🇺🇸 REMEMBERING THE CARTER YEARS

The Carter Years

By Paul Wickham Schmidt

President Jimmy Carter
Jimmy Carter
1924-2024
39th President of the U.S.
Official White House Photo
Public Realm

President With An “Afterlife”

Jimmy Carter (1924-2024), the 39th President of the United States is an anomaly among modern U.S. Presidents. He is probably better known and more widely respected for his post-Presidency achievements and work than for his accomplishments during his single four-year term (1977-81). 

After losing the 1980 election to Ronald Reagan in a landslide, Carter devoted himself to humanitarian work on a national and international scale. He founded the Carter Institute. He and his wife Rosalynn (1927-2023) were famous for their never-ending work personally of building housing for communities in need for Habitat for Humanity. 

Carter wasn’t just a “mouthpiece,” promoter, or financial supporter. He and Rosalynn could often be found with their sleeves rolled up digging, pounding, sawing, and painting with the rest of the crews. Individuals in the District of Colombia fondly remember him working side-by-side with community members to build housing that they still proudly reside in!

Carter is generally regarded as one of the most intelligent and fundamentally decent Presidents. However, his term was largely viewed as unsuccessful at the time. Economic woes, an energy shortage, the Iranian hostage crisis, tensions with the Soviet Union, and the Cuban boatlift overshadowed his meaningful achievements such as the Camp David Peace Accords and creation of the Department of Education.

As a career civil servant, I worked for the Carter Administration in several senior positions at the “Legacy” Immigration and Naturalization Service (“INS”). Although I never met the President in person, I certainly saw his facsimile signature on many official documents. 

One of the first of these was a Presidential Pardon for Vietnam Era Draft Evaders that he issued shortly after taking office. As the then legislative and regulations expert in the INS Office of General Counsel, I was charged with figuring out the practical effect of the somewhat vague language of the pardon on cases of former U.S. citizens who had renounced their citizenship abroad, primarily in Canada, during the war years.

Human Rights Focus

The Carter Administration was the only one in my lifetime that made human rights around the world a key focus of policy. While it was a great and noble idea in theory, it often clashed with the political and international realities of governing during the waning stages of the Cold War. 

From my “deep in the bureaucracy” perspective, the Carter Administration also too often exhibited a “tone deafness” when it came to dealing with the “old line Democrats” and Committee Chairs who then controlled Congress. For example, I was asked to draft a comprehensive legalization and employer sanctions immigration bill, but instructed not to consult with any Committee staff. Needless to say, the final product went over like a lead balloon. As I remember, the Dem Committee Chairs balked at even introducing the bill and it got a “DOA reception” from both Dems and the GOP. 

Leonel Castillo
Leonel Castillo
1939-2013
Commissioner of Immigration (1977-1979)
USCIS Archives
Public Realm

INS Commissioner Leonel Castillo: The Fall of a Rising Star

It probably didn’t help that Carter’s Commissioner of Immigration was Leonel Castillo. Immediately prior to appointment, Castillo was the City Controller of Houston, the first Hispanic-American to hold the job, and was considered a “rising young star” in Texas Democratic politics. (Yes, there was such an animal in those days.)

Unfortunately, it wasn’t a very good fit. Perhaps, it was simply “mission impossible” for an Hispanic leader then. Leonel was mostly interested in getting out, pressing some flesh, and the “big picture” of immigration. But, many of INS’s problems and challenges involved “nitty gritty” technical issues, fending off interference from a small army of “whiz kid” special assistants at the DOJ, and dealing with the always prickly Congressional Committees who controlled agency funding. 

This wasn’t Leonel’s strong suit. He surrounded himself with his own group of young special assistants, executive assistants, and analysts, many from Texas, who didn’t “mesh well” with the career bureaucrats in the INS Central Office, the largely “good old boy” field management structure, the egos in the DOJ, and the “Kings of the Hill.” 

