Temporary Visa Holders in the United States

For decades, the United States has been a leading destination for the world's tourists, business travelers, students, and workers. In the last ten years, that position that has been challenged by developments including the COVID-19 pandemic and restrictive immigration policies of the Trump administration.

The pandemic sent temporary (“nonimmigrant”) visa issuances plunging, but they largely rebounded once embassies reopened and global travel resumed, in some categories even surpassing prepandemic levels. Recent policy changes, such as the Trump administration's restrictions for international students and skilled workers, have complicated that recovery. The number of all temporary visas issued in the first five months of fiscal year (FY) 2026 (October 2025 through February 2026, the latest publicly available data) represented a 23 percent decline over the same period in FY 2025.1 During this period, the number of permanent (“immigrant”) visas issued via consulates and embassies abroad fell by 25 percent.2

The vast majority of temporary visas are issued to short-term visitors, including tourists and business travelers. The United States has witnessed a recent decline in these visitors, which may be caused by factors including lengthy visa processing times, high U.S. travel costs, and diminished perceptions of the United States as a welcoming place to visit.3

Using data from the State Department and the Department of Homeland Security (DHS), this Spotlight examines trends in temporary visa issuance and admission since FY 2000 and provides information on temporary visa holders in the United States, including top countries of origin and the three top visa categories: visitors for pleasure or business, international students and exchange visitors, and temporary workers.

Note: All yearly data are for the government’s fiscal year, which runs from October 1 through September 30. Unless stated otherwise, all data refer to the number of temporary visas issued in a given year, not the number of temporary visa holders (“stock”) residing in the United States.

Visa Issuance and Nonimmigrant Admission Trend

The number of foreign nationals coming to the United States temporarily each year can be estimated in two ways: by the number of visas granted by the State Department through its embassies and consular offices abroad, or by admissions into the country at ports of entry reported by DHS (see Box 2).

Temporary visa issuances have generally risen over the past quarter century, but external shocks have repeatedly interrupted that growth (see Figure 1). Issuances fell by 36 percent between FY 2001 and FY 2003, after the 9/11 attacks. They dipped again during the Great Recession, in FY 2009. The COVID-19 pandemic caused the sharpest fall on record, to fewer than 3 million in FY 2021, but issuances rebounded quickly to a new high of about 11 million in FY 2024. Almost immediately after returning to the White House, the Trump administration began tightening visa opportunities for various groups, and issuances declined to 10.7 million in FY 2025.

Nonimmigrant Admissions

Unlike trends in temporary visa issuances, the number of nonimmigrant admissions has not fully recovered since the pandemic. While nonimmigrant admissions have risen since FY 2021, they had not reached prepandemic admissions levels by FY 2024, the most recent year for which data are available, although I-94 admissions experienced a stronger relative recovery, largely due to the easing of pandemic restrictions (see Figure 2).4

Trends in visa issuances and admissions differ slightly. The FY 2022-24 surge in visa issuances likely partly reflects a backlog of visas and border crossing cards (issued to Mexican nationals) that expired during the pandemic and had to be renewed, showing how issuances can increase while entries remain below prepandemic levels.

Nonimmigrants in the United States

As of FY 2024, 3.6 million nonimmigrants were temporarily living in the country, up from 3.1 million in FY 2019, according to the most recent DHS estimates.5 About 47 percent were temporary workers, 43 percent were international students and exchange visitors, and the remainder were diplomats and others.

Countries of Origin

Most nonimmigrants must obtain a visa to enter the United States. Nationals of Mexico, India, and mainland China received about 46 percent of the 10.7 million nonimmigrant visas issued by the State Department in FY 2025.6 Nationals of Brazil, Colombia, Argentina, the Philippines, the Dominican Republic, Ecuador, and Vietnam rounded out the top ten national origin groups. These ten countries accounted for 70 percent of all temporary visas issued in FY 2025.

Focusing on the decade-long trend, Mexico has been the top country for temporary visas since FY 2019, when it overtook China (see Figure 3).7 Despite the severe restrictions on visa issuances to Chinese nationals during the COVID-19 pandemic, the number of temporary visas granted to these individuals has steadily grown since then. Still, the nearly 1.1 million visas issued to Chinese applicants in FY 2025 were much fewer than the 2.3 million in FY 2016. While Indian nonimmigrant visa issuances have remained higher, and grew between FY 2022 and FY 2023, they have plateaued since, hovering under 1.4 million temporary visas. Brazilian and Colombia visa issuances too have generally increased since the pandemic, with both countries exceeding prepandemic numbers during the Biden administration.

