[Federal Register Volume 90, Number 242 (Friday, December 19, 2025)]
[Presidential Documents]
[Pages 59717-59729]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2025-23570]
Presidential Documents
Federal Register / Vol. 90, No. 242 / Friday, December 19, 2025 /
Presidential Documents
[[Page 59717]]
Proclamation 10998 of December 16, 2025
Restricting and Limiting the Entry of Foreign
Nationals To Protect the Security of the United States
By the President of the United States of America
A Proclamation
During my first Administration, I restricted the entry
of certain foreign nationals into the United States to
prevent national security and public safety threats
from reaching our borders. The Supreme Court upheld
these restrictions. I reinstated these successful
policies in Executive Order 14161 of January 20, 2025
(Protecting the United States From Foreign Terrorists
and Other National Security and Public Safety Threats),
and Proclamation 10949 of June 4, 2025 (Restricting the
Entry of Foreign Nationals To Protect the United States
From Foreign Terrorists and Other National Security and
Public Safety Threats).
It is the policy of the United States to protect its
citizens from foreign nationals who intend to commit
terrorist attacks, threaten our national security and
public safety, incite hate crimes, or otherwise exploit
the immigration laws for malevolent purposes.
The United States must exercise extreme vigilance
during the visa-issuance and immigration processes to
identify, prior to their admission or entry into the
United States, foreign nationals who intend to harm
Americans or our national interests. The United States
Government must ensure that admitted aliens do not
intend to threaten its citizens; undermine or
destabilize its culture, government, institutions, or
founding principles; or advocate for, aid, or support
designated foreign terrorists or other threats to our
national security.
In order to protect our Nation, as directed in
Executive Order 14161, the Secretary of State, in
coordination with the Attorney General, the Secretary
of Homeland Security, and the Director of National
Intelligence, identified countries throughout the world
for which screening and vetting information was so
deficient as to warrant a full or partial suspension of
the admission of nationals from those countries
pursuant to section 212(f) of the Immigration and
Nationality Act (INA), 8 U.S.C. 1182(f). Accordingly,
in Proclamation 10949, I restricted the entry of
foreign nationals into the United States from countries
with deficient screening and vetting information to
protect the national security and public safety of the
United States and its people. The proclamation also
directed the United States Government to immediately
engage countries identified in the proclamation on
measures that must be taken to comply with the
screening, vetting, immigration, and security
requirements of the United States.
Despite those engagements, most of the countries
identified in Proclamation 10949, as well as others,
continue to exhibit woeful inadequacies in screening,
vetting, and provision of information. At least one
country lacks mechanisms in hospitals to ensure births
are reported, and widespread corruption, combined with
a general lack of vetting and poor recordkeeping,
result in any non-citizen being able to obtain any
civil document from that country, particularly if that
person is willing to pay a fee or engage an individual
that specializes in assisting in such fraud. In that
same country, law enforcement records are not
maintained with the accuracy or consistency necessary
to provide representations of individuals' criminal
histories to the United
[[Page 59718]]
States Government. In another country, civil documents
like marriage licenses and birth certificates are
handwritten and stamped on regular paper, making them
highly susceptible to alteration, and there is a
fraudulent document market that produces all types of
falsified records, making written corroboration of any
visa application practically impossible. In yet another
country, criminal records are widely unreliable and
inaccessible. And in another, United States visas are
used as a tool for illicit transborder movement of
assets by corrupt government officials and organized
criminal groups. Corruption in another country even
extends to the national school system, which has
provided falsified diplomas and grade information in
the past to fraudsters who have tried to obtain student
visas and eligibility for large athletic scholarships.
The government of another country refuses to provide
passport exemplars, undermining the United States
Government's ability to detect fraudulent documents. In
another country, the population, for the most part,
does not formally document life events. This makes
effective verification of basic biographical data such
as birthdates, marriages, and parentage exceedingly
difficult, if not impossible. Such countries warrant
continued or new travel restrictions.
