发信站: BBS 水木清华站 (Thu Apr  1 13:55:51 2004), 转信

2004年2月25到3月2日, 美国教育委员会、美国研究生委员会、美国大学联合会、国际教育家协会等5所机构共同发起的一项关于外国留学生申请2004年秋季美国高等学府的调查有了结果——去年全美申请研究生的海外留学生人数整体下降了32%。

这个调查是通过2004年美国高校秋季入学的留学生人数和2003年同期相比较得出的数据结果，调查范围涉及美国530多家高等学府和研究机构。

全美从2002年到2003年，海外学生仅仅增长了0.6%，是近7年来增长最少的一年。

正如东密歇根大学负责学生入学的副校长所说，自从“9.11”劫机者之一被认定是拿F1学生签证入境的，美国整个学生签证就被钳制了。因而留学生申请入美国高校就读的人数大大降低了。

根据美国250家高校对研究生申请的反馈，47%的大学出现留学生申请人数下降的趋势，38%说没有出现变化，另外14%家学校有所增长。在130家参加调查的研究性机构，或是有资格培养博士的学府中，有59%称其海外学生申请人数下降，28%则称不变，11%为增长。

此次调查中还有19家高校是排名为美国前25的招募海外学生的研究机构。所有的这些机构都反馈申请的人数减少，其中有9家说学生申请人数减少了30%，另5家则减少了11%～30%。

去年美国研究生机构的留学生申请人数整体下降了32%。其中来自中国大陆的学生申请下降幅度居首位，申请比例相对于去年为76%。印度学生申请人数紧随其后，为58%。这两个国家都是学生输出大国。韩国学生下降了47%，居第三位；中国台湾学生下降了33%，另外，西欧学生的降幅为30%，中东为31%，其他国家是36%。

同时，来自穆斯林国家的留学生申请也在大大下降，几乎占25%以上。威利德·法依尔德（Walied Fayed）就是一个典型的例子。当他的同事在美国密歇根州立大学完成了自己的博士学业时，威利德还在埃及坐等自己的学生签证。 他的妻子函德·乌达（Hend Ouda）说： “领事馆审查签证大约需要3-4周，但是5个多月过去了，还没有拿到。他已经错失了很多工作机会了。现在我一个人在美国带着孩子。”乌达现在在美国西密歇根大学攻读博士，只身一人带着两岁大的女儿.

这份报告中还特别指出了中国留学生申请就读数量急剧锐减的情况。其中，中国学生申请研究生机构下降的比例最为厉害。参加调查的大学中，有216家特别指出对中国留学生研究生的招募情况不佳。将近有48%的学校反映中国学生申请人数减少，46%报告没有变化，6%称人数有所上升。

在前25强研究性学府中有17家反映出现这样的情况；其中有13家学校称，该校中国学生比其他国家学生申请的数目下降得快得多，申请比例下降超过30%，其中4家则为50%以上。

在对310家大学进行的调查中，有69%的学校称，中国学生申请就读本科的人数没有变化，22%的学校则称有所下降，9%的学校情况是有所增加。

中国留学生申请的各个专业的人数几乎都在下降，但是下降最多的专业是工程、物理和生物专业。受访学校中有80%在工程专业学生申请人数有所下降，65%在物理专业有所下降，50%的学校在生物、农业、教育、社会人文学科上有所下降。

在50家一流研究机构或高校中，专业下降的比率就更高了。90%的学校报道工程专业下降，80%称物理专业新生数目下降。

这些损失将使癌症、艾滋病研究滞后，对工程和科技发展有损。

此外，入学率的降低也影响到美国经济情况。据了解，每年美国都从国际学者的学费和生活费中获得128个亿。

这种下降趋势改写了美国自第二次世界大战以来广纳天下英才的盛况。

“这种形势对美国大学本身的工作造成了危害。我们丧失了很多聪敏的学生。我们应该有各种各样的学生人群，大家在一起可以交流不同的文化，使原本很狭小的世界变得更加开阔。” 东密歇根大学负责学生入学的副校长说。