Leonel never established rapport with Sen. Ted Kennedy, then the most recognizable Democrat in Congress and, beginning in 1978, Chair of the powerful Senate Judiciary Committee, which exercised INS oversight. Kennedy later went on to unsuccessfully challenge President Carter for the 1980 Democratic Presidential nomination. Nor did he have a good working relationship with powerful Chair Peter Rodino (D-NJ) of the House Judiciary Committee, who had been deeply involved in INS issues for many years.

Additionally, Leonel had a rocky relationship with the formidable Rep. Elizabeth Holtzmann (D-NY), the Chair of the House Immigration Subcommittee. Holtzmann was “all over INS” for what she deemed to be inadequate efforts to locate, investigate, and denaturalize former Nazi war criminals living in the U.S. who had been erroneously admitted as refugees following World War II. 

At the time, I was responsible for drafting Leonel’s congressional testimony and accompanying him to congressional hearings. As he was struggling through one contentious hearing with Chairperson Holtzmann, Leonel inadvertently knocked over the water pitcher, soaking the witness table. Holtzmann reached under her dais, grabbed a towel, and unceremoniously threw it at the hapless Commissioner with an implicit admonishment to “clean up his mess.” Committee staff later quipped that perhaps it was time for INS to “throw in the towel.” 

Needless to say, that wasn’t one of the “high points” in the Carter Administration’s dealings with Congress. Chairperson Holtzmann eventually succeeded in wresting control of all Nazi immigration investigations and prosecutions away from the INS and vesting it in a newly-created Office of Special Investigations (“OSI”) in the DOJ’s Criminal Division. 

While my “political bosses” tended to view this as a “bureaucratic defeat,” I told them it was anything but. Not having to deal with the Chairperson on Nazi investigations on a daily basis turned out to be a huge “plus” for INS, particularly the OGC, where the “Nazi Unit” was then located. It was well worth the “loss” of the half-dozen positions to the Criminal Division, which then greatly expanded the OSI. 

David Crosland
Hon. David Crosland
American Jurist, Senior Executive, Lawyer, Teacher
1937 – 2022
PHOTO: Alabama Law

General Counsel/Acting Commissioner David Crosland

At the end of the Ford Administration, INS General Counsel Sam Bernsen was serving in the position as a “rehired annuitant.” That meant technically he had already retired and was continuing to serve on a special arrangement. The new Administration “finalized” Sam’s retirement and appointed a new General Counsel, David Crosland, a civil rights attorney from Atlanta, Georgia with ties to the “Georgia Mafia” that surrounded Carter and his first Attorney General, former Fifth Circuit Judge Griffin Bell. 

Dave had once worked in the Civil Rights Division of the DOJ under then AG Ramsey Clark. After Carter left office, Dave remained in the immigration field for the rest of his life. Indeed, we were both Immigration Judges at the Arlington Immigration Court, and he was still on the bench at the Baltimore Immigration Court at the time of his death in 2022.

Shortly after Dave’s appointment as General Counsel, the then Deputy General Counsel, Ralph Farb was elevated to the Board of Immigration Appeals (“BIA”). I became Dave Crosland’s Deputy.

Sam Bernsen, however, landed on his feet. Although he had 40+ years of Government service, he was relatively young, perhaps 57, having begun his career as a messenger at Ellis Island in his late teens. After a short period of private practice with Larry Latif (who later was my law partner at Jones Day), he became a name and managing partner of the Washington, D.C. Office of Fragomen, Del Rey, and Bernsen, a leading immigration “boutique.” I later succeeded him in that position in 1992. Immigration is a small world!

There was an old anecdote (perhaps apocryphal) that Judge Bell once said that at INS, “Castillo represented the White House, Deputy Commissioner Mario Noto represented House Judiciary Chair Peter Rodino, Special Assistant to the Commissioner David Dixon represented Senate Judiciary Chair Jim Eastland, and Crosland represents me!”

Ben Civiletti Succeeds Judge Griffin Bell as AG

Judge Bell eventually gave way to Attorney General Ben Civiletti in 1979. Among the many “Special Assistants” working for AG Civiletti was young Harvard Law grad, Merrick Garland. His meteoric career trajectory occasionally crossed paths with my role at INS. I remember him from those days as a smart, serious, ambitious, earnest guy. 