Further, after continuing their review, and in light of
the experience gained since the issuance of
Proclamation 10949 and the reaction of foreign
countries to the issuance of that proclamation, the
Secretary of State, the Attorney General, the Secretary
of Homeland Security, and the Director of National
Intelligence have identified additional countries that
cannot meet basic criteria for identifying their
nationals and residents who pose national security and
public safety threats and for sharing information with
the United States. For example, only 40 percent of one
country's territory is under complete government
control, and officials there have noted that their
ability to securely process, house, or monitor non
citizens is constrained. In another country, corruption
in various forms is pervasive. Other countries have
been subject to successful efforts to overthrow or
undermine their governments, with the result that
radical terrorist groups operate with minimal, if any,
interference from law enforcement, engaging in forced
labor, sex trafficking, illegal drug manufacturing and
distribution, and other activities that destabilize
such countries. And, because of the poor documentation
practices and corrupt governments in these countries,
there can be little assurance that the foreign
nationals from these countries who seek to come to
America on immigrant or nonimmigrant visas are not
bringing these criminal enterprises with them to the
United States.
According to United States law enforcement reporting,
foreign nationals from countries named in this
proclamation have been involved with crimes that
include murder, terrorism, embezzling public funds,
human smuggling, human trafficking, and other criminal
activity. Many of these countries are ranked in the top
third of countries for criminality, and widely
unreliable foreign civil documents and lack of
authoritative criminal information make it extremely
difficult for United States screening and vetting
authorities to assess prior criminal activity and other
grounds of inadmissibility.
Finally, some of these countries have offered
Citizenship by Investment (CBI) without residency,
which poses challenges for screening and vetting
purposes. As an example, a foreign national from a
country that is subject to travel restrictions could
purchase CBI from a second country that is not subject
to travel restrictions, obtain a passport in the
citizenship of that second country, and subsequently
apply for a United States visa for travel to the United
States, thus evading the travel restrictions on his or
her first country. Additionally, United States law
enforcement and the Department of State have found
that, historically, CBI programs have been susceptible
to several risks. These risks include allowing an
individual to conceal his or her identity and assets to
circumvent travel restrictions or financial or banking
restrictions.
[[Page 59719]]
Foreign nationals from the countries described above
have also exploited the historic generosity of the
United States and violated our Nation's immigration
laws by not adhering to the terms of their nonimmigrant
or immigrant visas. As cited in the Department of
Homeland Security (DHS) Entry/Exit Overstay Report,
foreign nationals from many countries have high
nonimmigrant visa overstay rates. These visa overstays
and other abuses flagrantly violate United States
immigration laws, despite generous incentives offered
by my Administration--for example, the ability to self-
deport using the CBP Home app. To faithfully uphold
United States immigration law, the flow of foreigners
from countries with high overstay rates or significant
fraud must stop.
In addition, the implementation of Proclamation 10949
counsels narrowing the categorical exceptions described
in that proclamation to prevent exploitation by foreign
nationals. For example, immigrant visas for family
members of individuals in the United States will no
longer be a broad categorical exception. As described
above, the countries to which this proclamation applies
have persistent, chronic vetting deficiencies that
impede conclusive admissibility determinations and that
are readily exploitable to threaten United States
national security and public safety. These deficiencies
include poor civil documentation and recordkeeping
practices, widespread corruption and fraud, unreliable
or inaccessible criminal records, and unreliable
government travel documents. These pervasive risks
concerning nationals from the covered countries apply
with at least equal force to family-based visa
applications--which comprise most of the immigrant visa
applications from such countries--and potentially with
even greater force. Familial ties can serve--and, in
the past, have in fact served, based on concrete
information provided by United States law enforcement
and the Department of State--as unique vectors for
fraudulent, criminal, or even terrorist activity
through means such as the domestic or international
financing of such activity. Broadly excepting most
immigrant visa applicants from the countries whose
risks and deficiencies most gravely threaten America is
inconsistent with protecting our national security and
with the purpose of driving greater cooperation and
vetting improvements by these specific countries. This
is particularly true in light of the large numbers of
individuals granted United States immigration status
during the prior administration without sufficient
documentation and vetting mechanisms in place, whose
family members might take advantage of such an
exception, just as criminals have taken advantage of
family-based visas in the past. Accordingly, I have
determined that the risks from the classes of aliens
covered by this proclamation cannot be satisfactorily
mitigated absent resolution of the predominating
country-specific concerns, and any extraordinary cases
can be appropriately addressed through the national-
interest exceptions provided for in this proclamation
and Proclamation 10949.
As a result of these reviews and considerations, I have
decided--as described in sections 2 and 3 of this
proclamation--to continue to impose and modify the
limitations set forth in sections 2 and 3 of
Proclamation 10949 on the entry into the United States
by certain classes of foreign nationals. Also, I have
decided--as described in sections 4 and 5 of this
proclamation--to impose the limitations set forth below
on the entry into the United States by certain other
classes of foreign nationals.
