[Congressional Bills 105th Congress]
[From the U.S. Government Publishing Office]
[S. 1603 Introduced in Senate (IS)]







105th CONGRESS
  2d Session
                                S. 1603

 To provide a comprehensive program of support for victims of torture.


_______________________________________________________________________


                   IN THE SENATE OF THE UNITED STATES

                            February 4, 1998

   Mr. Grams introduced the following bill; which was read twice and 
               referred to the Committee on the Judiciary

_______________________________________________________________________

                                 A BILL


 
 To provide a comprehensive program of support for victims of torture.

    Be it enacted by the Senate and House of Representatives of the 
United States of America in Congress assembled,

SECTION 1. SHORT TITLE.

    This Act may be cited as the ``Survivors of Torture Support Act''.

SEC. 2. FINDINGS.

    Congress makes the following findings:
            (1) The American people abhor torture by any government or 
        person. The existence of torture creates a climate of fear and 
        international insecurity that affects all people.
            (2) Torture is the deliberate mental and physical damage 
        caused by governments to individuals to destroy individual 
        personality and terrorize society. The effects of torture are 
        long term. Those effects can last a lifetime for the survivors 
        and affect future generations.
            (3) By eliminating leadership of their opposition and 
        frightening the general public, repressive governments often 
        use torture as a weapon against democracy.
            (4) Torture survivors remain under physical and 
        psychological threats, especially in communities where the 
        perpetrators are not brought to justice. In many nations, even 
        those who treat torture survivors are threatened with 
        reprisals, including torture, for carrying out their ethical 
        duties to provide care. Both the survivors of torture and their 
        treatment providers should be accorded protection from further 
        repression.
            (5) A significant number of refugees and asylees entering 
        the United States have been victims of torture. Those claiming 
        asylum deserve prompt consideration of their applications for 
        political asylum to minimize their insecurity and sense of 
        danger. Many torture survivors now live in the United States. 
        They should be provided with the rehabilitation services which 
        would enable them to become productive members of our 
        communities.
            (6) The development of a treatment movement for torture 
        survivors has created new opportunities for action by the 
        United States and other nations to oppose state-sponsored and 
        other acts of torture.
            (7) There is a need for a comprehensive strategy to protect 
        and support torture victims and their treatment providers, 
        together with overall efforts to eliminate torture.
            (8) By acting to heal the survivors of torture and protect 
        their families, the United States can help to heal the effects 
        of torture and prevent its use around the world.
            (9) The United States became a party to the Convention 
        Against Torture and Other Cruel, Inhuman, or Degrading 
        Treatment or Punishment on November 20, 1994.

SEC. 3. DEFINITIONS.

    As used in this Act:
            (1) In general.--Except as otherwise provided, the terms 
        used in this Act have the meanings given those terms in section 
        101(a) of the Immigration and Nationality Act (8 U.S.C. 
        1101(a)).
            (2) Torture.--The term ``torture'' has the meaning given 
        the term in section 2340(1) of title 18, United States Code, 
        and includes the use of rape and other forms of sexual violence 
        by a person acting under the color of law upon another person 
        under his custody or physical control.

SEC. 4. UNITED STATES POLICY WITH RESPECT TO THE INVOLUNTARY RETURN OF 
              PERSONS IN DANGER OF SUBJECTION TO TORTURE.

    (a) Policy.--It shall be the policy of the United States not to 
expel, extradite, or otherwise effect the involuntary return of any 
person to a country in which there are substantial grounds for 
believing the person would be in danger of being subjected to torture, 
regardless of whether the person is physically present in the United 
States.
    (b) Regulations.--Not later than 120 days after the date of 
enactment of this Act, the heads of the appropriate agencies shall 
prescribe regulations to implement the obligations of the United States 
under Article 3 of the United Nations Convention Against Torture and 
Other Forms of Cruel, Inhuman or Degrading Treatment or Punishment, 
subject to any reservations, understandings, declarations, and provisos 
contained in the United States Senate resolution of ratification of the 
Convention.
    (c) Exclusion of Certain Aliens.--To the maximum extent consistent 
with the obligations of the United States under the Convention, subject 
to any reservations, understandings, declarations, and provisos 
contained in the United States Senate resolution of ratification of the 
Convention, the regulations described in subsection (b) shall exclude 
from the protection of such regulations aliens described in section 
241(b)(3)(B) of the Immigration and Nationality Act (8 U.S.C. 
1231(b)(3)(B)).
    (d) Review and Construction.--Notwithstanding any other provision 
of law, and except as provided in the regulations described in 
subsection (b), no court shall have jurisdiction to review the 
regulations adopted to implement this section, and nothing in this 
section shall be construed as providing any court jurisdiction to 
consider or review claims raised under the Convention or this section, 
or any other determination made with respect to the application of the 
policy set forth in subsection (a), except as part of the review of a 
final order of removal pursuant to section 242 of the Immigration and 
Nationality Act (8 U.S.C. 1252).
    (e) Authority To Detain.--Nothing in this section shall be 
construed as limiting the authority of the Attorney General to detain 
any person under any provision of law, including, but not limited to, 
any provision of the Immigration and Nationality Act.
    (f) Definitions.--
            (1) Convention defined.--In this section, the term 
        ``Convention'' means the United Nations Convention Against 
        Torture and Other Forms of Cruel, Inhuman or Degrading 
        Treatment or Punishment, done at New York on December 10, 1984.
            (2) Same terms as in the convention.--Except as otherwise 
        provided, the terms used in this section have the meanings 
        given those terms in the Convention, subject to any 
        reservations, understandings, declarations, and provisos 
        contained in the United States Senate resolution of 
        ratification of the Convention.

