	Introduction

Over the past several years, the number of unaccompanied children from the "northern triangle" of Central America (El Salvador, Guatemala, and Honduras) attempting to enter the United States has increased significantly. Many analysts warn that elevated levels of migration from the region are likely to continue until policymakers in the countries of origin and the international community address the poor security and socioeconomic conditions in the northern triangle. Background

Given the geographic proximity of Central America, the United States historically has had close political, economic, and cultural ties with the region. FY2015 Appropriations

Congress appropriated more than $570 million for Central America in FY2015, which was $241 million more than the Administration originally requested for the region. The Consolidated and Further Continuing Appropriations Act, 2015 ( P.L. 113-235 ), directed the Secretary of State to use the funds appropriated for the region to implement a strategy to "address the key factors in the countries in Central America contributing to the migration of unaccompanied, undocumented minors to the United States." FY2016 Appropriations

In March 2015, the Obama Administration introduced a new, whole-of-government U.S. Strategy for Engagement in Central America designed to promote economic prosperity, improve security, and strengthen governance in the region. The Administration requested more than $1 billion of foreign assistance to implement the strategy in FY2016, dividing the funds among the three overarching areas of action. In December 2015, Congress enacted the Consolidated Appropriations Act, 2016 ( P.L. Congress placed numerous conditions on aid for Central America. The act also states that 25% of the funds for the "central governments of El Salvador, Guatemala, and Honduras" may not be obligated until the Secretary of State certifies that each government is "taking effective steps" to
inform its citizens of the dangers of the journey to the southwestern border of the United States; combat human smuggling and trafficking; improve border security; and cooperate with U.S. government agencies and other governments in the region to facilitate the return, repatriation, and reintegration of illegal migrants arriving at the southwestern border of the United States who do not qualify as refugees consistent with international law. Another 50% of the funds for the "central governments" may not be obligated until the Secretary of State certifies the governments are "taking effective steps" to
establish an autonomous, publicly accountable entity to provide oversight of the plan; combat corruption, including investigating and prosecuting government officials credibly alleged to be corrupt; implement reforms, policies, and programs to improve transparency and strengthen public institutions, including increasing the capacity and independence of the judiciary and the Office of the Attorney General; establish and implement a policy that local communities, civil society organizations (including indigenous and marginalized groups), and local governments are to be consulted in the design and participate in the implementation and evaluation of activities of the plan that affect such communities, organizations, and governments; counter the activities of criminal gangs, drug traffickers, and organized crime, investigate and prosecute in the civilian justice system members of military and police forces who are credibly alleged to have violated human rights, and ensure that the military and police are cooperating in such cases; cooperate with commissions against impunity, as appropriate, and with regional human rights entities; support programs to reduce poverty, create jobs, and promote equitable economic growth in areas contributing to large numbers of migrants; establish and implement a plan to create a professional, accountable civilian police force and curtail the role of the military in internal policing; protect the right of political opposition parties, journalists, trade unionists, human rights defenders, and other civil society activists to operate without interference; increase government revenues, including by implementing tax reforms and strengthening customs agencies; and resolve commercial disputes, including the confiscation of real property, between United States entities and such government. In addition to the $772 million requested for Central America through the State Department and USAID, the Administration requested $135 million through other U.S. agencies to support its whole-of-government strategy in Central America. Policy Considerations

As Congress debates the Administration's FY2017 budget request and other legislative options to address the foreign policy dimensions of increased migration from Central America, it might take into consideration a variety of interrelated issues. These issues include the humanitarian implications of the current situation, the international humanitarian response, the capacity of Central American nations to receive and reintegrate unaccompanied children deported from the United States, the capacity of Central American nations to address the root causes of the exodus, and the role of Mexico as a transit country. U.S. authorities apprehended nearly 52,000 unaccompanied minors from the region in FY2014, straining U.S. government resources and creating a complex crisis with humanitarian implications. Although U.S. apprehensions of unaccompanied children from the northern triangle declined by 45% in FY2015, they have increased again in the first five months of FY2016. The Obama Administration's initial response to the FY2014 surge was focused on efforts to deter irregular migration.
Since FY2011, the number of unaccompanied alien children (UAC) traveling to the United States from the "northern triangle" nations of Central America—El Salvador, Guatemala, and Honduras—has increased sharply. U.S. authorities encountered more than 52,000 unaccompanied minors from the region at the U.S. border in FY2014, a more than 1,200% increase compared to FY2011. This unexpected surge of children strained U.S. government resources and created a complex crisis with humanitarian implications. U.S. apprehensions of unaccompanied minors from the northern triangle declined by 45% in FY2015. They increased in the first five months of FY2016, however, and experts warn that significant migration flows will continue until policymakers in the countries of origin and the international community address the poor socioeconomic and security conditions driving Central Americans to leave their homes.
The 2014 migration crisis led to renewed focus on Central America, a region with which the United States historically has shared close political, economic, and cultural ties. The United States engages with Central American countries through a variety of mechanisms, including a security assistance package known as the Central America Regional Security Initiative (CARSI) and the Dominican Republic-Central America-United States Free Trade Agreement (CAFTA-DR). Over the past two years, the Obama Administration has sought closer cooperation with Central American governments to dissuade children from making the journey to the United States, target smuggling networks, and repatriate unauthorized migrants.
The Administration also has introduced a whole-of-government "U.S. Strategy for Engagement in Central America" designed to increase economic opportunity, reduce extreme violence, and strengthen the effectiveness of state institutions in the region. The Administration requested $1 billion through the State Department and the U.S. Agency for International Development to implement the strategy in FY2016, and it has requested more than $770 million through those two agencies to continue implementation in FY2017. The governments of El Salvador, Guatemala, and Honduras are undertaking complementary efforts under their "Plan of the Alliance for Prosperity in the Northern Triangle."
Congress has expressed considerable concern about increased migration from Central America, with Members holding numerous hearings, traveling to the region, and introducing legislation designed to address the situation. Although Congress opted not to appropriate supplemental funding for programs in Central America in FY2014, it appropriated more than $570 million for the region in FY2015, which was $241 million more than the Administration originally requested. The Consolidated and Further Continuing Appropriations Act, 2015 (P.L. 113-235), also directed the Administration to develop a comprehensive strategy to address the key factors contributing to the migration of unaccompanied children to the United States. The Consolidated Appropriations Act, 2016 (P.L. 114-113), appropriated $750 million in support of the Administration's Central America strategy in FY2016. The act also placed a number of conditions on the assistance, requiring governments in the region to take steps to improve border security, combat corruption, increase revenues, and address human rights concerns, among other actions.
As Congress debates the Administration's FY2017 budget request and other legislative options to address increased migration from Central America, it might take into consideration a variety of interrelated issues. These issues might include the humanitarian implications of the current situation, the international humanitarian response, Central American governments' limited capacities to receive and reintegrate repatriated children, Central American governments' abilities and willingness to address poor security and socioeconomic conditions in their countries, and the extent to which the Mexican government is capable of limiting the transmigration of Central Americans through its territory.