Civilewti & Staff
Attorney General Ben Civiletti (1979-81) with top DOJ staff including current AG Merrick Garland (5th from left)
PHOTO: NT Times

Also in 1979, Leonel Castillo resigned as Commissioner and returned to Houston to run for Mayor. But, his tenure at INS proved no help. He finished third in that race and was unsuccessful in three additional bids for local elective office. INS proved to be a political “career killer” rather than a “career enhancer.” 

Meanwhile, no successor to Castillo as Commissioner was ever nominated and confirmed during the Carter Administration. My “boss,” David Crosland became the Acting Commissioner of INS, and I became the Acting General Counsel, a situation that continued for the balance of the Carter Administration. 

For me, the Carter Administration was one of the formative periods of my legal career. At 31, I became the top legal official at INS which involved running the nationwide legal program, advising the Acting Commissioner and other senior managers at INS, and also being the “point person” for Immigration litigation, legislation, and other issues with the Attorney General, the Solicitor General, and heads of other DOJ divisions and offices. 

I remember once returning to my office after a long day of meetings to be handed a stack of yellow message slips (no voice mail or e-mail in those days) by our receptionist. One thing that I always did at the OGC and that served me well thereafter was to faithfully return all phone calls and answer all my personal correspondence. 

The receptionist told me in an excited voice that  “Mr. Letti’s” office had been trying to get ahold of me all day, and that I had to return that call first! I puzzled over who “Mr. Letti” was, because it didn’t ring a bell, offhand. “You know Mr. Letti,” said the receptionist, “Mr. Benson Letti, (as she had written on the message slip), said it was very important.” Finally, the light bulb went off, “Ah, you mean Ben Civiletti, the Attorney General,” said I. Yes, said the receptionist, “THAT Mr. Letti.” 

Lyudmila Vlasova
Russian ballerina Lyudmila Vlasova was one of the more interesting cases I worked on.
PICTURE: Wikipedia

During 1979, I was involved in a notable incident involving Lyudmila Vlasova , a star Russian ballerina, in a plane halted on the tarmac at JFK. The issue was whether she was leaving the U.S. of her own volition, as her husband, Aleksandr Godunov, also a dancer with the Bolshoi Ballet, had defected and sought asylum in the U.S. (In a strange time warp, in those days a Dem Administration was actually more concerned about individuals being denied their right to seek asylum here than in “deterring” legal asylum seekers from “darkening our doors!”)

Part of the “Plan B” hatched for determining her situation was to designate AG Civiletti as an “Immigration Officer” authorized to detain and examine foreign nationals. I duly drafted up a legal document so designating the A.G. Fortunately, the situation was resolved (she voluntarily departed the U.S.) without resorting to Plan B. Several weeks later, I received the “appointment document” back by mail with a handwritten note by AG Civiletti that said something like: “With thanks and great relief it wasn’t needed!” The 1985 movie “Flight 222” was loosely based upon this incident.

Four Issues That Changed U.S. Immigration: The Refugee Act of 1980; The Cuban Boatlift; The Iranian Hostage Crisis; The INS Attorney Reorganization

Four issues stand out for me from the Carter years. The first was the enactment of the Refugee of 1980. It was the first codification and legal affirmation of our International obligations to refugees and asylum seekers under the United Nations Convention and 1967 Protocol Relating to the Status of Refugees. 

It gave me a chance to work closely with two of my contemporaries in the Administration who later went on to become “intellectual giants” in the field of human rights. One was David A. Martin, then Special Assistant to Patt Derian, the Assistant Secretary for Human Rights and Humanitarian Affairs at the State Department. David went on to become a famous Professor at UVA Law, co-author of leading textbooks, the General Counsel of INS in the Clinton Administration, and Principal Deputy General Counsel of DHS during the Obama Administration (then DHS Secretary Janet Napolitano was his student at UVA Law).

