated because nationals who qualified from some of
the post-Soviet nations reported that they were born in the Soviet Union.
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Table 1. Top Diversity Visa Sending Countries, FY1997-FY2002
Country of Birth FY1997 FY1998 FY1999 FY2000 FY2001
FY2002
Total Rank
Albania 3,474
3,404
3,117
3,909
3,295
2,566 19,765
1
Bangladesh 3,080
2,835
1,697
1,720
1,509
1,106 11,947
7
Bulgaria 1,843
2,925
3,390
3,660
2,611
1,809 16,238
4
Egypt 1,652
1,786
1,536
1,506
1,125
1,161 8,766
12
Ethiopia 2,881
2,090
2,191
1,778
2,194
3,994 15,128
5
Ghana 2,375
2,156
1,734
1,737
1,122
1,217 10,341
11
Morocco 1,093
1,216
1,940
2,066
3,083
1,494 10,892
8
Nigeria 2,605
3,185
3,118
2,822
2,688
2,279 16,697
2
Pakistan 1,297
1,229
1,693
1,759
1,533
1,081 8,592
13
Poland 3,418
391
36
24
22
2,486 3,891
14
Romania 2,378
2,621
2,866
2,869
1,953
981 13,668
6
Russia 1,747
1,506
1,930
2,459
1,555
1,180 10,377
10
Soviet Union (fmr)
5,359
5,067
40
42
30
39 10,577
9
Ukraine 1,660
2,095
3,093
3,970
2,749
3,028 16,595
3
Source: CRS analysis of USCIS admissions data, reported by DHS Office of Immigration Statistics.
Eligibility
To be eligible for a diversity visa, the INA requires that an alien must have a high
school education or the equivalent, or 2 years experience in an occupation which requires
at least 2 years of training or experience.3 The alien or the alien’s spouse must be a
native of one of the countries listed as a foreign state qualified for the diversity visa
lottery.
Diversity lottery winners, like all other aliens wishing to come to the United States,
must undergo reviews performed by Department of State consular officers abroad and
DHS inspectors upon entry to the U.S.4 These reviews are intended to ensure that they
are not ineligible for visas or admission under the grounds for inadmissibility spelled out
in the INA.5 These criteria for exclusion are grouped into the following categories:
3 It appears that a General Educational Development certificate (GED) or its foreign equivalent may
not satisfy this requirement. See: American Immigration Lawyers Association. Practice Pointer,
Immigration Nationality Law Handbook 2001-02 Edition, v. 1. p. 174.
4 For background and analysis of visa issuance policy, see CRS Report RL31512, Visa Issuances:
Policy, Issues, and Legislation, by Ruth Ellen Wasem.
5 §212(a) of INA.
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• health-related
grounds;
• criminal
history;
•
security and terrorist concerns;
•
public charge (e.g., indigence);
•
seeking to work without proper labor certification;
•
illegal entrants and immigration law violations;
•
ineligible for citizenship; and,
•
aliens previously removed.
FY2005 Lottery
The State Department announced the FY2005 lottery on August 19, 2003. The 60-
day application period began on November 1, 2003 and ended on December 30, 2003.6
For the first time, applications for the diversity lottery must be submitted electronically.7
Entrants receive an electronic confirmation notice upon receipt of a completed entry
form. Paper forms will not be accepted. Since the objective of the diversity lottery is to
encourage immigration from regions with lower immigration rates, natives of countries
with high admissions are usually ineligible. For FY2005, the ineligible countries are:
Canada, China (mainland born), Columbia, Dominican Republic, El Salvador, Haiti,
India, Jamaica, Mexico, Pakistan, the Philippines, Russia, South Korea, the United
Kingdom and dependent territories, and Vietnam.8
When applying for a diversity visa, petitioners must follow the instructions issued
by the State Department precisely. If there are any mistakes or inconsistencies with the
petition, the State Department may disqualify it. In the FY2003 lottery, over 2 million of
the 8.7 million applications were disqualified for failure to comply with the instructions.9
Aliens who submit more than one application are supposed to be disqualified, but
husbands and wives may submit separate entries even though spouses and unmarried
6 For detailed information on the diversity visa application process, go to the State Department
website at [http://travel.state.gov/dv2005.html] and the BCIS website at
[http://www.bcis.gov/graphics/services/residency/divvisa.htm].
7 The Electronic Diversity Entry (EDV) form is available at http://www.dvlottery.state.gov.
8 Summary of State Department information. For detailed information go to the State Department
website at [http://travel.state.gov/dv2005.html].
9 American Immigration Lawyers Association. Immigration Nationality Law Handbook 2003-04
Edition; v. 1, p.351.
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children under the age of 21 qualify as derivative beneficiaries of successful applicants.
Any derivative beneficiary must be listed on the petition when it is initially filed, and the
derivative beneficiary visas are counted against the 50,000 visa cap. If a diversity lottery
winner dies before obtaining LPR status, the visa is automatically revoked and derivative
beneficiaries are no longer entitled to diversity visa classification.10
10 9 FAM 42.33 Note 5.2-2.
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Once all acceptable applications are received by the visa center, the winners are
selected randomly by computer. Petitioners who are not selected are not notified by the
State Department. The State Department is expected to notify the winners of the FY2005
diversity lottery by mail between May and July 2004, and their visas will be issued
between October 1, 2004 and September 30, 2005. Winning the first round of the
FY2005 lottery does not guarantee a visa, because the State Department draws more
applications than the number of visas available. Therefore, winners must be prepared to
act quickly to file the necessary documentation demonstrating to the State Department
that they are admissible as LPRs. The applications are processed on a first-come, first-
served basis. Aliens must complete this process before September 30, 2005 to receive
visas.11 In person interviews are expected to begin in October 2004.
11 For background on immigration policy, see CRS Report RS20916, Immigration and Naturalization
Fundamentals, by Ruth Ellen Wasem.