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Summary

Presidential 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 establishes a "full" travel ban on 12 countries and a "partial" travel ban on 7 countries, effective 12:01 am eastern daylight time on June 9, 2025.

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Effective date. The proclamation is effective at 12:01 am eastern daylight time on June 9, 2025

Full ban countries. Twelve countries are subject to a full ban that suspends "entry into the United States" of nationals of those countries as "immigrants and nonimmigrants." The 12 "full ban" countries are: Afghanistan, Burma, Chad, Republic of the Congo, Equatorial Guinea, Eritrea, Haiti, Iran, Libya, Somalia, Sudan, and Yemen.

Partial ban countries. Seven countries are subject to a partial ban that suspends "entry into the United States" as immigrants and of nonimmigrants "B-1, B‑2, B-1/B-2, F, M, and J visas." The 7 "partial ban" countries are:  Burundi, Cuba, Laos, Sierra Leone, Togo, Turkmenistan, and Venezuela.

Exceptions. The ban provisions are applicable only to nationals of the subject country who are outside the U.S. without a valid visa as of June 9, 2025. Individuals who are inside the United States on June 9, 2025, or who are outside the United States on that date but have a visa that is valid as of June 9, 2025, would not be covered by the ban (see discussion below). The proclamation also states that "No immigrant or nonimmigrant visa issued before the applicable effective date of this proclamation shall be revoked pursuant to this proclamation." There are also a number of categorical exceptions, such as for lawful permanent residents, dual nationals of a designated country when the individual is traveling on a passport issued by a non-designated country, asyless, refugees, diplomatic and international organization visas, athletes coming to participate in the 2026 World Cup and the 2028 Olympics, and some other categories.

Details of the Proclamation

Proclamation of June 4, 2025 invokes INA 212(f); 8 USC 1182(f), which grants a President broad power to suspend or impose restrictions, "by proclamation," on the entry of "aliens" (the INA defines alien as "any person not a citizen or national of the United States") when he or she finds that such entry "would be detrimental to the interests of the United States." See NAFSA's page for background on INA 212(f). The proclamation asserts that on "April 9, 2025, the Secretary of State, with the Assistant to the President for Homeland Security, presented [a report] recommending that entry restrictions and limitations be placed on foreign nationals of several countries... for which vetting and screening information is so deficient as to warrant a full suspension of admissions and countries that warrant a partial suspension of admission."

The ban is rooted in the results of a report called for by Executive Order 14161 of January 20, 2025: Protecting the United States from Foreign Terrorists and Other National Security and Public Safety Threats, which directed the Secretaries of State and Homeland Security, the Attorney General, and the Director of National Intelligence to submit a joint report within 60 days (i.e., by March 21, 2025) that:

  • identifies "countries throughout the world for which vetting and screening information is so deficient as to warrant a partial or full suspension on the admission of nationals from those countries pursuant to section 212(f) of the INA"
  • identifies "how many nationals from those countries have entered or have been admitted into the United States on or since January 20, 2021"
  • and for any individual who may be covered by a country finding under this provision, directs DHS to "take immediate steps to exclude or remove that alien unless she determines that doing so would inhibit a significant pending investigation or prosecution of the alien for a serious criminal offense or would be contrary to the national security interests of the United States."

It remains to be seen whether the fact that a multi-agency "process" is involved would address any concerns about arbitrariness that the Supreme Court had suggested in the Trump v. Hawaii (June 26, 2018) case that upheld travel bans during the first Trump administration. For historical reference, see NAFSA's Archive: First Trump Administration Travel Bans page.

Countries Subject to the Travel Ban

Full restriction on 12 countries

Section 1(f) and Section 2 of the proclamation will "fully restrict and limit the entry of nationals of the following 12 countries," declaring that for each of the twelve countries:

  • "The entry into the United States of nationals of [country names 1-12] as immigrants and nonimmigrants is hereby fully suspended."

"Immigrants" refers to individuals entering the United States for the first time on an immigrant visa... people who are already lawful permanent residents are exempt as discussed in Scope and Exceptions below. The "full ban" covers all nonimmigrant categories except those listed in Scope and Exceptions, below. That would impact most of the nonimmigrant categories typically encountered in higher education, such as B visitors, F and M students, J exchange visitors, H-1B and O-1 workers, etc.

