Updated April 26, 2023
Taiwan Presidents’ U.S. Transit Visits
Introduction

terminated governmental relations between the United
Since 1994, four sitting presidents of Taiwan have
States and the governing authorities on Taiwan recognized
undertaken a combined 29 trips abroad that have included
by the United States as the Republic of China prior to
transit stops in the United States. Since 1995, the U.S.
January 1, 1979.” The TRA goes on to state that it is U.S.
government has not permitted Taiwan presidents to make
policy “to preserve and promote extensive, close, and
non-transit visits to the United States. The U.S. government
friendly commercial, cultural, and other relations” with “the
presents this policy as consistent with the unofficial nature
people on Taiwan.” The U.S. government presents the TRA
of U.S.-Taiwan relations. (See also CRS In Focus IF10275,
and the U.S.-PRC communiqués, plus six assurances
Taiwan: Political and Security Issues.)
conveyed to Taiwan in 1982, as guiding the U.S. one-China
policy. (See CRS In Focus IF11665, President Reagan’s Six
Stakeholders in the U.S. government, Taiwan, and the
Assurances to Taiwan.)
People’s Republic of China (PRC) see Taiwan presidents’
U.S. transit visits differently.
1994 Taiwan Policy Review
For the first 15 years after terminating diplomatic relations
 The U.S. executive branch presents transits as private,
with Taiwan, the U.S. executive branch interpreted
unofficial, and consistent with the U.S. one-China
unofficial relations with Taiwan as precluding visits of any
policy.
sort by Taiwan presidents. In May 1994, however, the
Clinton Administration for the first time permitted a Taiwan
 Some Members of Congress have criticized U.S.
president to transit through the United States, allowing
protocol for the transits as excessively restrictive. Partly
Taiwan’s then-President Lee Teng-hui to stop to refuel his
in response, the executive branch has gradually loosened
plane in Hawaii on his way to Central America, but not to
such protocol restrictions.
spend the night. Apparently piqued, Lee declined to leave
his plane. Some Members of Congress saw the
 Taiwan governments have sought opportunities for
Administration’s treatment of Lee as insufficiently
transit visits, portraying U.S. permission for such stops
respectful. At a hearing of the Senate Foreign Relations
as affirmation of U.S. support, despite the absence of
Committee immediately after the transit, then-Senator
diplomatic relations with the United States.
Frank H. Murkowski observed that the U.S. government
allowed figures such as Palestinian Liberation Organization
 The PRC government, which claims sovereignty over
Chairman Yasser Arafat and Tibet’s exiled spiritual leader,
Taiwan, has long criticized Taiwan presidents’ U.S.
the 14th Dalai Lama, to visit the United States. The
transit visits as inconsistent with U.S. commitments to
American public might not understand, Murkowski
maintain only unofficial relations with Taiwan, and
suggested, “why our friends such as the Taiwanese are kept
charged that the transits undermine PRC “sovereignty
so far out and others without formal diplomatic relations
and territorial integrity.”
with the United States can come to Washington.”
Evolution of U.S. Policy on Transits
In September 1994, the Clinton Administration completed a
review of U.S. Taiwan policy. Subsequently-declassified
Unofficial Relations
briefing papers for Under Secretary of State Peter Tarnoff’s
U.S.-Taiwan relations have been unofficial since January 1,
travel to the PRC that month state that the Administration
1979, when the United States established diplomatic
would now “[p]ermit normal transits of the U.S., but no
relations with the PRC and terminated diplomatic relations
visits or public activities, for Taiwan’s top leadership,”
with self-ruled Taiwan, which officially calls itself the
while continuing to “[f]orbid visits, as opposed to transits,
Republic of China (ROC). In three joint communiqués
by Taiwan’s top leadership.” On September 27, 1994,
concluded with the PRC in 1972, 1978, and 1982, the
Assistant Secretary of State for East Asian and Pacific
United States “acknowledged,” but did not endorse, the
Affairs Winston Lord presented the outcome of the Taiwan
“Chinese” position that “there is but one China and Taiwan
Policy Review to Congress. He stated that President Bill
is part of China.” In the 1978 and 1982 communiqués, the
Clinton “has decided to enhance our unofficial ties with
United States also stated that it would “maintain cultural,
Taiwan.” Under questioning from Senators, one of whom
commercial, and other unofficial relations with the people
expressed “dismay” over the conditions of President Lee’s
of Taiwan” (emphasis by CRS).
transit, Lord said “under our new policy, we will permit
overnight visits. We will permit anything consistent with
The 1979 Taiwan Relations Act (TRA; P.L. 96-8; 22 U.S.C.
security and comfort and convenience so long as it’s a
§3301 et seq.) provides the legal basis for unofficial U.S.
transit visit.” Lord added that “the Administration strongly
relations with Taiwan. It refers to “[t]he President having
opposes congressional attempts to legislate visits by top
https://crsreports.congress.gov