The other was Alex Aleinikoff, then an attorney in the DOJ Office of Legal Counsel. Alex also went on to become a professor, co-author (with David Martin) of textbooks, an INS Senior Executive, Dean of Georgetown Law, and Deputy UN High Commissioner for Refugees.

I also worked closely with Committee staff in Congress, particularly the late Jerry Tinker who was Senator Kennedy’s staffer on the Senate Judiciary Committee. I can still remember getting a phone call one evening from Jerry saying “Schmidt, I’m in a jam. Could you draft me some legislative history for the Refugee Bill and send it over. You know what the Senator wants.” It was sort of a “hinky” request, given the state of relations between the Carter White House and Senator Kennedy. But, I figured it would be “career preserving” to give Jerry a  hand, without mentioning it to anyone else. 

A second major event, unfortunately coinciding the the enactment of the Refugee Act of 1980, was the so-called Mariel Boatlift. INS hadn’t had time to fully implement that Act before we were confronted with another in a long line of “refugee crises.” This one involved Castro’s unexpectedly and temporarily “opening” some ports in Cuba and a flotilla of small boats going from Florida to pick up friends and relatives. 

Cuban Boatlift
The 1980 Cuban Boat lift was a crisis for the Carter Administration that has had lasting impact on U.s. immigration policy, not necessarily for the better.
Official USG Photo
Public Realm

We had to call upon FEMA — who famously introduced themselves as the “Masters of Disaster” — and the Orange Bowl became the initial “processing center” for new arrivals. The vast majority of those who came were quickly screened and released into the community. They eventually were able to get green cards, without applying under the Refugee Act, under the Cuban Adjustment Act of 1966.

However, there was a proportionately small, yet highly visible, group of individuals who had been released from Cuban jails, obviously without documentation of the crimes for which they had been imprisoned. They were processed for possible exclusion and deportation, which invoked the asylum and withholding of removal provisions of the new Refugee Act.

Since INS had no suitable housing for “high risk” criminals, we had to enter agreements with the Bureau of Prisons to reopen some “dormant, high-security facilities” — like the Atlanta Penitentiary and McNeil Island Penitentiary in the State of Washington. Additionally, we were allowed to use military bases such as Fort Chaffee, Arkansas; Fort McCoy, Wisconsin; Fort Drum, New York, and Fort Indiantown Gap, Pennsylvania to detain those suspected of criminal activity who required Immigration Court hearings. The then “Boy Governor” of Arkansas, Bill Clinton, blamed well-publicized escapes from Fort Chaffee as a factor leading to his re-election defeat.

We also lacked sufficient Immigration Judges in those locations to hear the cases. That required an emergency effort to assemble and train a corps of “Temporary Immigration Judges” from the ranks of active and retired Administrative Law Judges and DOJ Attorneys.

The Cuban Boatlift got the Refugee Act of 1980 off to a rocky start. Many of the initial “precedents” on asylum issued by the Board of Immigration Appeals (“BIA”) involved Cuban applicants with criminal records, not the most sympathetic group. That, combined with some sensationalist dramatic portrayals of criminals among the arrivals, such as the movie “Scarface,” starring Al Pacino, hardened attitudes towards refugees generally, while also producing some relatively restrictive initial interpretations of the Act. 

Additionally, the Boatlift ushered in an era of mass long-term immigration detention. While the Boatlift eventually subsided, the phenomenon of large-scale immigration detention has continued to grow over the years. It has become a controversial “staple” of U.S. immigration enforcement and “deterrence.” It has been used, in some form or another, by all Administrations since Carter.

The “Carter experience” also hardened views toward large-scale migration in the Executive Branch, as both politicos and bureaucrats vowed “never again!” During the Reagan Administration, the new and oft-criticized device of “high seas interdiction” was used to stop further vessels from Cuba and Haiti from even reaching the U.S. and invoking the Refugee Act protections. Some individuals were brought to the U.S. after preliminary screening onboard Coast Guard vessels. But, most were returned without hearings (Haitians) or sent to the U.S. base at Guantanamo Bay, Cuba (Cubans).  