The 12 countries subject to full restrictions and the declared basis for their inclusion are:

  1. Afghanistan (basis: "The Taliban, a Specially Designated Global Terrorist (SDGT) group, controls Afghanistan.  Afghanistan lacks a competent or cooperative central authority for issuing passports or civil documents and it does not have appropriate screening and vetting measures.  According to the Fiscal Year 2023 Department of Homeland Security (DHS) Entry/Exit Overstay Report (“Overstay Report”), Afghanistan had a business/tourist (B-1/B-2) visa overstay rate of 9.70 percent and a student (F), vocational (M), and exchange visitor (J) visa overstay rate of 29.30 percent.")
  2. Burma (basis: "According to the Overstay Report, Burma had a B‑1/B-2 visa overstay rate of 27.07 percent and an F, M, and J visa overstay rate of 42.17 percent.  Additionally, Burma has historically not cooperated with the United States to accept back their removable nationals.")
  3. Chad (basis: "According to the Overstay Report, Chad had a B‑1/B-2 visa overstay rate of 49.54 percent and an F, M, and J visa overstay rate of 55.64 percent.  According to the Fiscal Year 2022 Overstay Report, Chad had a B-1/B-2 visa overstay rate of 37.12 percent.  The high visa overstay rate for 2022 and 2023 is unacceptable and indicates a blatant disregard for United States immigration laws."
  4. Republic of the Congo (basis: "According to the Overstay Report, the Republic of the Congo had a B-1/B-2 visa overstay rate of 29.63 percent and an F, M, and J visa overstay rate of 35.14 percent.")
  5. Equatorial Guinea (basis: "According to the Overstay Report, Equatorial Guinea had a B-1/B-2 visa overstay rate of 21.98 percent and an F, M, and J visa overstay rate of 70.18 percent.")
  6. Eritrea (basis: "The United States questions the competence of the central authority for issuance of passports or civil documents in Eritrea.  Criminal records are not available to the United States for Eritrean nationals.  Eritrea has historically refused to accept back its removable nationals.  According to the Overstay Report, Eritrea had a B-1/B-2 visa overstay rate of 20.09 percent and an F, M, and J visa overstay rate of 55.43 percent.")
  7. Haiti (basis: "According to the Overstay Report, Haiti had a B‑1/B-2 visa overstay rate of 31.38 percent and an F, M, and J visa overstay rate of 25.05 percent.  Additionally, hundreds of thousands of illegal Haitian aliens flooded into the United States during the Biden Administration.  This influx harms American communities by creating acute risks of increased overstay rates, establishment of criminal networks, and other national security threats.  As is widely known, Haiti lacks a central authority with sufficient availability and dissemination of law enforcement information necessary to ensure its nationals do not undermine the national security of the United States.")
  8. Iran (basis: "Iran is a state sponsor of terrorism.  Iran regularly fails to cooperate with the United States Government in identifying security risks, is the source of significant terrorism around the world, and has historically failed to accept back its removable nationals.")
  9. Libya (basis: "There is no competent or cooperative central authority for issuing passports or civil documents in Libya.  The historical terrorist presence within Libya’s territory amplifies the risks posed by the entry into the United States of its nationals.")
  10. Somalia (basis: "Somalia lacks a competent or cooperative central authority for issuing passports or civil documents and it does not have appropriate screening and vetting measures.  Somalia stands apart from other countries in the degree to which its government lacks command and control of its territory, which greatly limits the effectiveness of its national capabilities in a variety of respects.  A persistent terrorist threat also emanates from Somalia’s territory.  The United States Government has identified Somalia as a terrorist safe haven.  Terrorists use regions of Somalia as safe havens from which they plan, facilitate, and conduct their operations.  Somalia also remains a destination for individuals attempting to join terrorist groups that threaten the national security of the United States.  The Government of Somalia struggles to provide governance needed to limit terrorists’ freedom of movement.  Additionally, Somalia has historically refused to accept back its removable nationals.")
  11. Sudan (basis: "Sudan lacks a competent or cooperative central authority for issuing passports or civil documents and it does not have appropriate screening and vetting measures.  According to the Overstay Report, Sudan had a B-1/B-2 visa overstay rate of 26.30 percent and an F, M, and J visa overstay rate of 28.40 percent. ")
  12. Yemen (basis: "Yemen lacks a competent or cooperative central authority for issuing passports or civil documents and it does not have appropriate screening and vetting measures.  The government does not have physical control over its own territory.  Since January 20, 2025, Yemen has been the site of active United States military operations.")