As of FY 2024, 33 percent of the 3.6 million foreign nationals residing in the United States on a temporary visa were from India, according to DHS data.8 Other top nationalities were Chinese and Mexicans (each accounting for about 11 percent of the resident nonimmigrant population), Canadians (4 percent), and South Koreans (3 percent).

Changes toward Cuban Nationals

The number of nonimmigrant visas issued to Cubans has fluctuated dramatically over the last 20 years (see Figure 4). From a high of 41,000 visas in FY 2014, amid the Obama administration’s efforts to normalize relations with Cuba, issuances of temporary visas fell to just under 7,000 in FY 2018 as the Trump administration rolled back the changes in its first term. U.S.-Cuban relations have rapidly deteriorated since the Trump administration returned to office in 2025. On his first day back, President Donald Trump reclassified Cuba as a state sponsor of terrorism,9 leading to tighter travel restrictions.10 Although temporary visa issuances to Cubans increased following the pandemic, they dropped 41 percent between FY 2024 and FY 2025.

Temporary Visitors

The largest group of nonimmigrants coming to the United States are visitors traveling for pleasure or for business. Most tourists and business travelers can enter the country with a B visa or through the Visa Waiver Program, if their country is eligible. Despite the dip in issuances during the pandemic, these visitors have received about three-quarters of all temporary visas since FY 2016 (see Figure 5). In both FY 2024 and FY 2025, the State Department issued approximately 8.4 million visitor visas.

In FY 2025, Mexicans were the largest recipients of U.S. visitor visas, accounting for 24 percent of recipients, up from 14 percent in FY 2016 (see Figure 6).11 Nearly all of these issuances (98 percent in FY 2025) were of border crossing cards, which function as both a visa and identity document; holders can make short visits within the U.S border zone, often for shopping or to visit family, without the need to obtain an I-94 record at the border. Those traveling farther into the United States must obtain an I-94 record.

The number of visitor visas issued to Mexican nationals grew by 80 percent between FY 2019, before COVID-19, and FY 2025.12 Issuances of visitor visas to applicants from India and Brazil also grew significantly, by 61 percent and 56 percent, respectively, over this period, while the number issued to Chinese applicants declined by 8 percent.

However, the number of tourist and business visitor visas has fallen more recently. In the first five months of FY 2026, the most recent period for which data are available, the State Department issued 23 percent fewer B visas than over the same period in FY 2025.13 Among the most common top countries of origin, the number of B visas issued to Mexicans fell by 30 percent while those to Brazilians fell by about 26 percent.

International Students and Exchange Visitors

Student and exchange visitor visa issuances briefly recovered from pandemic-era lows before dropping again. In FY 2023, a recent high of 827,200 visas were issued to students and exchange visitors, with more than one-quarter to nationals of three countries: China, India, or South Korea (see Figure 7).14 After being briefly overtaken by India, China returned to its place as the top origin country for new student visas in FY 2025, but overall student visa issuances for both countries were lower than in FY 2023 and FY 2024.

In the first five months of FY 2026, the most recent period for which data are available, the State Department issued 29 percent fewer student and exchange visitor visas than over the same period in FY 2025.15 Among the most common top countries of origin, the number of visas issued to Indians fell by 60 percent while those to Chinese fell by about 37 percent.

Other data on international students at U.S. colleges and universities confirm the recent enrollment decline. For instance, newly arrived students accounted for 24 percent of all 1.2 million international students in the 2024-25 school year, down from 29 percent of the 1 million international students in the 2015-16 school year.16 This decline can be attributed to a variety of factors, including the State Department’s pause of student visa interviews in early 2025, creating a backlog of visa applications that reduced the number of international enrollees in the fall.17

Analysts warn that immigration crackdowns, stricter time limitations for student F visas and exchange visitor J visas (which are used, for instance, for internationally trained physicians seeking graduate medical training in the United States), and a proposal to reduce post-graduate employment pathways for international students, among other policies, are likely to make the United States a less attractive destination in both the short and long term.18

Temporary Workers

Visa issuance trends have varied over the past decade depending on the category of temporary worker (see Figure 8). H-1B visas have fluctuated significantly, with a sharp pandemic-related decline in FY 2020 and FY 2021 that was much more pronounced than other key work visas. H-1B visa issuances rebounded quickly after COVID-19 and exceeded prepandemic numbers in FY 2022 and FY 2023 but then fell again in FY 2024 and FY 2025. Meanwhile, H-2A visa issuances increased through the pandemic, although they have flatlined since FY 2022 at around 315,000. H-2B, L-1, O-1, and P-1/P-2/P-3 visa issuances have all recovered from pandemic-induced slumps but have also flatlined since FY 2022.