NOW, THEREFORE, I, DONALD J. TRUMP, President of the
United States of America, by the authority vested in me
by the Constitution and the laws of the United States
of America, including sections 212(f) and 215(a) of the
INA, 8 U.S.C. 1182(f) and 1185(a), and section 301 of
title 3, United States Code, hereby find that, absent
the measures set forth in this proclamation, the
immigrant and nonimmigrant entry into the United States
of persons described in sections 2, 3, 4, and 5 of this
proclamation would be detrimental to the interests of
the United States, and that their entry should be
subject to certain restrictions, limitations, and
exceptions. I therefore hereby proclaim the following:
[[Page 59720]]
Section 1. Policy and Purpose. (a) It is the policy of
the United States to protect its citizens from
terrorist attacks and other national security and
public safety threats. Screening and vetting protocols
and procedures associated with visa adjudications and
other immigration processes play a critical role in
implementing that policy. These protocols and
procedures enhance our ability to detect foreign
nationals who may commit, aid, or support acts of
terrorism, or otherwise pose a safety threat, and they
aid our efforts to prevent such foreign nationals from
entering the United States.
(b) Identity-management and information-sharing
standards and practices of foreign governments impact
the effectiveness of the screening and vetting
protocols and procedures of the United States. Foreign
governments manage the identity and travel documents of
their nationals and residents. They also control the
circumstances under which they provide information
about their nationals and residents to other
governments, including information about known and
suspected terrorists and criminals.
It is, therefore, the policy of the United States to
take all necessary and appropriate steps to encourage
foreign governments to improve their identity-
management and information-sharing protocols and
procedures and to regularly share their identity and
threat information with the screening and vetting
systems of the United States.
(c) Proclamation 10949 directed the United States
Government to fully restrict and limit the entry of
nationals of the following 12 countries: Afghanistan,
Burma, Chad, Republic of the Congo, Equatorial Guinea,
Eritrea, Haiti, Iran, Libya, Somalia, Sudan, and Yemen.
The proclamation directed the United States Government
to partially restrict and limit the entry of nationals
of the following 7 countries: Burundi, Cuba, Laos,
Sierra Leone, Togo, Turkmenistan, and Venezuela.
Additionally, the proclamation directed the Secretary
of State, in consultation with the Attorney General,
the Secretary of Homeland Security, and the Director of
National Intelligence, to immediately engage each of
the countries identified in the proclamation on
measures that must be taken to comply with United
States screening, vetting, immigration, and security
requirements.
(d) Proclamation 10949 directed the Secretary of
State, in consultation with the Attorney General, the
Secretary of Homeland Security, and the Director of
National Intelligence, to submit a report to the
President, through the Assistant to the President for
Homeland Security, describing his assessment and
recommending whether any suspensions and limitations
imposed by the proclamation should be continued,
terminated, modified, or supplemented.
(e) The Secretary of State, with the Assistant to
the President for Homeland Security, presented the
report described in subsection (d) of this section,
recommending that entry restrictions and limitations
continue to apply to foreign nationals of several
countries. The report also identified additional
countries for which vetting and screening information
is so deficient as to warrant a full or partial
suspension of admission. These recommendations follow
the engagement with foreign countries that I directed
in Proclamation 10949.
(f) In evaluating the recommendations from the
Secretary of State and determining whether and to what
extent to impose, or continue to impose, restrictions
for each country, I consulted with the Secretary of
State, the Secretary of War, the Attorney General, the
Secretary of Homeland Security, the Director of
National Intelligence, appropriate Assistants to the
President, and the Director of the Central Intelligence
Agency. I considered foreign policy, national security,
and counterterrorism goals. I further considered
various factors, including each country's screening and
vetting capabilities, information-sharing policies, and
country-specific risk factors, including whether each
country has a significant terrorist presence within its
territory, its visa-overstay rate, and its cooperation
with accepting back its removable nationals. Each of
these factors, including visa-overstay rates, was just
one of the factors considered in making the
determinations in this proclamation, and the
determinations in this proclamation are based on the
totality of
[[Page 59721]]
the circumstances with respect to each country after a
review of all relevant factors.