美国政府会计部门的研究显示，这一问题的困难在于美国驻外领事馆严格的文件审批过程。该报告敦促美国国务院和中央情报局加强对领事馆官员的指导，改善政府各部门之间的交流渠道。

美国边界与运输安全部门副部长阿萨·哈钦森(Asa Hutchinson)最近在国会上说：“我们希望美国仍是一个乐于欢迎海外学者和科学家的国度，而不是要向我们的安全条令进行妥协。”

法依尔德就是因一个错误的移民表格而被驱逐的。他和一个被美国监视名单上的人长得很相似，所以所有的文件都无法通过。这个情况让这个年轻的三口之家陷入困境：学校也取消了他的奖学金；妻子一人在美国边读书边照顾孩子。他的妻子最近每天的学习时间是早上8:00到下午6:00，让她倍尝生活的艰辛。

“美国研究生委员会的调查结果为另人担忧的入学申请状况敲响了警钟，美国应该继续坚持她世界闻名的研究教育，而这些是通过坚持我们科学的进取心和商业的竞争力，通过保持我们文化的、智力的多样性取得的。” 美国研究生委员会主席黛布拉·斯图尔特(Debra W. Stewart) 如是说。她同时敦促美国国会和政府在保障美国国土安全的情况下，继续实质性地解决留学生在签证过程遇到的问题。

目前美国大学新生录取工作还在继续，批准入学的最终人数还不清楚。但是此项调查已可以预示未来留美学生申请的一个走向。

曾进，《华盛顿观察》周刊(Washington Observer weekly)第11期，2004/3/31

http://www.international.duke.edu/Flash/NEWSFLASH_DOSCable_20040412.htm

Student Visa Applications at Embassies and Consular Posts

Department of State Cable

Student Visa Issuance for Summer 2004.

We are pleased to see that the Department of State has issued a cable to its e

mbassies and consular posts advising them that newly admitted international st

udents will soon be applying for visas, and encouraging posts to make every ef

fort to issue student visas as quickly and efficiently as possible. We appreci

ate Mr. Powell’s attention to this issue and his recognition of the immense c

ontribution that international education makes to America – in his words, "Th

e foreign student plays an important role within the U.S. educational communit

y, in the U.S. economy, and in understanding abroad of U.S. society and values

."

The cable reminds posts that students are under deadlines that they cannot cha

nge and that posts can adjust their internal operations to help meet the expec

ted need.

Note also that paragraphs 8 and 9 speak directly to the issue of showing nonim

migrant intent and provide guidance and interpretation to the posts that posit

ively addresses some of the areas of difficulty in the past. In particular the

cable recognizes that students will not necessarily have well-formed plans fo

r work at home after graduation (similar to the situation for U.S. students),

and that the absence of such plans is not, of itself, a reason for denial of a

visa.

We reproduce the text of the cable below. It should eventually appear on the D

epartment of State website at http://travel.state.gov/visa_telegrams.htmlbut

has not yet been posted there.

UNCLAS STATE 070079

SUBJECT: THE CHALLENGING WORK OF STUDENT VISAS

REF: (A) 03 STATE 336004 (B) 03 STATE 279071 (C) 03 STATE 144850 (D) STATE

139997 (E) 03 STATE 74670 (F) STATE 11615

1. Processing student visas applications is an increasingly important part of

the mission of U.S. embassies and consulates overseas, and is growing

in visibility at home. The foreign student plays an important role within the

U.S. educational community, in the U.S. economy, and in understanding

abroad of U.S. society and values. Adjudicating student visas is perhaps one o

f the most challenging aspects of consular work. Consular managers

should place a high priority on ensuring that students have the opportunity to

apply for their visas in a timely manner. As the upcoming

academic year approaches, posts are encouraged to prepare themselves for the e

xpected increase in student visa applications during the spring and

summer months. As a first step, consular officers should review reftel (D), 03

STATE 139997, for important information on adjudicating student

visas as well as FAM notes.

2. The most important advice to pass along to students and exchange visitors i

s to encourage them to apply early. This is especially important

during the busy summer season. Work with your PAOs, local State Department-aff

iliated EducationUSA advising center (See reftel (F) for

more detail) and others involved in international education to encourage stude

nt applicants to apply as soon as they have their I-20 or DS-2019.

