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昨天我们发了一篇文章,去年拿绿卡最多的国家 ,第一是墨西哥,近 14 万人拿到了美国绿卡,其次是印度人,近 13 万。有朋友问,不是说每个国家最多不超过 7% 吗?为什么会有这么多墨西哥人和印度人?这是个好问题。今天我就简单介绍一下美国的移民配额制度。
根据美国移民法,这三类绿卡有配额限制:家庭移民、职业移民、抽奖移民。其他的类别,比如政治庇护和难民,移民法并没有规定配额。抽奖移民是为了增加美国的人口多样性,像中国、印度、墨西哥这类移民来源大国,没有资格参加,这里我们主要解释一下家庭移民和职业移民。
家庭和职业移民的配额 职业移民,Employment Based,俗称 EB,每年配额 14 万张。其中:
EB-1,2,3 分别 40,040 张 EB-4 和 5 分别 9,940 张 家庭移民,Family Based,俗称 FB,每年配额 48 万张。它分为两类:
第一类是「直系亲属移民」,就是美国公民的配偶、父母、未成年子女。这个类别的配额是 25.4 万张,但是,跟其他类别不同,他的配额用完了没关系,可以超发,不需要排期。现在平均每年都会超发 25 万张,总数 50 多万。美国一年有大约 100 万合法移民,直系亲属占了大约一半。
第二类是「家庭优先移民」,比如公民的成年子女、兄弟姐妹;绿卡的配偶、未婚子女等。他们的配额是 22.6 万张,并且,它跟职业移民一样,配额是硬性的限制,不能超发,如果用完了,就只能按优先日期排队等。在讨论绿卡排期的时候,大家说的「家庭移民」其实通常指的就是这一类,并不包括「直系亲属移民」。
家庭优先移民又细分 5 类:
F1 配额 23,400 张 F2A 是 87,934 张 F2B 是 26,266 张 F3 是 23,400 张 F4 是 65,000 张 职业移民和家庭优先移民,因为僧多粥少,每年新增的申请人数都超过批准人数,所以排期会越来越长。卡托研究所去年有个报告,最夸张的类别,比如 F-4 公民兄弟姐妹,墨西哥有 130 多万人在等排期,按照现在的前进速度,要等 230 多年才能拿到绿卡。当然,这个计算是非常粗糙的,看完这个视频您就会明白为什么。
单个国家的 7% 限制 移民法规定,在有配额限制的这几个类别中,单个国家的移民不得超过总数的 7%,但有一个例外:F2A,它的总数是 87,934 张,其中只有 25% 受国别限制,另外 75% 不受限制。
如果您仔细观察家庭移民的排期 ,你会发现,F1、F2B、F3、F4,不同国家的排期差很多,墨西哥和菲律宾是家庭移民大户,排期会比中国、印度和全球慢很多,比如墨西哥的 F1 比中国慢了 13 年。而 F2A 的话,中国、印度、菲律宾、全球,是同样的排期,墨西哥也只是落后 9 个月,差距连 1 年都不到,显得非常平均。为什么?就是因为 F2A 有 75% 的配额没有国别限制,这对墨西哥和菲律宾这两个家庭移民大国是非常有利的。
如果按照 7% 来计算,单个国家的配额上限不到 3 万张,那为什么墨西哥会有 14 万张、印度会有 13 万张、中国也有近 7 万张呢?