A third pivotal event, which also played a role in the demise of President Carter, was the so-called “Iranian Hostage Crisis.” Most of the “action and drama” took place in and around the U.S. Embassy in Tehran. But, there was also a “domestic component.”

Then Attorney General Griffin Bell was shocked to learn that the INS at that time had no national database on the number, location, and status of Iranian students studying in the U.S. This led to new efforts and regulations to require all such Iranian students to “register” with the INS and imposed penalties, including deportation, on those who failed to do so or committed crimes in the U.S. — even if those crimes in and of themselves were not specified as grounds of deportation.

While the frustration and outrage of Administration officials was quite understandable, the whole exercise was was somewhat like “kicking the cat after a bad day at the office.” Almost all the Iranians studying in the U.S. at that time were supporters of the deposed Shah’s U.S.-backed government. The “radicals” who were holding hostages in the Embassy weren’t anywhere near the U.S. 

Most of the enforcement efforts against Iranians in the U.S. became embroiled in never-ending litigation. However, the concept of “special registrations” for groups of non-immigrants, particularly from Middle Eastern countries, became part of the “immigration regulation toolbox.” It was repeated after “9-11” and is also one of the antecedents to Trump’s so-called “Muslim ban.”

Finally, my fourth main event  from the Carter Administration was “phase one” of the INS attorney reorganization, which created the Chief Legal Officer for each INS district in the U.S. Started under General Counsel/Acting Commissioner Dave Crosland, the second phase of the reorganization was completed during the Reagan Administration under the leadership of General Counsel Maurice C. “Iron Mike” Inman, Jr. Along the way, Mike changed the name from “Chief Legal Officer” to “District Counsel.” They were the forerunners of today’s “full service” Offices of Chief Counsel at ICE, an integral part of DHS’s operations.

Prior to Crosland and me, the INS Trial Attorneys, although selected by and under the “program management” of the General Counsel, worked for the District Directors, their clients, and were supervised and evaluated by them. Additionally, an even larger group of INS attorneys, Naturalization Examiners, also worked for the District Director, although they were selected and under the program direction of the Assistant Commissioner for Naturalization in the Central Office.

Using a plan developed by then Regional Counsel for the West, Bill Odencrantz, we reorganized the program along the DOJ’s traditional “attorney-client” model to place assignment, supervision, and evaluation of all INS attorneys under the General Counsel. This also gave the General Counsel, in consultation with the Assistant Commissioner, authority to use legal resources in any district “across programs” when needs dictated. 

As you might expect, this move was met with fierce opposition from District Directors, Regional Commissioners, and some naturalization attorneys. As the “point person” for the reorganization, I became the recipient of some of the most vehement and vocal objections.

During “phase two,” completed during Mike Inman’s tenure, the attorneys were moved out of the naturalization program into the Offices of District Counsel and replaced with non-attorney examiners in the naturalization program, which, in turn, merged with the overall adjudications program. 

This is much the way these programs operate today within DHS, with the legal program being part of ICE and the naturalization function part of USCIS. It would have been hard to create the DHS, with all its legal issues, litigation, and complexities, without the “groundwork” being laid during the Carter Administration, and later the Reagan Administration, for a modern, quasi-independent legal program reporting to the ICE Principal Legal Advisor.   

Those Were The Days, My Friend

Looking back, I appreciate the seriousness and integrity with which President Carter and those around him took governing. (I also got frequent calls from Vice President Mondale’s office about immigration issues.) I will always remember the Carter years as a time of both excitement and professional growth. I started as one of a handful of attorneys on the staff of the INS General Counsel and ended up running the INS’s nationwide legal program and being the agency’s top lawyer, albeit in an acting capacity while Dave Crosland was the Acting Commissioner. 

I appreciated and learned from the opportunities that came my way. I particularly enjoyed helping to select, form, organize, and work with the many outstanding attorneys, agents, and staff at INS and DOJ, a number of whom remained my friends and sometimes became colleagues again as my career continued into the Reagan Administration and eventually, beyond INS. The “team approach” to the law and problem-solving that I developed and honed during the Carter years stayed with me and became key to the rest of my career.