I also considered the different risks posed by aliens
admitted on immigrant visas and those admitted on
nonimmigrant visas. Persons admitted on immigrant visas
are, or can become, lawful permanent residents of the
United States. Such persons admitted on immigrant visas
may present national security or public safety concerns
that may be distinct from those admitted as
nonimmigrants. The United States affords lawful
permanent residents more enduring rights than it does
to nonimmigrants. Lawful permanent residents are more
difficult to remove than nonimmigrants, even after
national security or public safety concerns arise,
which increases the costs and aggravates the dangers of
errors associated with admitting such individuals. And
although immigrants are generally subject to more
extensive vetting than nonimmigrants, such vetting is
far less reliable when the country from which someone
seeks to emigrate maintains inadequate identity-
management or information-sharing policies or otherwise
poses risks to the national security or public safety
of the United States.
I reviewed these factors and assessed these goals, with
a particular focus on crafting country-specific
restrictions. This approach was designed to encourage
cooperation with the relevant countries in recognition
of each country's unique circumstances. The
restrictions and limitations imposed by this
proclamation are, in my judgment, necessary to prevent
the entry or admission of foreign nationals about whom
the United States Government lacks sufficient
information to assess the risks they pose to the United
States. The restrictions and limitations imposed by
this proclamation are necessary: to garner cooperation
from foreign governments, including as to reducing
overstay rates of their nationals; enforce our
immigration laws; and advance other important foreign
policy, national security, and counterterrorism
objectives. Under the current circumstances, without
the restrictions and limitations imposed in this
proclamation, the entry or admission of such foreign
nationals is detrimental to the national interest.
(g) After reviewing the report described in
subsection (d) of this section, and after accounting
for the foreign policy, national security, and
counterterrorism objectives of the United States, I
have determined to continue to fully restrict and limit
the entry of nationals of the following 12 countries:
Afghanistan, Burma, Chad, Republic of the Congo,
Equatorial Guinea, Eritrea, Haiti, Iran, Libya,
Somalia, Sudan, and Yemen. These restrictions
distinguish between, but apply to both, the entry of
immigrants and nonimmigrants.
(h) After reviewing the report described in
subsection (d) of this section, and after accounting
for the foreign policy, national security, and
counterterrorism objectives of the United States, I
have determined to fully restrict and limit the entry
of nationals of 7 additional countries: Burkina Faso,
Laos, Mali, Niger, Sierra Leone, South Sudan, and
Syria. These restrictions distinguish between, but
apply to both, the entry of immigrants and
nonimmigrants. I have also determined to fully restrict
and limit the entry of individuals using travel
documents issued or endorsed by the Palestinian
Authority (PA).
(i) After reviewing the report described in
subsection (d) of this section, and after accounting
for the foreign policy, national security, and
counterterrorism objectives of the United States, I
have determined to continue to partially restrict and
limit the entry of nationals of the following 4
countries: Burundi, Cuba, Togo, and Venezuela. I have
also decided to modify the partial restriction and
limitation on the entry of nationals of Turkmenistan.
These restrictions distinguish between, but apply to
both, the entry of immigrants and nonimmigrants.
(j) After reviewing the report described in
subsection (d) of this section, and after accounting
for the foreign policy, national security, and
counterterrorism objectives of the United States, I
have determined to partially restrict and limit the
entry of nationals of the following 15 countries:
Angola, Antigua and Barbuda, Benin, Cote d 'Ivoire,
Dominica, Gabon, The Gambia,
[[Page 59722]]
Malawi, Mauritania, Nigeria, Senegal, Tanzania, Tonga,
Zambia, and Zimbabwe. These restrictions distinguish
between, but apply to both, the entry of immigrants and
nonimmigrants.
(k) Sections 4 and 5 of this proclamation describe
some of the identity-management and information-sharing
inadequacies that led me to impose, or continue to
impose, the restrictions described in this
proclamation. These inadequacies are sufficient to
justify my finding that unrestricted entry of nationals
from the named countries would be detrimental to the
interests of the United States. Publicly disclosing
additional details on which I relied in making these
determinations, however, would cause serious damage to
the national security of the United States, and many
such details are classified.
Sec. 2. Continued Full Suspension of Entry for
Nationals of Countries of Identified Concern. The entry
into the United States of nationals of the following
countries continues to be suspended and limited as set
forth in Proclamation 10949 and herein, subject to the
categorical exceptions and case-by-case waivers
described in section 6 of this proclamation:
(a) Afghanistan;
(b) Burma;
(c) Chad;
(d) Republic of the Congo;
(e) Equatorial Guinea;
(f) Eritrea;
(g) Haiti;
(h) Iran;
(i) Libya;
(j) Somalia;
(k) Sudan; and
(l) Yemen.