Recent Trump administration policies may reduce the number of H-1B temporary workers. A September 2025 proclamation raised the H-1B visa employer-paid fee from $2,000-$5,000 per petition to $100,000.19 Although a federal judge vacated this fee in June 2026,20 the Trump administration has continued to try to make the H-1B process more restrictive. In August 2026, it proposed another employer-paid fee of more than $103,000 on certain H-1B visa petitions21 and, in September 2026, proposed removing the 60-day grace period following a job loss for H-1B visa holders.22 Through the first five months of FY 2026 (the most recent data available), the State Department issued 52 percent fewer H-1B visas than over the same period in FY 2025.23 The number of H-2B visas issued fell by 44 percent during the same period.

Total temporary worker visa issuances exceeded prepandemic levels by FY 2022 (see Figure 9). Mexicans and Indians were the largest recipients of temporary work visas in FY 2025, receiving 37 percent and 27 percent, respectively, of all 1.2 million temporary work visas. China, Japan, and the United Kingdom were the other top origin countries for new issuances.

Despite the large number of temporary work visas, issuances to Indian nationals took a strong hit in FY 2026, falling by 58 percent through the first five months of the fiscal year compared to the same period in FY 2026.24 Issuances to Chinese nationals fell by 30 percent over this period and issuances to Mexicans and British nationals fell by 11 percent each. Overall, temporary worker visas fell by 29 percent.

The disproportionate effect on Indian temporary workers may reflect changes in the H-1B visa, since Indians are the primary recipients. In FY 2025, 70 percent of approved H-1B applicants were from India.25

Sources

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Anderson, Stuart. 2026. Judge Strikes Down Latest Version of $100,000 H-1B Immigration Fee. Forbes, October 1, 2026.

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Batalova, Jeanne and Michael Fix. 2026. Physicians in an Era of Changing Immigration Policy: The Case of Nephrology. Washington, DC: Migration Policy Institute (MPI).

CBS News Miami. 2025. Trump Reinstates Cuba as State Sponsor of Terrorism, Reversing Biden's Decision. CBS News, January 21, 2025.

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---. N.d. 2025 Fast Facts. Fact sheet, IIE, Washington, DC. Accessed October 19, 2026.

Maldonado, Mauricio. 2025. South Florida Republicans Slam Biden over Cuba Terror List Removal. CBS News Miami, January 14, 2025.

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Richter, Felix. 2025. Which Countries Are Turning Their Backs on U.S. Travel? Statista, December 12, 2025.

Sanchez, Olivia. 2026. International Applications Dropped 10% This Year. Inside Higher Ed, August 20, 2026.

U.S. Citizenship and Immigration Services (USCIS). 2025. Presidential Proclamation on Restriction on Entry of Certain Nonimmigrant Workers. News release, October 20, 2025.

---. 2026. Characteristics of H-1B Specialty Occupation Workers. Washington DC: USCIS.

---. 2026. Eliminating the Discretionary 60-Day Grace Period. Federal Register 91 (175), September 11, 2026: 57807-28.

---. 2026. Fee for Certain H-1B Petitions. Federal Register 91 (163), August 25, 2026: 54817-39.

U.S. Citizenship and Immigration Services (USCIS) and Labor Department, Employment and Training Administration (ETA) and Wage and Hour Division. 2026. Exercise of Time-Limited Authority to Increase the Fiscal Year 2026 Numerical Limitation for the H-2B Temporary Nonagricultural Worker Program. Federal Register 91 (22), February 3, 2026: 5040-74.

U.S. Customs and Border Protection (CBP). 2025. Agency Information Collection Activities; Revision; Arrival and Departure Record (Form I-94) and Electronic System for Travel Authorization (ESTA). Federal Register 90 (235), December 12, 2025: 57208-11.

U.S. Department of Homeland Security (DHS), Office of Homeland Security Statistics (OHSS). 2026. U.S. Nonimmigrant Admissions: 2024. June 4, 2026.

---. 2025. Yearbook of Immigration Statistics. Updated August 20, 2025.

U.S. Government Accountability Office (GAO). 2026. Long Visa Wait Times May Be Affecting Lucrative U.S. Tourism Industry. Blog post, October 14, 2026.

U.S. State Department. N.d. Monthly Nonimmigrant Visa Issuance Statistics. Accessed September 30, 2026.

---. N.d. Nonimmigrant Visa Statistics. Accessed September 30, 2026.

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