首先,这个数字是所有的移民类别,包括没有配额限制的直系亲属。每年,墨西哥大约有 8 万直系亲属移民,印度有 5 万左右,中国有 3 万左右。
其次,F2A 那个没有国别限制的 75% 部分,大部分是给了墨西哥。
最后,要理解印度的 13 万张、以及中国的 7 万张,就需要认识美国移民制度里的另一个概念:「配额调剂」,英文叫 Spill Over,简称 SO。
家庭和职业移民大类别的配额调剂 配额调剂有很多规则。首先是大类别的调剂:
第一,如果今年职业移民的配额没用完,为了不浪费,明年会计入家庭类别。但我们前面说了,家庭移民的第一大类,「直系亲属移民」,每年都会超发 25 万张,就算 14 万张职业移民全部拿过来,也不够抵销这个窟窿,因此不会对第二大类别产生任何影响 ——「家庭优先移民」还是 22.6 万张配额,没有变化。
第二,反过来说,如果今年家庭移民的配额没用完,那么明年会计入职业移民。过去几年就发生了这种情形。Covid 疫情期间,美国的海外领事馆关门,停止发签证。美国每年会发 100 万左右绿卡,而 2020 和 2021 财年只发了 71 万和 74 万,相当于两年少发了 60 万。
疫情冲击的主要是家庭移民,因为职业移民有很大一部分是在美国工作、同时等排期,而家庭移民类别,申请人没有合法身份,通常没法在美国等排期,而是需要在母国,等领馆处理。那几年发不出去的家庭移民配额,在接下来的财年全部送给了职业移民,导致过去 4 年的职业移民配额大幅度增加,其中 2022 财年职业移民配额高达 28 万张。随着疫情结束,海外领馆逐渐恢复办公,家庭移民也没有那么多剩余名额了,2023 财年,职业移民的配额降到了 197,000 张,2024 财年降到了 161,000 张。照这样下去,2025 财年职业移民很可能会回到 14 万张的水平,就是吃不到什么家庭移民的剩余配额了。
国家内部的配额调剂 如果一个国家的移民总数不满 7%,它的各个类别可以内部调剂。中国其实就被这么照顾过。
1989 年天安门事件之后,国会通过了《保护中国学生法案》,给在美国的中国学生发了 5 万张绿卡,俗称「六四血卡」。法案规定,这些名额将从以后中国申请人的配额里扣除,其中 EB-3 每年还 300 张、EB-5 每年还 700 张。《世界日报》2015 年有篇报道《10 万名额代价 中国移民要还百年 》。这篇报道错得很离谱 —— 首先,六四绿卡的签发数量它搞错了,不是 10 万张,是 5 万多一点。其次,他的计算是用 10 万张除以每年 1000 张,由此得出要还 100 年。这个数学没错,但是题目错了。
中国人绿卡排期长其实是最近 10 几年的事情。顺便说一句,如果移民法不改的话,很快会变得更长。原因很简单,每年新增的申请人比发放的绿卡多,排期只会越来越长。在六四绿卡那个年代,中国的职业绿卡申请人其实很少。以前中国上大学免费、毕业之后要为国家工作 5 年才能出国。直到 1990 年代中期,大学开始收费,也不再限制出国,才有了很多人来美国留学、并申请绿卡。
因此,在「六四绿卡」之后的 15 年间,EB3、EB5 依法偿还了 15,000 张,同时,这个期间,有 25,000 张绿卡配额可以分给中国、但是没人申请,也调剂过来、抵扣了六四绿卡的名额。随着中国的绿卡申请人越来越多,在 2007 财年之后,再也没有出现过「绿卡配额用不完」的情形,所以 EB3 和 EB5 每年还 1000,继续还了 14 年,到 2021 财年还清了 —— 根本不存在什么「要还百年」。这件事情,当时主管签证的国务院官员奥本海默在电话会议上确认过。
前几天我在 Twitter 上分享了客户「新未名律所」的文章,讨论《1992 年...