link to page 2 Taiwan Presidents’ U.S. Transit Visits
leaders of the ‘Republic of China’ to the U.S.” The next
meet with officials of the United States,” including officials
month, Congress passed the Immigration and Nationality
from the Departments of State and Defense.
Technical Corrections Act of 1994 (P.L. 103-416). Section
221 of the act states that whenever Taiwan presidents or
2023 House Speaker Meeting
high-level Taiwan officials apply for visas to visit the
Taiwan President Tsai Ing-wen has made seven overseas
United States for discussions with federal or state officials,
trips with transit stops in the United States since 2016. (See
they “shall be admitted.”
Table 1.) On a March-April 2023 trip, Tsai met in New
York with House Minority Leader Hakeem Jeffries and
Taiwan President’s 1995 Private U.S. Visit
other Members, and then in California with House Speaker
In 1995, President Lee sought to make a private visit to his
Kevin McCarthy and other Members. The Speaker is the
alma mater, Cornell University. The Clinton Administration
highest-ranking U.S. official to meet with a Taiwan
initially denied the request and assured the PRC that no
president on U.S. soil in the era of unofficial relations. The
such visit would take place. President Clinton pivoted to
PRC condemned the McCarthy-Tsai meeting, with the
approving the visit after Congress passed H.Con.Res. 53
Taiwan Work Office of the PRC’s ruling Communist Party
(104th Congress) “Expressing the sense of the Congress
accusing Tsai’s political party of “clinging to U.S. support
regarding a private visit by President Lee Teng-hui of the
to seek independence.” The PRC response included three
Republic of China on Taiwan to the United States.” (The
days of large-scale joint military exercises around Taiwan.
vote was 396-0 in the House, and 97-1 in the Senate.) Lee
On April 10, 2023, a White House official observed that
visited Cornell in June 1995 and addressed his fellow
transit visits by Taiwan presidents are “not uncommon”
alumni. In response, the PRC carried out missile launches,
and, apparently addressing the PRC leadership, suggested
live-fire exercises, a naval exercise, and an amphibious
there was “no reason for any overreaction here.”
landing exercise over several months in 1995. In March
1996, the PRC undertook more missile launches and a joint
Table 1. Taiwan President Tsai’s U.S. Transit Visits
amphibious landing exercise in an apparent attempt to drive
down support for Lee ahead of Taiwan’s first direct
Diplomatic
U.S.
Select Activities
presidential election, which Lee won. The United States
Dates
Partners
Places
responded by dispatching two aircraft carrier battle groups
in U.S.
Visited
Transited
to the area. The events are now known as the third Taiwan
3/29-31,
Guatemala
New York,
Met Speaker Kevin
Strait Crisis, following earlier crises in 1954 and 1958.
4/4-6,
and Belize
Los
McCarthy in LA
Transits Since 1994
2023
Angeles
and Minority
Leader Hakeem
President Lee’s 1995 visit to Cornell remains the sole non-
Jeffries in NYC
transit visit to the United States by a Taiwan president in
the era of unofficial relations. Taiwan presidents routinely
7/11-13,
Haiti, Saint
New York,
Visited National
transit through the United States on visits to and from the
7/19-21,
Kitts and
Denver
Center for
dwindling number of countries that maintain diplomatic
2019
Nevis, Saint
Atmospheric
relations with Taiwan. (Seven of Taiwan’s remaining 13
Vincent and
Research. Met
diplomatic partners are in Latin America and the Caribbean.
Grenadines,
Colorado
Four are in the Pacific and one, the Holy See, is in Europe.)
St. Lucia
Governor.
3/26-27,
Palau,
Honolulu
Videoconference
The main office of the American Institute in Taiwan (AIT),
2019
Nauru,
address to D.C.-
the ostensibly private entity through which the United
Marshall
based Heritage
States conducts unofficial relations with Taiwan, issues
Islands
Foundation
visas for Taiwan presidents and their delegations transiting
through the United States. AIT’s Washington headquarters
8/12-13,
Paraguay,
Los
Visited NASA’s
processes their requests for port courtesies, including
8/18-19,
Belize
Angeles,
Johnson Space
expedited processing and clearance at U.S. ports of entry
2018
Houston
Center in Houston.
and security arrangements. U.S. government practice is not
10/28-
The Marshall Honolulu,
Visited USS
to make executive branch officials available for meetings
29, 11/
Islands,
Guam
Arizona Memorial
with transiting Taiwan presidents. Members of Congress
3-4,
Tuvalu, the
in Hawaii. Met
and state and local officials often do meet with Taiwan
2017
Solomon
Guam Governor.
presidents on U.S. transit stops. Transiting Taiwan
Islands
presidents also commonly attend banquets with Taiwan
expatriates. The AIT chairperson accompanies the Taiwan
1/7-8,
Honduras,
Houston,
Visited MD
president in the United States. Transits now routinely
1/13-14,
Nicaragua,
San
Anderson Cancer
involve overnight stays, public events, and media coverage.
2017
Guatemala,
Francisco
Center; met Texas
El Salvador
Governor.
The Taiwan Travel Act (2018)
In 2018, Congress passed the Taiwan Travel Act (P.L. 115-
6/24-25,
Panama,
Miami, Los
Spoke by phone
135). Section 3(b)(2) of the act states that it should be U.S.
6/30-7/1, Paraguay
Angeles
with House
policy to “allow high-level officials of Taiwan to enter the
2016
Speaker Paul Ryan.
United States, under conditions which demonstrate
Source: Office of the President, Taiwan.
appropriate respect for the dignity of such officials, and to
https://crsreports.congress.gov

Taiwan Presidents’ U.S. Transit Visits

IF12371
Susan V. Lawrence, Specialist in Asian Affairs


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https://crsreports.congress.gov | IF12371 · VERSION 5 · UPDATED