Partial restriction on 7 countries

Section 1(g) and Section 3 of the proclamation will "partially restrict and limit the entry of nationals of the following 7 countries," declaring that for each of the seven countries:

  • "The entry into the United States of nationals of [country names 1-7] as immigrants and as nonimmigrants on B-1, B‑2, B-1/B-2, F, M, and J visas, is hereby suspended." and
  • "Consular officers shall reduce the validity for any other nonimmigrant visa issued to nationals of [country names 1-7] to the extent permitted by law."

"Immigrants" refers to individuals entering the United States for the first time on an immigrant visa... people who are already lawful permanent residents are exempt as discussed in Scope and Exceptions below. Unlike the "full ban" on the 12 countries, the "partial ban" on these 7 countries applies to B-1, B‑2, B-1/B-2, F, M, and J visas only. B-1 visas are for visitors for business, B-2 is for visitors for pleasure, the F category is for F-1 academic students and their F-2 dependents, the M category is for vocational students and their families, and the J category is for J-1 exchange visitors (of all subcategories) and their J-2 dependents. No other nonimmigrant categories are included in the "partial ban," including categories typically encountered in higher education such as H-1B and O-1 workers.

The seven countries subject to partial restrictions and the declared basis for their inclusion are:

  1. Burundi (basis: "According to the Overstay Report, Burundi had a B-1/B-2 visa overstay rate of 15.35 percent and an F, M, and J visa overstay rate of 17.52 percent.")
  2. Cuba (basis: "Cuba is a state sponsor of terrorism.  The Government of Cuba does not cooperate or share sufficient law enforcement information with the United States.  Cuba has historically refused to accept back its removable nationals.  According to the Overstay Report, Cuba had a B-1/B-2 visa overstay rate of 7.69 percent and an F, M, and J visa overstay rate of 18.75 percent.")
  3. Laos (basis: "According to the 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.  Laos has historically failed to accept back its removable nationals. ")
  4. Sierra Leone (basis: "According to the 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.  Sierra Leone has historically failed to accept back its removable nationals. ")
  5. Togo (basis: "According to the Overstay Report, Togo had a B‑1/B-2 visa overstay rate of 19.03 percent and an F, M, and J visa overstay rate of 35.05 percent. ")
  6. Turkmenistan (basis: "According to the Overstay Report, Turkmenistan had a B-1/B-2 visa overstay rate of 15.35 percent and an F, M, and J visa overstay rate of 21.74 percent. ")
  7. Venezuela (basis: "Venezuela lacks a competent or cooperative central authority for issuing passports or civil documents and it does not have appropriate screening and vetting measures.  Venezuela has historically refused to accept back its removable nationals.  According to the Overstay Report, Venezuela had a B‑1/B-2 visa overstay rate of 9.83 percent.")

Scope and Exceptions

Scope

The ban provisions are applicable only to nationals of the subject country who are outside the U.S. without a valid visa as of June 9, 2025.

Under Proclamation Section 4(a), "The suspensions of and limitations on entry pursuant to sections 2 and 3 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."

For this purpose, the proclamation effective date is "12:01 am eastern daylight time on June 9, 2025." Read inversely, individuals who are inside the United States on June 9, 2025, or who are outside the United States on that date but have a visa that is valid as of June 9, 2025, would likely not be covered by the ban. 

This interpretation is supported in a June 7, 2025 DOS Visas News posting that states (bolded in the original):

"This Presidential Proclamation only applies to foreign nationals who are outside the United States on the effective date AND do not hold a valid visa on the effective date (June 9, 2025). Foreign nationals, even those outside the United States, who hold valid visas as of the effective date are not subject to the Proclamation. No visas issued before June 9, 2025, have been or will be revoked pursuant to the Proclamation.

Visa applicants who are subject to this Presidential Proclamation may still submit visa applications and schedule interviews, but they may be ineligible for visa issuance or admission to the United States."

This interpretation and DOS's statement are from a "plain language" reading of this provision in the proclamation, that understands the conjunction "and" to mean that both conditions (i) and (ii) in the proclamation must be true together for the suspension of entry to apply. The DOS visas news article may be helpful in communicating this interpretation to both airlines and port of entry officials would have to share this interpretation. Remember that this page does not constitute legal advice, which can only be given by licensed attorneys.

No revocation of visas issued before the proclamation effective date. Proclamation Section 6(c) also states that "No immigrant or nonimmigrant visa issued before the applicable effective date of this proclamation shall be revoked pursuant to this proclamation."