Sec. 3. Continued Partial Suspension of Entry for
Nationals of Countries of Identified Concern. The entry
into the United States of nationals of the following
countries continues to be suspended and limited as set
forth in Proclamation 10949 and herein, subject to the
categorical exceptions and case-by-case waivers
described in section 6 of this proclamation:
(a) Burundi;
(b) Cuba;
(c) Togo; and
(d) Venezuela.
Sec. 4. Full Suspension of Entry for Nationals of
Countries of Identified Concern. The entry into the
United States of nationals of the following countries
is hereby suspended and limited, as follows, subject to
the categorical exceptions and case-by-case waivers
described in section 6 of this proclamation:
(a) Burkina Faso
(i) According to the Department of State, terrorist organizations continue
to plan and conduct terrorist activities throughout Burkina Faso. According
to the Fiscal Year 2024, Department of Homeland Security (DHS) Entry/Exit
Overstay Report (``Overstay Report''), Burkina Faso had a B-1/B-2 visa
overstay rate of 9.16 percent and a student (F), vocational (M), and
exchange visitor (J) visa overstay rate of 22.95 percent. Additionally,
Burkina Faso has historically refused to accept back its removable
nationals.
(ii) The entry into the United States of nationals of Burkina Faso as
immigrants and as nonimmigrants is hereby fully suspended.
[[Page 59723]]
(b) Laos
(i) According to the Overstay Report, Laos had a B-1/B-2 visa overstay rate
of 28.34 percent and an F, M, and J visa overstay rate of 11.41 percent.
According to the Fiscal Year 2023, Department of Homeland Security (DHS)
Entry/Exit Overstay Report (``2023 Overstay Report''), Laos had a B-1/B-2
visa overstay rate of 34.77 percent and an F, M, and J visa overstay rate
of 6.49 percent. Additionally, Laos has historically failed to accept back
its removable nationals.
(ii) The entry into the United States of nationals of Laos as immigrants
and as nonimmigrants is hereby fully suspended.
(c) Mali
(i) According to the Department of State, armed conflict between the Malian
government and armed groups is common throughout the country. Terrorist
organizations operate freely in certain areas of Mali.
(ii) The entry into the United States of nationals of Mali as immigrants
and as nonimmigrants is hereby fully suspended.
(d) Niger
(i) According to the Department of State, terrorists and their supporters
are active in planning kidnappings in Niger, and they may attack anywhere
in the country. According to the Overstay Report, Niger had a B-1/B-2 visa
overstay rate of 13.41 percent and an F, M, and J visa overstay rate of
16.46 percent.
(ii) The entry into the United States of nationals of Niger as immigrants
and as nonimmigrants is hereby fully suspended.
(e) Sierra Leone
(i) According to the Overstay Report, Sierra Leone had a B-1/B-2 visa
overstay rate of 16.48 percent and an F, M, and J visa overstay rate of
35.83 percent. According to the 2023 Overstay Report, Sierra Leone had a B-
1/B-2 visa overstay rate of 15.43 percent and an F, M, and J visa overstay
rate of 35.83 percent. Additionally, Sierra Leone has historically failed
to accept back its removable nationals.
(ii) The entry into the United States of nationals of Sierra Leone as
immigrants and as nonimmigrants is hereby fully suspended.
(f) South Sudan
(i) According to the Overstay Report, South Sudan had a B-1/B-2 visa
overstay rate of 6.99 percent and an F, M, and J visa overstay rate of
26.09 percent. Additionally, South Sudan has historically failed to accept
back its removable nationals.
(ii) The entry into the United States of nationals of South Sudan as
immigrants and as nonimmigrants is hereby fully suspended.
(g) Syria
(i) Syria is emerging from a protracted period of civil unrest and internal
strife. While the country is working to address its security challenges in
close coordination with the United States, Syria still lacks an adequate
central authority for issuing passports or civil documents and does not
have appropriate screening and vetting measures. According to the Overstay
Report, Syria had a B-1/B-2 visa overstay rate of 7.09 percent and a F, M,
and J visa overstay rate of 9.34 percent.
(ii) The entry into the United States of nationals of Syria as immigrants
and nonimmigrants is hereby fully suspended.