SEC. 5. IMMIGRATION PROCEDURES FOR TORTURE VICTIMS.

    (a) Covered Aliens.--An alien described in this section is any 
alien who presents a claim of having been subjected to torture, or whom 
there is reason to believe has been subjected to torture.
    (b) Consideration of the Effects of Torture.--In considering an 
application by an alien described in subsection (a) for refugee status 
under section 207 of the Immigration and Nationality Act, asylum under 
section 208 of that Act, or withholding of removal under section 
241(b)(3) of that Act, the appropriate officials shall take into 
account--
            (1) the manner in which the effects of torture might affect 
        the applicant's responses in the application and in the 
        interview process or other immigration proceedings, as the case 
        may be;
            (2) the difficulties torture victims often have in 
        recounting their suffering under torture; and
            (3) the fear victims have of returning to their country of 
        nationality where, even if torture is no longer practiced or 
        the incidence of torture is reduced, their torturers may have 
        gone unpunished and may remain in positions of authority.
    (c) Expedited Processing of Refugee Admissions.--For purposes of 
section 207(c) of the Immigration and Nationality Act (8 U.S.C. 
1157(c)), refugees who have been subjected to torture shall be 
considered to be refugees of special humanitarian concern to the United 
States and shall be accorded priority for resettlement at least as high 
as that accorded any other group of refugees.
    (d) Processing for Asylum and Withholding of Removal.--Section 
235(b)(1)(A) of the Immigration and Nationality Act (8 U.S.C. 
1225(b)(1)(A)) is amended by adding at the end the following new 
clause:
                            ``(iv) Special procedures for aliens who 
                        are the victims of torture.--
                                    ``(I) Expedited procedures.--With 
                                the consent of the alien, an asylum 
                                officer or immigration judge shall 
                                expedite the scheduling of an asylum 
                                interview or a removal proceeding for 
                                any alien who presents a claim of 
                                having been subjected to torture, 
                                unless the evidence indicates that a 
                                delay in making a determination 
                                regarding the granting of asylum under 
                                section 208 of the Immigration and 
                                Nationality Act or the withholding of 
                                removal under section 241(b)(3) of that 
                                Act with respect to the alien would not 
                                aggravate the physical or psychological 
                                effects of torture upon the alien.
                                    ``(II) Delay of proceedings.--With 
                                the consent of the alien, an asylum 
                                officer or immigration judge shall 
                                postpone an asylum interview or a 
                                removal proceeding for any alien who 
                                presents a claim of having been 
                                subjected to torture, if the evidence 
                                indicates that, as a result of the 
                                alien's mental or physical symptoms 
                                resulting from torture, including the 
                                alien's inability to recall or relate 
                                the events of the torture, the alien 
                                will require more time to recover or be 
                                treated before being required to 
                                testify.''.
    (e) Parole in Lieu of Detention.--The finding that an alien is a 
person described in subsection (a) shall be a strong presumptive basis 
for a grant of parole, under section 212(d)(5) of the Immigration and 
Nationality Act (8 U.S.C. 1182(d)(5)), in lieu of detention.
    (f) Exemption From Expedited Removal.--Section 235(b)(1)(F) of the 
Immigration and Nationality Act (8 U.S.C. 1225(b)(1)(F)) is amended by 
inserting before the period at the end the following: ``, or to an 
alien described in section 5(a) of the Survivors of Torture Support 
Act''.
    (g) Sense of Congress.--It is the sense of Congress that the 
Attorney General should allocate resources sufficient to maintain in 
the Resource Information Center of the Immigration and Naturalization 
Service current information relating to the use of torture in foreign 
countries.

SEC. 6. SPECIALIZED TRAINING FOR CONSULAR, IMMIGRATION, AND ASYLUM 
              PERSONNEL.

    (a) In General.--The Attorney General shall provide training for 
immigration inspectors and examiners, immigration officers, asylum 
officers, immigration judges, and all other relevant officials of the 
Department of Justice, and the Secretary of State shall provide 
training for consular officers, with respect to--
            (1) the identification of torture;
            (2) the identification of the surrounding circumstances in 
        which torture is most often practiced;
            (3) the long-term effects of torture upon a victim;
            (4) the identification of the physical, cognitive, and 
        emotional effects of torture, and the manner in which these 
        effects can affect the interview or hearing process; and
            (5) the manner of interviewing victims of torture so as not 
        to retraumatize them, eliciting the necessary information to 
        document the torture experience, and understanding the 
        difficulties victims often have in recounting their torture 
        experience.
    (b) Gender-Related Considerations.--In conducting training under 
subsection (a) (4) or (5), gender-specific training shall be provided 
on the subject of interacting with women and men who are victims of 
torture by rape or any other form of sexual violence.