Exceptions

Proclamation Section 4(b) provides that the ban restrictions categorically do not apply to the following:

  1. Any lawful permanent resident of the United States;
  2. Any dual national of a country designated under sections 2 and 3 of this proclamation when the individual is traveling on a passport issued by a country not so designated;
  3. 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;
  4. Any athlete or member of an athletic team, including 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;
  5. Immediate family immigrant visas (IR-1/CR-1, IR-2/CR-2, IR-5) with clear and convincing evidence of identity and family relationship (e.g., DNA);
  6. Adoptions (IR-3, IR-4, IH-3, IH-4);
  7. Afghan Special Immigrant Visas;
  8. Special Immigrant Visas for United States Government employees; and
  9. Immigrant visas for ethnic and religious minorities facing persecution in Iran.

Asylees and refugess also excepted. Proclamation Section 6(d) states, "This proclamation shall not apply to an individual who has been granted asylum by the United States, to a refugee who has already been admitted to the United States, or to an individual granted withholding of removal or protection under the Convention Against Torture and Other Cruel, Inhuman or Degrading Treatment of Punishment (CAT)."

Case-by-case national interest exceptions. Proclamation Sections 4(c) and 4(d) also provide for case-by-case national interest exceptions.

  • Individual exceptions made by the Attorney General. Section 4(c) creates an exception "for certain 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," when the determination is made "by the Attorney General, or her designee, in coordination with the Secretary of State and the Secretary of Homeland Security.
  • Individual exceptions made by the Secretary of State. Section 4(d) creates an exception "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."

The proclamation does not specify a form or procedure for requesting consideration of a Proclamation Section 4(c) or 4(d) individual exception, and the Department of State has not given any guidance on that. As a point of comparison, there was a national interest based waiver provision in the Trump-Pence administration's travel ban in Proclamation 9645 of September 24, 2017. An FAQ that the Bureau of Consular Affairs posted on April 10, 2018 (no longer available on the DOS website) had this to say about those waivers.

"There is no separate application for a waiver. An individual who seeks to travel to the United States should apply for a visa and disclose during the visa interview any information that might demonstrate that he or she is eligible for a waiver."

For now, there is no reason to believe that the process would be any different for the "national interest" individual exceptions under Section 4(c) or Section 4(d) of the current Presidential Proclamation 10949 of June 4, 2025.

Review of, Adjustments to, and Removal of the Ban Provisions

Regular reviews and reports. Proclamation Section 5(a) provides that "Within 90 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, describing his assessment and recommending whether any suspensions and limitations imposed by sections 2 and 3 of this proclamation should be continued, terminated, modified, or supplemented."

Note: On June 14, 2025 news outlets began reporting that an internal Department of State memo indicates that 36 more countries will be given 60 days to meet the Trump administration's benchmarks and requirements or face either a partial or full entry ban. See NAFSA's page.

Engagement with the subject countries. Proclamation Section 5(b) requires 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 sections 2 and 3 of this proclamation on measures that must be taken to comply with United States screening, vetting, immigration, and security requirements."

The case of Egypt. Proclamation Section 5(c) flags Egypt "in light of recent events" by saying the "Secretary of State, in consultation with the Attorney General, the Secretary of Homeland Security, and the Director of National Intelligence, shall provide me an update to the review of the practices and procedures of Egypt to confirm the adequacy of its current screening and vetting capabilities."

Enforcement

Proclamation Section 6(a) requires the Secretaries of State and Homeland Security to "consult with appropriate domestic and international partners, including countries and organizations, to ensure efficient, effective, and appropriate implementation of this proclamation." Proclamation Section 6(b) tells the DOS and DHS secretaries to "comply with all applicable laws and regulations" in implementing this proclamation.

No revocation of visas based on the proclamation for visas issued before the proclamation effective date. Proclamation Section 6(c) states that "No immigrant or nonimmigrant visa issued before the applicable effective date of this proclamation shall be revoked pursuant to this proclamation."

Reminder

The information contained in this resource is designed to provide general information only and should not be construed as legal advice. The application and impact of laws and government  policies and interpretations can vary widely based on the specific facts involved. While every attempt has been made to ensure that the information contained in this resource has been obtained from reliable sources, NAFSA and the publishers disclaim any and all liability resulting from reliance upon this information, or from any errors contained herein. This publication does not substitute for the direct reading of applicable laws and government guidance, nor does it constitute legal advice, which can only be obtained from licensed attorneys.

 

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