(h) Palestinian Authority Documents
(i) Several United States-designated terrorist groups operate actively in
the West Bank or Gaza Strip and have murdered American citizens. Also, the
recent war in these areas likely resulted in compromised vetting and
screening abilities. In light of these factors, and considering the weak or
nonexistent control exercised over these areas by the PA, individuals
attempting to travel on PA-issued or endorsed travel documents cannot
currently be properly vetted and approved for entry into the United States.
[[Page 59724]]
(ii) The entry into the United States of foreign nationals who seek to
travel on any travel documents issued or endorsed by the PA, as immigrants
and nonimmigrants, is hereby fully suspended.
Sec. 5. Partial Suspension of Entry for Nationals of
Countries of Identified Concern. The entry into the
United States of nationals of the following countries
is hereby suspended and limited, as follows, subject to
the categorical exceptions and case-by-case waivers
described in section 6 of this proclamation:
(a) Angola
(i) According to the Overstay Report, Angola had a B-1/B-2 visa overstay
rate of 14.43 percent and an F, M, and J visa overstay rate of 21.92
percent.
(ii) The entry into the United States of nationals of Angola as immigrants,
and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas, is hereby
suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Angola to the extent permitted by
law.
(b) Antigua and Barbuda
(i) Antigua and Barbuda has historically had CBI without residency.
(ii) The entry into the United States of nationals of Antigua and Barbuda
as immigrants, and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J
visas, is hereby suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Antigua and Barbuda to the extent
permitted by law.
(c) Benin
(i) According to the Overstay Report, Benin had a B-1/B-2 overstay rate of
12.34 percent and an F, M, and J visa overstay rate of 36.77 percent.
(ii) The entry into the United States of nationals of Benin as immigrants,
and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas, is hereby
suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Benin to the extent permitted by
law.
(d) Cote d 'Ivoire
(i) According to the Overstay Report, Cote d'Ivoire had a B-1/B-2 visa
overstay rate of 8.47 percent and an F, M, and J visa overstay rate of
19.09 percent.
(ii) The entry into the United States of nationals of Cote d 'Ivoire as
immigrants, and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas,
is hereby suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Cote d 'Ivoire to the extent
permitted by law.
(e) Dominica
(i) Dominica has historically had CBI without residency.
(ii) The entry into the United States of nationals of Dominica as
immigrants, and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas,
is hereby suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Dominica to the extent permitted
by law.
(f) Gabon
(i) According to the Overstay Report, Gabon had a B-1/B-2 visa overstay
rate of 13.72 percent and an F, M, and J visa overstay rate of 17.77
percent.
[[Page 59725]]
(ii) The entry into the United States of nationals of Gabon as immigrants,
and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas, is hereby
suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Gabon to the extent permitted by
law.
(g) The Gambia
(i) According to the Overstay Report, The Gambia had a B-1/B-2 visa
overstay rate of 12.70 percent and an F, M, and J visa overstay rate of
38.79 percent. Additionally, The Gambia has historically refused to accept
back its removable nationals.
(ii) The entry into the United States of nationals of The Gambia as
immigrants, and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas,
is hereby suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of The Gambia to the extent permitted
by law.
(h) Malawi
(i) According to the Overstay Report, Malawi had a B-1/B-2 visa overstay
rate of 22.45 percent and an F, M, and J visa overstay rate of 31.99
percent.
(ii) The entry into the United States of nationals of Malawi as immigrants,
and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas, is hereby
suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Malawi to the extent permitted by
law.
(i) Mauritania
(i) According to the Overstay Report, Mauritania had a B-1/B-2 visa
overstay rate of 9.49 percent. According to the Department of State, the
Government of Mauritania has little presence in certain parts of the
country, which creates substantial screening and vetting difficulties.
(ii) The entry into the United States of nationals of Mauritania as
immigrants, and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas,
is hereby suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Mauritania to the extent permitted
by law.
(j) Nigeria
(i) Radical Islamic terrorist groups such as Boko Haram and the Islamic
State operate freely in certain parts of Nigeria, which creates substantial
screening and vetting difficulties. According to the Overstay Report,
Nigeria had a B-1/B-2 visa overstay rate of 5.56 percent and an F, M, and J
visa overstay rate of 11.90 percent.
(ii) The entry into the United States of nationals of Nigeria as
immigrants, and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas,
is hereby suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Nigeria to the extent permitted by
law.
(k) Senegal
(i) According to the Overstay Report, Senegal had a B-1/B-2 visa overstay
rate of 4.30 percent and an F, M, and J visa overstay rate of 13.07
percent.