(12-29-24)

 
 

GONZO’S WORLD: Sessions Gives Congress The “Scarface Treatment” Again — Then He Jokes About Russia — Will Mueller Eventually Wipe The Smirk Off Gonzo’s Face?

http://nymag.com/daily/intelligencer/2017/11/jeff-sessions-has-a-strangely-selective-memory.html

Eric Levitz writes in NY Maggie:

“Jeff Sessions’s memory works in mysterious ways. He has “no clear recollection” of the March 2016 meeting where George Papadopoulos offered to set up a meeting between Donald Trump and Vladimir Putin — but the attorney general does remember shooting down the campaign aide’s unseemly suggestion.

Or, so Sessions tells the House Judiciary Committee.

In October, Sessions testified to the Senate that he did not have any “continuing exchange of information” with Russian operatives — and that he wasn’t “aware of anyone else [on the Trump campaign] that did.” Weeks later, Special Counsel Robert Mueller revealed

“Papadopoulos’s confession to the crime of lying to the FBI. In that written statement, the former Trump campaign national security adviser claimed that he had told Sessions about “connections” he had that “could help arrange a meeting between then-candidate Trump and President Putin” in March of last year. In his testimony before Congress Tuesday, Sessions tried to account for this apparent discrepancy.

“I do now recall the March 2016 meeting at Trump Hotel that Mr. Papadopoulos attended, but I have no clear recollection of the details of what he said at that meeting,” Sessions explained. “After reading his account, and to the best of my recollection, I believe that I wanted to make clear to him that he was not authorized to represent the campaign with the Russian government, or any other foreign government, for that matter.”

Later, Sessions said more firmly, “At the meeting, I pushed back.”

So, the attorney general has no clear memory of the meeting, but has a vivid recollection of behaving admirably during it.

This isn’t the first time that Sessions’s memories of last year have failed him. In January, the attorney general testified to the Senate that he had not “been in contact with anyone connected to any part of the Russian government about the 2016 election, either before or after election day.” Months later, the Washington Post revealed that Sessions had met with the Russian ambassador to the United States multiple times during the 2016 campaign. Sessions responded to these revelations by insisting that he’d met with Ambassador Sergey Kislyak in his capacity as U.S. senator (not as a Trump surrogate), and that they did not discuss the 2016 election. Sessions later conceded that it was “possible” that Trump’s positions on U.S.-Russia relations came up in his discussions with Kislyak.

Some Democrats have suggested that Sessions’s multiple false statements to Congress this year were conscious lies. The former senator responded to such charges with indignation Tuesday.

“My answers have not changed,” Sessions said. “I have always told the truth, and I have answered every question as I understood them and to the best of my recollection, as I will continue to do today … I will not accept and reject accusations that I have ever lied under oath. That is a lie.”

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Meanwhile, speaking to a friendly audience over at the Heritage Foundation, Gonzo treated the Russia investigation as a joke. Mary Papenfuss reports for HuffPost:

“Attorney General Jeff Sessions had lawyers rolling in the aisles with a surprising string of Russian quips at the start of a speech he gave Friday.

Sessions was the keynote speaker at the National Lawyers Convention at Washington’s Mayflower Hotel hosted by the conservative Federalist Society.

He thanked the applauding crowd for welcoming him. Then, smiling mischievously, he added: “But I just was thinking, you know, I should ― I want to ask you. Is  Ambassador Kislyak in the room? Before I get started ― any Russians?” As the laughs grew louder, he continued: “Anybody been to Russia? Got a cousin in Russia?” The audience roared.

The jarring jokes came just three days after Sessions was pressed in Congress on apparent discrepancies in his previous testimony about Trump associates’ meetings with Russians during the 2016 campaign.

Sergey Kislyak, then Russia’s ambassador to the U.S., met with several members of Donald Trump’s campaign during the Republican National Convention, Kislyak and some Trump associates have revealed. Kislyak was widely believed a top spy recruiter.