同一类别内不同国家的调剂 如果一个类别,来自中国的申请人超了,但是来自全世界其他国家的申请人却不够,那么他们剩下的那些配额,可以调剂给中国,不受 7% 的限制。这类情形的一个典型案例就是 EB-5 投资移民。
前面我们说了,EB-5 全球的配额是每年 9,940 张。如果按单个国家 7% 算的话,中国是 696 张。而根据《保护中国学生法案》,六四绿卡每年 EB3 还 300 张、EB5 还 700 张,那么在 2021 年还清之前,中国其实是完全没有 EB-5 名额的。
但实际上,如果你看看历年 EB-5 的签发数据,它在 2008 年前没啥人申请,2011 年之后才开始火起来,主要就是中国人一家独大 —— 从 2000 到 2018 财年,中国名义上没有任何 EB-5 名额,实际上批了 56,000 张,占全球总数的 70%!至于原因,很简单,因为其他国家的 EB-5 申请人不够,没用完的名额都调剂给了中国。
最近几年来,印度、越南的 EB-5 申请人增加,所以全球剩给中国的 EB-5 名额没那么多了,中国申请人的 EB-5 份额在大幅度下降。
不同小类别间的配额调剂 前面我们说了「大类别」的调剂。职业移民用不完,下一年送给家庭移民;家庭移民用不完,下一年送给职业移民。但是,大类别在调剂前,先会在内部做小类别的调剂。
具体来说,职业移民是这样的顺序:
EB4/5 -> EB1 EB1 -> EB2 EB2 -> EB3 EB4 宗教和特殊移民,以及 EB5 投资移民,如果全球没用完的话,剩下的名额会调剂给 EB-1。如果 EB-1 也用不完,会给 EB-2。如果 EB-2 也用不完,会给 EB-3。如果这样一圈还是没用完,才会在下一年调剂给家庭移民。
而在家庭移民的顺序是这样的:
如果 F-1 用不完,会调剂给 F-2B; 如果 F-2A 用不完,也会调剂给 F-2B; 如果 F-3 用不完,会调剂给 F-4; 如果这样还是没用完,才会在下一年调剂给职业移民。
中国申请人的移民配额与现状 根据移民法的配额、以及 7% 的比例限制,中国的配额是这样:
职业移民:
EB1/2/3 分别是 2,803 张 EB4/5 分别是 696 张。 家庭移民:
F-1 是 1,638 张 F-2A 是 1,539 张,注意这不包括那不受国别限制的 75% F-2B 是 1,839 张 F-3 是 1,638 张 F-4 是 4,550 张 注意,这些数字都是「上限」,并不是说会给你保留这么多张。每个类别的配额,都是各国的申请人按优先日期排队,先来的先拿;对于移民大国,到了 7% 的限额之后,会暂停发放,把名额发给其他国家;但是,如果其他国家没有那么多申请人,用不完,则会重新分配给这几个移民大国,按照优先日期继续发。
比方说,中国和印度都有很多 EB-3 申请人,优先日期很早的人会先拿到名额,发到 2,803 张时,触发 7% 的上限,会暂停这两个国家的发放,开始发给其他国家的申请人,虽然他们的优先日期要晚很多;如果其他国家的 EB-3 都处理完了,还剩下名额,则会重新安排给中国和印度的申请人,按优先日期继续发。
如果一个类别,大家都发完了,还剩下名额,那就会按照上面解释的顺序,调剂给其他类别。 如果所有类别都发完了,还剩下名额,那么,家庭移民剩下的总名额,会在下一年送给职业移民;职业移民剩下的总名额,会在下一年送给家庭移民。 最后,需要注意的是,移民法中说哪个国家的申请人,都是按出生地,不是国籍。所以,如果你在中国大陆出生,哪怕你后来获得了其他国家的国籍,比如英国、日本、阿根廷,你如果想申请美国移民的话,还是会被归类到中国人里,跟中国人一起排。只有极少数的例外情形,最常见的就是用你配偶的出生地,比如你跟一个意大利出生的姑娘或者小伙结婚,那么申请美国绿卡的时候,可以选择按照意大利人来排期,可能就会比中国人快很多。
好了,关于美国移民的配额我就讲到这里。如果有没讲明白的地方,请留言询问。如果有讲错的地方,请留言指正。本视频只是普及移民知识,不是法律建议,我也不是移民中介。但是,我们网站有合作的移民律师事务所,如果您需要移民方面的服务或咨询的话,可以联系他们。
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生于湖南,求学于北京,先后在广东、北京、DC 工作。一代移民,生活在美东小镇。
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