State Department Proposes Mandatory Passport Scans for Diversity Visa Lottery Applicants

The U.S. Department of State has proposed a new rule that would require all applicants for the Diversity Visa (DV) Lottery Program to submit passport information, including a digital scan of their passport’s biographical and signature pages, as part of their initial electronic application. This proposal aims to combat fraud, enhance identity verification, and strengthen national security vetting for the program, which grants up to 55,000 visas annually. The rule, set to be published on August 5, 2025, would require applicants to provide their passport’s serial number, country of issuance, expiration date, and a JPEG scan.

This isn’t the first time such a requirement has been considered. A similar rule was introduced in 2019 but was later overturned by a federal court in 2022 because it was implemented without a public notice-and-comment period. The current proposal addresses this by initiating a 45-day public comment period, adhering to the Administrative Procedure Act.

The Department of State claims a long history of fraud in the DV Program, citing schemes where unauthorized third parties submit applications for individuals without their consent and then demand payment, or where applicants use falsified documents to meet eligibility requirements.

The Department of State’s proposed rule details the specific types of fraud it aims to prevent. In one instance, the federal register notice recounted a “large-scale third-party fraud” scheme from 2012 where a single IP address was responsible for over 634,000 visa entries. According to the notice, an investigation by Bangladeshi authorities found computers with thousands of fraudulent applications, including fake educational documents and staged marriage photos.

Similarly, an Office of the Inspector General (OIG) report highlighted a fraud ring in Ukraine. These organized rings, disguised as travel agencies, would obtain personal information about Ukrainian citizens from public sources and submit DV Program entries without the individuals’ knowledge. The notice states the fraud ring would then contact hundreds of selected individuals, demanding up to $15,000 for their confirmation number. If an individual couldn’t pay, they were often coerced into a sham marriage with another person who was willing to pay a “substantial amount” to immigrate to the United States. The Department of State noted that this type of fraud remains “widespread.”

Another form of fraud involves the submission of false documents. The proposed rule cites instances where scammers create counterfeit educational documents, fake work experience letters, or manipulate photos to serve as evidence of a marital relationship. For example, in 2023, Embassy Phnom Penh in Cambodia reported seeing photoshopped ID pictures where fixers had changed clothing or backgrounds to circumvent the recent photo requirement. In this region, visa scammers can charge fees between $5,000 and $30,000 to prepare a fraudulent DV case. The notice also provided an example from Embassy Chisinau in Moldova, where a collaborative effort between the consular section and the Overseas Criminal Investigations Unit (OCIU) uncovered a corrupt university official providing fraudulent diplomas to some DV winners.

By requiring a passport, the Department believes it can deter these practices, as passports are more secure and harder to forge than other forms of identification. The new rule is also expected to reduce the number of duplicate entries and streamline the consular interview process.

Data from the Department of State shows that during the years the passport requirement was active, there was a significant drop in the number of applicants. For example, the number of entrants ranged from 11.4 million to 14.7 million between 2016 and 2019, before the rule was in place. During this period, the number of visas issued ranged from 45,889 to 49,976, excluding the 2020 program year, which was impacted by the COVID-19 pandemic.

When the passport requirement was active from 2021 to 2023, the number of entrants dropped to between 6.7 million and 9.6 million. However, the number of visas issued remained consistent with previous years, with 55,882 visas issued in 2022 and 55,076 in 2023. When the requirement was overturned for the 2024 program year, the number of entrants rose dramatically to over 23.8 million, while the number of visas issued was 54,554. This data indicates that the passport requirement discourages visa applicants from applying for the DV lottery.

The proposed rule includes exemptions for stateless individuals and nationals of Communist-controlled countries who cannot obtain a passport, as well as those with approved waivers. While the Department acknowledges the potential cost and logistical challenges for some applicants to obtain a passport, it argues that a passport is already a requirement for the final visa interview. The public is invited to submit comments on the proposed rule and its potential impact over the next 45 days.

Impact on Nepali applicants

The Diversity Visa program has been a crucial pathway for Nepali immigrants seeking opportunities in the United States. Since 1995, a total of 56,124 Nepalis have received green cards through the DV lottery, more than 25% of the total Nepali green card recipients in the USA.

The number of Nepalis participating in the program has grown steadily over the years, with more than 1 million Nepalis participating annually in recent years. Although participation temporarily declined during the years when a passport was required (2019-2021), the program still attracted significant numbers of applicants. For example, in DV 2021, 688,502 Nepalis participated, including 421,765 primary applicants and 266,737 family members. Similarly, 1,026,423 Nepalis participated in DV 2020 and 1,092,035 in DV 2019.

Participation in the Diversity Visa (DV) lottery has been consistently high over the years, with figures such as 1,187,350 Nepali participants in DV 2018 and 1,136,622 in DV 2017. Even in earlier years, the numbers were substantial. For instance, in DV 2015, 892,961 Nepalis participated, including 545,825 primary applicants and 347,136 family members. These statistics highlight the growing reliance of Nepalis on the DV lottery as a pathway to the United States.

The number of green cards issued to Nepalis through the DV lottery has also seen a notable increase. In the early years of the program, only a small number of green cards were granted to Nepali applicants, with 74 green cards issued in 1995.

However, by 2003, the number had risen to 1,754, and it peaked at 3,377 in 2013. From 2014 to 2018, more than 3,000 green cards were issued annually, with the highest number being 3,504 in 2014. While the pandemic caused a temporary decline in numbers, with only 1,372 green cards issued in 2021, the program rebounded with 3,431 green cards issued in 2024.

In total, 56,124 Nepalis have received green cards through the DV lottery between 1995 and 2024.

Out of the 131,060 global selectees in the DV 2025 lottery, 3,861 Nepalis were chosen, placing Nepal third in Asia. Iran led the region with 5,267 selectees, followed by Afghanistan with 4,009. In Europe, Uzbekistan topped the list with 5,564 selectees, followed by Turkey (4,194) and Ukraine (4,002). In South America, Cuba had 2,348 winners, while in Africa, Algeria (5,526), Egypt (5,515), Sudan (5,505), and Kenya (4,459) were among the highest.

Globally, 19,927,656 applications were submitted for DV 2025. While 55,000 visas are available, the higher number of selectees accounts for those who may not meet eligibility criteria or complete the process by the September 30, 2025, deadline.