Kislyak has said he discussed Trump’s policy positions during the campaign with Sessions, an early Trump supporter who was an Alabama senator at the time, The Washington Post reported.

But during his confirmation hearings to become attorney general ― before the Post report ― Sessions said he “never met with or had any conversations with any Russians or any foreign officials concerning any type of interference with any campaign or election.”

Sessions later recused himself from Special Counsel Robert Mueller’s probe into Russian interference in the U.S. election.

Critics were stunned by Sessions’ attitude in the lawyers’ speech.

Sessions “still doesn’t get it” — he’s “in trouble,” Rep. Ted Lieu (D-Calif.) told Wolf Blitzer later on CNN.

“He’s not in trouble where he happened to be in places where there are Russians,” said Lieu, a member of the House Judiciary Committee who grilled Sessions this week. “He is in trouble because he had a nearly hour-long meeting with Ambassador Kislyak — also a spy — and then he failed to disclose the existence of that meeting under oath to the U.S. Senate. That’s why Jeff Sessions is in trouble.”

Blitzer noted that Kislyak “now says he spoke with so many Trump officials it would take him more than 20 minutes to name them all.”

https://www.huffingtonpost.com/entry/sessions-russian-lawyers_us_5a0fb5dee4b045cf43718e96?ncid=APPLENEWS00001

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PWS
11-19-17

WSJ: 47 Years Have Passed, But The Mariel Boatlift Is Still Generating Controversy!

https://www.wsj.com/article_email/the-great-mariel-boatlift-experiment-1497630468-lMyQjAxMTI3NTEyNzIxMDc0Wj/

Ben Leubsdorf writes in the WSJ:

“In the spring and summer of 1980, some 125,000 Cuban refugees sailed from the port town of Mariel on fishing boats and pleasure craft toward the U.S., many destined to settle in Miami.

Nearly four decades later, that exodus is at the center of an unresolved, sometimes bitter argument among economists, hinging on a basic question: When foreigners come to the U.S., does their presence drive down the wages of native workers? The long-running dispute has gained new relevance as the Trump administration tries to implement and enforce a stricter immigration policy.

Research published a decade after the Mariel boatlift, as well as more recent analyses, concluded that the influx of Cuban migrants didn’t significantly raise unemployment or lower wages for Miamians. Immigration advocates said the episode showed that the U.S. labor market could quickly absorb migrants at little cost to American workers.

But Harvard University’s George Borjas, a Cuban-born specialist in immigration economics, reached very different conclusions. Looking at data for Miami after the boatlift, he concluded that the arrival of the Marielitos led to a large decline in wages for low-skilled local workers.

 While the debate rages in the academy and online, Dr. Borjas and his views are ascendant in the political realm. Attorney General Jeff Sessions cited his research for years while a senator. President Donald Trump, with whom Dr. Borjas met during last year’s campaign, has echoed the Harvard economist’s research by regularly saying that low-wage immigrants hurt some Americans.

“This is his moment,” said David Card, the author of the early research on the boatlift that Dr. Borjas is seeking to upend. (The Justice Department declined to comment, and the White House didn’t respond to requests for comment.)

Dr. Borjas has sparred for years with Dr. Card, an economist at the University of California, Berkeley, as well as with Giovanni Peri of the University of California, Davis. In 2015, Dr. Borjas and Dr. Peri released papers three months apart that arrived at wildly different conclusions about Mariel.

The argument among the academics—all immigrants themselves—has escalated into charges of bias and bad faith. Dr. Peri and a co-author dismissed Dr. Borjas’s study as having “serious limitations.” Dr. Borjas fired back that “sloppiness” in their own paper “helps obfuscate what your eyes can clearly see and leads to a claim that nothing at all happened in post-Mariel Miami.”

Dr. Card and Dr. Peri, reviewing a textbook by Dr. Borjas several months later, said that he only “presents half the story about the economics of immigration.” Last fall, in another book, Dr. Borjas compared Dr. Peri to Marxist-Leninist teachers in his native Cuba: “They believed. All that was left was to compel everyone else to believe as well.”