Remember that although you must wait until 90 days before the initial program

start date to issue a student visa, the prospective student may

actually apply before that date. Especially in countries where students often

face namecheck delays, students should be encouraged to apply as

early as possible.

3. The most important tool that consular managers have is the ability to estab

lish special procedures to expedite student and exchange visitor visa

applications. Posts have been encouraged to do so in the past, and this option

is more important than ever, especially since a personal appearance

is now required for all student visa applicants. This is especially important

in countries where students are more likely to be subject to

additional namechecks. Unlike most other visa applicants, most students are su

bject to deadlines not of their own choosing.

4. SEVIS, the Student and Exchange Visitor Information System, continues to be

a success. SEVIS contains over 1.4 million records, and past

technical problems have significantly decreased. Posts should no longer be see

ing any non-SEVIS-generated I-20 or DS-2019 forms. The SEVIS Response

Team, which was reconvened in early January, has reported a very low volume of

requests for assistance.

5. SEVIS records are most easily accessed through the SEVIS ID number. System

users should be careful to make sure that they are indicating the

correct class of visa when trying to access SEVIS records. The CCD SEVIS scree

n has a drop down visa class menu with four possible visa classes:

F-1/M-1, F-2/M-2 dependent, J-1 and J-2 dependent. If a valid SEVIS ID is chec

ked under a different visa class, the system will not match the SEVIS

ID record.

6. Consular officers should remember that at present only a limited number of

SEVIS data fields are available via the CCD. CA is working to bring

access to the entire SEVIS database to consulates. Until that time, consular o

fficers should contact CA/VO/F/P if any additional information

on a SEVIS entry is required.

7. The Visa Office works closely with the DHS SEVIS program in answering any q

uestions consular officers might have about using SEVIS. If you have

problems with individual cases or general questions about the SEVI system, ple

ase contact CA/VO/F/P. If you encounter a SEVI namecheck hit, this

means that the student may have previously violated the requirements of SEVIS

and that further questioning may be warranted. A SEVI hit does

not/not necessarily indicate any ineligibility, only that the student has been

terminated in the SEVIS system in the past. The consular officer

should determine that the student is currently a bona fide, in-status student

at the institution that issued the I-20. If consular officers

receive satisfactory answers to questions about previous studies and current e

nrollment, these SEVI cases should be processed routinely, and a

visa may be issued. The SEVI code should not be used as a sole means for denyi

ng a visa. Students and long-term intent

8. One of the greatest challenges in adjudicating a student visa is to determi

ne a student\'s ultimate intent in going to the United States to

study. While a U.S. education is valuable world-wide, there are no doubt some

prospective students who use U.S. study as the first step toward

immigration to the United States, and a few who apply for student visas with n

o intent of actually enrolling in school.

9. It is important to keep in mind, however, that students are generally young

er and by definition are just starting out in their adult lives and

careers. Many do not have concrete plans on what they will do after graduation

from a U.S. school. One of the reasons they are seeking

education in the United States is to broaden the opportunities they will have

in later life. A student can not be expected to detail his or her

post-graduate plans entirely when applying for a student visa. The relevant po

rtion of Section 101(a)(15)(F) of the Immigration and

Nationality Act specifies that the applicant have "a residence in a foreign co

untry which he has no intention of abandoning." Among the

factors a consular officer should consider are the following: Is the education

appropriate for the individual student in his or her context in

the home country? Does the student have the financial resources available to f

und his or her education in the United States without having to resort

to unauthorized employment or prolonged interruptions of study? Are there any

external factors that would encourage the student to remain in the

United States without authorization?

10. Trends and past histories of students from particular countries, backgroun

ds, etc., can be useful in assessing the likelihood that a

student will or will not return after studying in the United States, but they

should not be the determining factor. The facts in each individual

application must be carefully considered and weighed against these external fa

ctors in deciding whether or not to issue a student visa.