(ii) The entry into the United States of nationals of Senegal as
immigrants, and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas,
is hereby suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Senegal to the extent permitted by
law.
(l) Tanzania
[[Page 59726]]
(i) According to the Overstay Report, Tanzania had a B-1/B-2 visa overstay
rate of 8.30 percent and an F, M, and J visa overstay rate of 13.97
percent.
(ii) The entry into the United States of nationals of Tanzania as
immigrants, and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas,
is hereby suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Tanzania to the extent permitted
by law.
(m) Tonga
(i) According to the Overstay Report, Tonga had a B-1/B-2 visa overstay
rate of 6.45 percent and an F, M, and J visa overstay rate of 14.44
percent.
(ii) The entry into the United States of nationals of Tonga as immigrants,
and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas, is hereby
suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Tonga to the extent permitted by
law.
(n) Turkmenistan
(i) Since the issuance of Proclamation 10949, Turkmenistan has engaged
productively with the United States and demonstrated significant progress
in improving its identity-management and information-sharing procedures. As
a result, the restrictions imposed on Turkmenistan in this proclamation
modify and supersede those set forth in section 3(f) of Proclamation 10949.
(ii) The suspension of entry into the United States of nationals of
Turkmenistan as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas is
lifted. Because some concerns remain, the entry into the United States of
nationals of Turkmenistan as immigrants remains suspended.
(o) Zambia
(i) According to the Overstay Report, Zambia had a B-1/B-2 visa overstay
rate of 10.73 percent and an F, M, and J visa overstay rate of 21.02
percent.
(ii) The entry into the United States of nationals of Zambia as immigrants,
and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas, is hereby
suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Zambia to the extent permitted by
law.
(p) Zimbabwe
(i) According to the Overstay Report, Zimbabwe had a B-1/B-2 visa overstay
rate of 7.89 percent and an F, M, and J visa overstay rate of 15.15
percent.
(ii) The entry into the United States of nationals of Zimbabwe as
immigrants, and as nonimmigrants on B-1, B-2, B-1/B-2, F, M, and J visas,
is hereby suspended.
(iii) Consular officers shall reduce the validity for any other
nonimmigrant visa issued to nationals of Zimbabwe to the extent permitted
by law.
Sec. 6. Scope and Implementation of Suspensions and
Limitations. (a) Scope. Subject to the exceptions set
forth in subsection (b) of this section and any
exceptions made pursuant to subsections (c) and (d) of
this section, the suspensions of and limitations on
entry pursuant to sections 2, 3, 4, and 5 of this
proclamation shall apply only to foreign nationals of
the designated countries who:
(i) are outside the United States on the applicable effective date of this
proclamation; and
(ii) do not have a valid visa on the applicable effective date of this
proclamation.
(b) Exceptions. The suspension of and limitation on
entry pursuant to sections 2, 3, 4, and 5 of this
proclamation shall not apply to:
[[Page 59727]]
(i) any lawful permanent resident of the United States;
(ii) any dual national of a country designated under sections 2, 3, 4, or 5
of this proclamation when the individual is traveling on a passport issued
by a country not so designated;
(iii) any foreign national traveling with a valid nonimmigrant visa in the
following classifications: A-1, A-2, C-2, C-3, G-1, G-2, G-3, G-4, NATO-1,
NATO-2, NATO-3, NATO-4, NATO-5, or NATO-6;
(iv) any athlete or member of an athletic team, including the coaches,
persons performing a necessary support role, and immediate relatives,
traveling for the World Cup, Olympics, or other major sporting event as
determined by the Secretary of State;
(v) Special Immigrant Visas for United States Government employees under 8
U.S.C. 1101(a)(27)(D); and
(vi) immigrant visas for ethnic and religious minorities facing persecution
in Iran.
(c) The exceptions in subsection (b) of this
section amend and supersede the exceptions set forth in
section 4(b) of Proclamation 10949 with respect to any
countries listed in section 2 or 3 of Proclamation
10949 from and after the date of this proclamation.
(d) Exceptions to the suspension of and limitation
on entry pursuant to sections 2, 3, 4, and 5 of this
proclamation may be made on a case-by-case basis for
individuals for whom the Attorney General finds, in her
discretion, that the travel by the individual would
advance a critical United States national interest
involving the Department of Justice, including when
individuals must be present to participate in criminal
proceedings as witnesses. These exceptions shall be
made only by the Attorney General, or her designee, in
coordination with the Secretary of State and the
Secretary of Homeland Security.