The real-world stakes in the dispute are considerable. More than 43 million U.S. residents were born somewhere else, and most of the rest are descended from immigrants. Still, for more than two centuries, waves of migration have provoked backlashes from Americans worried about the nation’s economy, culture and social makeup.

Among economists today, there is little controversy about the benefits of immigration for the economy as a whole. A roughly 500-page assessment last year by the National Academies of Sciences, Engineering, and Medicine, which reviewed decades of research, concluded that immigrants are “integral to the nation’s economic growth” and have little or no effect on overall employment and earnings for workers already in the U.S.

A Cuban refugee rests on his cot in Miami’s ‘tent city,’ Aug. 18, 1980. At the time, five out of every six working-age Cuban refugees in Florida’s Dade County were without a job.
A Cuban refugee rests on his cot in Miami’s ‘tent city,’ Aug. 18, 1980. At the time, five out of every six working-age Cuban refugees in Florida’s Dade County were without a job.PHOTO: ASSOCIATED PRESS

The report said that experiences aren’t the same for everyone and noted that some studies have found “sizable negative short run wage impacts” for U.S.-born high-school dropouts, the group most likely to compete for work with low-skilled immigrants.

“There’s no free lunch. There’s going to be some effect of immigration” on wages, said Pia Orrenius, a senior economist at the Federal Reserve Bank of Dallas and a member of the panel that wrote the 2016 report. But, she added, the flexible U.S. economy adapts and should render any hit to the wages of native workers “a short-run phenomenon.”

Those most exposed to competition from new arrivals have long been a focus for Dr. Borjas. “Immigration is not like manna from heaven,” he said. “It can be great on average, but it doesn’t mean that every single person benefits.”

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Read the entire article at the link.

First, I find it interesting that Dr. Borjas, who came here as an immigrant, seems so highly motivated to prove that those who came after him weren’t as “worthy.”  Sort of a “I’m OK, but you guys not so much” approach.

Second, none of these studies seem to go into the human element of immigration. What were to forces that drove the Marielitos to come? What have they accomplished in the long run? Did Americans in low wage jobs in Miami really sink into poverty and go on welfare, or did they just move on to other types of work that perhaps paid more?

Third, why don’t economists spend less time on analyzing the past and more time on figuring out how to minimize or avoid any adverse effects of immigration, even if those effects are only short-term and unequally distributed across the working population.

Fourth, I was at the “Legacy INS” during the boatlift and was involved in an intense effort to stop it. We used arrests, mass detention, vessel seizures, fines, criminal prosecutions, deterrents, warnings and public service announcements, and exclusion proceedings. But, frankly, nothing really worked until Castro closed the port of Mariel again. The Cuban Adjustment Act, which is still in effect, also made it difficult or impossible to return Cubans who had no prior criminal records.

Eventually, the Reagan Administration came up with controversial policy of high seas interdiction, which has been used in the Caribbean to some extent by every succeeding Administration. Although interdiction survived Supreme Court review, it has criticized by many and is inconsistent with at least the spirit, if not the letter, of the UN Convention and Protocol, to which we are a party. I doubt, however, that interdiction could have stopped the Cuban boat lift, given the large number of boats and American citizens of Cuban descent who participated in going to Mariel to transport relatives, friends, or former neighbors or co-workers who wanted to leave Cuba.

Fifth, and finally, I find the Mariel Boatlift to be one of the “major events” of modern U.S. refugee history.  It has left a legacy of four enforcement strategies that are still with us today:

 * The use of long-term mass civil immigration detention as a deterrent;

* High seas interdiction;

* Overall negative vibes and case law on asylum applicants who are part of a so-callled “mass migration situation” (“Scarface Syndrome,” a reference to the Al Pacino movie about a Cuban drug kingpin who used the boatlift to get a foothold in the U.S.);

* A belief that the case-by-case adjudication procedures established by the Refugee Act of 1980 are inadequate to handle mass migrations (probably one of the origins of “expedited removal” procedures).

PWS

06-18-17