11. Another useful factor to consider in determining the bona fides of a stude

nt is to review how that student decided to study in the United

States. Students who can show that they have been "vetted" by other responsibl

e individuals or institutions, such as the local EducationUSA

advising center (reftel F) may better demonstrate that they are bona fide stud

ents and have an improved chance of obtaining a student visa.

12. When refusing a student visa application, it is important to explain as cl

early as possible the basis for the refusal.

English Language Proficiency and English Language Study

13. Students coming to study in the United States should have the necessary En

glish-language skills in order to successfully perform the

intended academic work at a U.S. school. Consular officers should verify that

a prospective student\'s English language ability, is consistent with

the school\'s understanding of that ability as indicated on Item 6 of the stude

nt\'s I-20. If English language proficiency is indicated but it is not

clear that the student has sufficient English language skills, further inquiry

should be made as to the student\'s abilities in English, including

a review of test scores and other information provided to the school to suppor

t their determination.

14. If it is clear that the student does not have sufficient English for the i

ntended academic program, the applicant should be advised of this

fact, and should be advised of the need to improve his/her English skills befo

re reapplying for a visa, including preparatory English study at the

original academic institution or at another school.

15. In the past two years, there has been a significant drop in the numbers of

foreign students coming to the United States to study English

for academic and business purposes. Posts are reminded that full-time study of

English for academic or business purposes is often legitimate.

Most major U.S. universities and a significant number of private organizations

offer intensive English programs for foreign students

planning to study in the United States after acquiring full English proficienc

y. There are two major consortia of leading institutions

offering English, the American Association of Intensive English Programs (AAIE

P) and University and College Intensive English Programs (UCIEP), as

well as a DOE- recognized accrediting agency, the Commission on English Langua

ge Program Accreditation (CEA). Questions about the bona-fides of

institutions offering English language studies may be directed to these organi

zations.

16. High school exchange programs continue to be an important contributor of i

nternational education in the United States. Many consular officers

have expressed concern about high school exchange students not having sufficie

nt English to be able to study in the United States. While this is

a legitimate concern, it is important to remember that one of the motivations

for many students and their parents to participate in U.S.

high school exchange programs is to improve English skills. Many high schools

are prepared to provide English language instruction as necessary

until the student can join the regular academic program. Consular officers sho

uld avoid denying visas to otherwise-qualified exchange students solely

because their English is weak. However, if it is clear that the student is com

pletely unprepared for education in an English-language environment,

then that would be legitimate grounds for refusal.

Change of Status No Longer a Good Idea

17. As mentioned in reftel (E), current realities make entering the United Sta

tes as a B-1 visitor and subsequently changing to F-1 status a

difficult and impractical option for students hoping to spend an extended leng

th of time in the United States prior to the beginning of their

studies. Recent DHS regulations now prohibit persons who enter the United Stat

es in B visitor status from changing status to F-1 without having

declared their intention to do so when they first entered the United States. D

HS regulations also now prohibit a B visitor changing status to

F-1 from actually studying until a change-of-status has been approved. What th

at realistically means is that students who enter the United States

as tourists will most likely not have their change of status approved until af

ter their academic year begins. Incoming students who plan to come

to the United States ahead of time should be cautioned about these difficultie

s in changing status, and reminded that they can enter the

United States in F-1 status up to thirty days before the start of their academ

ic program. Returning students do not face this constraint, and may

return to the United States at any time as long as they are enrolled for the n

ext academic period.

The Importance of Student Visas in our Foreign Policy

18. Enrollment of foreign students in colleges, universities and other institu

tions of higher education in the United States is a key element in

our nation\'s foreign relations. Study in the United States provides the opport

unity for students from other countries to experience the American

way of life. American-educated men and women play an important role in relatin

g U.S. customs and values when they return to their home countries.

19. Despite a decline in student visa applications over the past two years, th

e United States remains an attractive destination for

international students. During the 2002/2003 academic year, 586,323 internatio

nal students were enrolled in the United States, according to a

study by the Institute for International Education (IIE). India is the leading

source of foreign students in the U.S., followed by China, Korea,

Japan and Taiwan. Posts may read the entire IIE report at www.IIE.org.

20. Minimize considered. POWELL

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