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Testimony of Stephen A. "Tony" Edson
Deputy Assistant Secretary for Visa Services
Bureau of Consular Affairs
U.S. Department of State
May 24, 2007
1:00 p.m.

Chairman Wexler, Ranking Member Gallegly and distinguished members of the Committee, I am delighted to be here this afternoon and appreciate this opportunity to discuss the important implications of the possible expansion of the Visa Waiver Program on our international relations.

In November of last year, in Tallinn, Estonia, President Bush announced his initiative to revamp and strengthen the Visa Waiver Program. As the President said to the people of Estonia, it is time to modify and strengthen the program by upgrading our ability within the program to screen individual travelers.

The Administration is therefore seeking your support to enhance the security requirements of the program to strengthen the safety of the United States and of the people who travel here. As the President said in Tallinn, the proposal seeks to use modern technology to improve our ability to screen travelers. Twenty-first century threats require us to assess individuals, not merely countries, as they seek to travel to the United States.

The leaders of new democracies of Europe have told President Bush repeatedly of the desire of the citizens of their countries to travel visa-free to the United States. The Administration heard their concerns. If I might quote the President from his statement with President Ilves: "We want people to come to our country.... It's in our nation's interest that people be able to come and visit, and it's important, at the same time, to make sure that those who want to continue to kill Americans aren't able to exploit the system."

As I have testified previously, together with our colleagues at the Department of Homeland Security (DHS), we strive constantly both to protect America's borders and preserve America's welcome to international visitors and our fundamental openness to the world that is the source of our strength and sense of ourselves. As we pursue these dual goals, we do so in partnership with other countries, above all with the participants in the Visa Waiver Program.

As security requirements are enhanced, admitting new countries to the VWP will strengthen our security overall. Countries that adhere to the requirements will be agreeing to new procedures to screen travelers. In this way, we can both strengthen the national security of the United States and strengthen our partnerships with countries that meet DHS' proposed security enhancements through the ability to travel to the United States without a visa.

Visa Waiver Program

The Visa Waiver Program was established in 1986 to promote tourism and trade, and allow the Department of State to focus its attention on other travelers and consular matters. The VWP participant countries are: Andorra, Australia, Austria, Belgium, Brunei, Denmark, Finland, France, Germany, Iceland, Ireland, Italy, Japan, Liechtenstein, Luxembourg, Monaco, the Netherlands, New Zealand, Norway, Portugal, San Marino, Singapore, Slovenia, Spain, Sweden, Switzerland, and the United Kingdom.

The Departments of State and Homeland Security cooperate closely on the Visa Waiver Program. The DHS Office of International Enforcement has primary responsibility for overseeing the VWP. State's role is primarily consultative.

Since its inception, the VWP has fostered better relations with these participating countries. By facilitating travel, the VWP stimulates both international trade and travel. Let me expand a bit on the primary aspects of the program. Citizens of participating countries may visit the United States for business or pleasure for up to 90 days without obtaining a visa. For other purposes, such as for employment or studies, or longer stays, a visa is required. These 27 member countries all meet the statutory requirements for participation. Members must issue machine-readable passports, and must have a biometric passport program in place. They must report lost or stolen blank or issued passports in a timely fashion. All members must have a visa refusal rate of 3 percent or less, a low visa overstay rate and provide reciprocal, visa-free travel for U.S. citizens. Most importantly, DHS must positively determine that the country's participation in the program would not have a negative impact on U.S. security, immigration, and law enforcement interests.

For continued participation, DHS re-evaluates participating countries every two years, as required by Congress. Through this process, two countries, Argentina and Uruguay, now are no longer eligible to participate. Current members will have to fulfill any new requirements to continue their eligibility for membership in the program. I would also like to point out that while VWP travelers are not required to obtain visas, they are subject to screening prior to admission to the United States and are enrolled in DHS' US-VISIT program.

The VWP provides notable benefits to the United States. The latest data on the use of this program provided by the Department of Commerce shows for FY 2006:

1. Over 15 million VWP travelers visited the United States for tourism or business trips.

2. Of the top ten countries in expenditures in the United States, six were VWP participants, spending over $50 billion.

Over 80 percent of the current VWP participants, and nearly all of the aspirant countries, are European. We have very close foreign policy, commercial and cultural ties to VWP members, and the VWP provides a foundation on which these ties can flourish. The United States and Europe form a united community of values, interests, and responsibilities. We also share commitments to human rights, rule of law, freedoms of religion and the press, and to market economics.

In commerce, the U.S.-European trade and investment relationship is the largest in the world. Transatlantic trade totals over $500 billion annually, and the United States and the European Union are the largest investors in each other's markets. Of the $5 trillion in foreign assets owned by U.S. companies, nearly 60 percent are in Europe. Similarly, nearly three-quarters of all foreign direct investment in the United States comes from EU investors. U.S.-owned affiliates in Europe employ six million workers; over four million Americans work for European companies.

"Roadmap" Process and Expansion

In response to the strong interest of the new democracies of Central Europe and the Baltics to join the Visa Waiver Program, President Bush announced in February 2005 that the United States would develop bilateral strategies, or "Roadmaps," for those countries to help them understand and meet the requirements for admission to the VWP. Following this announcement, the Department, through our embassies, set up consular working groups with 13 governments to implement the "roadmap" process, in which we discuss the criteria that must be met to be considered for VWP membership. The "roadmap" countries have cooperated diligently with this process, but many counties believe that it offers them no realistic opportunities to join VWP in the near future.

The VWP provides proven and important benefits for the United States. The Administration and Members of Congress also recognize that it needs to be modernized to take into account the realities of a post-9/11 world. The proposed legislation would enhance the program's security, and allow for flexibility in the current visa refusal rate standard. The prospect of VWP membership for "roadmap" countries gives us a strong platform for important dialogue on security and other bilateral matters, and will encourage compliance with current as well as contemplated VWP standards. These enhancements will lead to more secure U.S. borders, and the opening of dialogue will foster and strengthen our ties with these partners.

The new requirements under consideration to strengthen the security of visa-free travel would permit some of our allies to join the Visa Waiver Program, thereby strengthening U.S. bonds with those countries over the long term. At the same time, providing a realistic opportunity for these countries to join the Visa Waiver Program gives us a tool to enhance our cooperation with international allies in strengthening transportation security domestically and abroad. Improving security and membership opportunities for aspirant countries are thus mutually reinforcing reforms.

Mr. Chairman, we look forward to working with partner agencies and with you toward that goal. I would be happy to answer your questions.