(e) Exceptions to the suspension of and limitation
on entry pursuant to sections 2, 3, 4, and 5 of this
proclamation may be made on a case-by-case basis for
individuals for whom the Secretary of State finds, in
his discretion, that the travel by the individual would
serve a United States national interest. These
exceptions shall be made by only the Secretary of State
or his designee, in coordination with the Secretary of
Homeland Security or her designee.
(f) Exceptions to the suspension of and limitation
on entry pursuant to sections 2, 3, 4, and 5 of this
proclamation may be made on a case-by-case basis for
individuals for whom the Secretary of Homeland Security
finds, in her discretion, that the travel by the
individual would serve a United States national
interest. These exceptions shall be made by only the
Secretary of Homeland Security or her designee, in
coordination with the Secretary of State or his
designee.
Sec. 7. Adjustments to and Removal of Suspensions and
Limitations. (a) Within 180 days of the date of this
proclamation, and every 180 days thereafter, the
Secretary of State, in consultation with the Attorney
General, the Secretary of Homeland Security, and the
Director of National Intelligence, shall submit a
report to the President, through the Assistant to the
President for Homeland Security, recommending whether
any suspensions and limitations imposed by sections 2,
3, 4, and 5 of this proclamation should be continued,
terminated, modified, or supplemented.
(b) The Secretary of State, in consultation with
the Attorney General, the Secretary of Homeland
Security, and the Director of National Intelligence,
shall continue to engage each of the countries
identified in sections 2 and 3 of this proclamation--
and shall immediately engage each of the countries
identified in sections 4 and 5 of this proclamation--on
measures that must be taken to comply with screening,
vetting, immigration, and security requirements of the
United States.
[[Page 59728]]
Sec. 8. Enforcement. (a) The Secretary of State, the
Attorney General, and the Secretary of Homeland
Security shall consult with appropriate domestic and
international partners, including countries and
organizations, to ensure efficient, effective, and
appropriate implementation of this proclamation.
(b) In implementing this proclamation, the
Secretary of State, the Attorney General, and the
Secretary of Homeland Security shall comply with all
applicable laws and regulations.
(c) No immigrant or nonimmigrant visa issued before
the applicable effective date of this proclamation
shall be revoked pursuant to this proclamation.
(d) This proclamation shall not apply to an
individual who has been granted asylum by the United
States or to a refugee who has already been admitted to
the United States. Nothing in this proclamation shall
be construed to limit the ability of an individual to
seek asylum, refugee status, withholding of removal, or
protection under the Convention Against Torture,
consistent with the laws of the United States.
Sec. 9. Severability. It is the policy of the United
States to enforce this proclamation to the maximum
extent possible to advance the national security,
foreign policy, and counterterrorism interests of the
United States. Accordingly:
(a) if any provision of this proclamation, or the
application of any provision of this proclamation to
any person or circumstance, is held to be invalid, the
remainder of this proclamation and the application of
its other provisions to any other persons or
circumstances shall not be affected thereby; and
(b) if any provision of this proclamation, or the
application of any provision of this proclamation to
any person or circumstance, is held to be invalid
because of the lack of certain procedural requirements,
the relevant executive branch official shall implement
those procedural requirements to conform with existing
law and with any applicable court orders.
Sec. 10. Effective Date. This proclamation is effective
at 12:01 a.m. eastern standard time on January 1, 2026.
Sec. 11. General Provisions. (a) Nothing in this
proclamation shall be construed to impair or otherwise
affect:
(i) the authority granted by law to an executive department or agency, or
the head thereof; or
(ii) the functions of the Director of the Office of Management and Budget
relating to budgetary, administrative, or legislative proposals.
(b) This proclamation shall be implemented
consistent with applicable law and subject to the
availability of appropriations.
(c) This proclamation is not intended to, and does
not, create any right or benefit, substantive or
procedural, enforceable by law or in equity by any
party against the United States, its departments,
agencies, or entities, its officers, employees, or
agents, or any other person.
(d) The costs for publication of this proclamation
shall be borne by the Department of State.
[[Page 59729]]
IN WITNESS WHEREOF, I have hereunto set my hand this
sixteenth day of December, in the year of our Lord two
thousand twenty-five, and of the Independence of the
United States of America the two hundred and fiftieth.
(Presidential Sig.)
[FR Doc. 2025-23570
Filed 12-18-25; 11:15 am]
Billing code 4710-05-P