SEC. 7. DOMESTIC TREATMENT CENTERS.

    (a) Amendment of the Immigration and Nationality Act.--Section 412 
of the Immigration and Nationality Act (8 U.S.C. 1522) is amended by 
adding at the end the following new subsection:
    ``(b) Assistance for Treatment of Torture Victims.--The Secretary 
may provide grants to programs in the United States to cover the cost 
of the following services:
            ``(1) Services for the rehabilitation of victims of 
        torture, including treatment of the physical and psychological 
        effects of torture.
            ``(2) Social and legal services for victims of torture.
            ``(3) Research and training for health care providers 
        outside of treatment centers, or programs for the purpose of 
        enabling such providers to provide the services described in 
        paragraph (1).''.
    (b) Funding.--
            (1) Authorization of appropriations.--Of the amounts 
        authorized to be appropriated for the Department of Health and 
        Human Services for fiscal years 1999, 2000, and 2001, there are 
        authorized to be appropriated to carry out section 412(g) of 
        that Act (relating to assistance for domestic centers and 
        programs for the treatment of victims of torture), as added by 
        subsection (a), the following amounts for the following fiscal 
        years:
                    (A) For fiscal year 1999, $5,000,000.
                    (B) For fiscal year 2000, $7,500,000.
                    (C) For fiscal year 2001, $8,000,000.
            (2) Availability of funds.--Amounts appropriated pursuant 
        to this subsection shall remain available until expended.
    (c) Effective Date.--The amendment made by subsection (a) shall 
take effect on October 1, 1998.

SEC. 8. FOREIGN TREATMENT CENTERS.

    (a) Amendments of the Foreign Assistance Act of 1961.--Part I of 
the Foreign Assistance Act of 1961 (22 U.S.C. 2151 et seq.) is amended 
by adding at the end of chapter 1 the following new section:

``SEC. 129. ASSISTANCE FOR VICTIMS OF TORTURE.

    ``(a) In General.--The President is authorized to provide 
assistance for the rehabilitation of victims of torture.
    ``(b) Eligibility for Grants.--Such assistance shall be provided in 
the form of grants to treatment centers and programs in foreign 
countries that are carrying out projects or activities specifically 
designed to treat victims of torture for the physical and psychological 
effects of the torture.
    ``(c) Use of Funds.--Such assistance shall be available--
            ``(1) for direct services to victims of torture; and
            ``(2) to provide research and training to health care 
        providers outside of treatment centers or programs described in 
        subsection (b), for the purpose of enabling such providers to 
        provide the services described in paragraph (1).''.
    (b) Funding.--
            (1) Authorization of appropriations.--Of the amounts 
        authorized to be appropriated for fiscal years 1999, 2000, and 
        2001 pursuant to chapter 1 of part I of the Foreign Assistance 
        Act of 1961, there are authorized to be appropriated to the 
        President $5,000,000 for fiscal year 1999, $7,500,000 for 
        fiscal year 2000, and $8,000,000 for fiscal year 2001 to carry 
        out section 129 of the Foreign Assistance Act of 1961, as added 
        by subsection (a).
            (2) Availability of funds.--Amounts appropriated pursuant 
        to this subsection shall remain available until expended.
    (c) Effective Date.--The amendment made by subsection (a) shall 
take effect on October 1, 1998.

SEC. 9. MULTILATERAL ASSISTANCE.

    (a) Funding.--Of the amounts authorized to be appropriated for 
fiscal years 1999, 2000, and 2001 pursuant to chapter 1 of part I of 
the Foreign Assistance Act of 1961, there are authorized to be 
appropriated to the United Nations Voluntary Fund for Victims of 
Torture (in this section referred to as the ``Fund'') the following 
amounts for the following fiscal years:
            (1) Fiscal year 1999.--For fiscal year 1999, $3,000,000.
            (2) Fiscal year 2000.--For fiscal year 2000, $3,000,000.
            (3) Fiscal year 2001.--For fiscal year 2001, $3,000,000.
    (b) Availability of Funds.--Amounts appropriated pursuant to 
subsection (a) shall remain available until expended.
    (c) Sense of Congress.--It is the sense of Congress that the 
President, acting through the United States Permanent Representative to 
the United Nations, should--
            (1) request the Fund--
                    (A) to find new ways to support and protect 
                treatment centers and programs that are carrying out 
                rehabilitative services for victims of torture; and
                    (B) to encourage the development of new such 
                centers and programs;
            (2) use the voice and vote of the United States to support 
        the work of the Special Rapporteur on Torture and the Committee 
        Against Torture established under the Convention Against 
        Torture and Other Cruel, Inhuman or Degrading Treatment or 
        Punishment; and
            (3) use the voice and vote of the United States to 
        establish a country rapporteur or similar procedural mechanism 
        to investigate human rights violations in a country if either 
        the Special Rapporteur or the Committee Against Torture 
        indicates that a systematic practice of torture is prevalent in 
        that country.
                                 <all>