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Executive Order 14348
Strengthening Efforts To Protect U.S. Nationals From Wrongful Detention Abroad
Signed September 5, 2025, printed at 90 FR 43895. 7 sections of substance, 1,238 words.
This order is about Americans held unjustly abroad. It strengthens the work to bring them home.
Sec. 1. Purpose
The United States must strengthen efforts to protect U.S. nationals from wrongful detention abroad. The United States Government is committed to using every tool available to curb this coercive tactic used by foreign adversaries and must hold such adversaries to account. No American should fear being taken as a political pawn by rogue states. Wrongful detentions are an affront to the rule of law and aim to undermine our leadership on the world stage. The United States will not tolerate these attacks on our sovereignty and U.S. nationals.
The United States must strengthen efforts to protect U.S. nationals from wrongful detention abroad. The United States Government is committed to using every tool available to curb this coercive tactic used by foreign adversaries and must hold such adversaries to account. No American should fear being taken as a political pawn by rogue states. Wrongful detentions are an affront to the rule of law and aim to undermine our leadership on the world stage. The United States will not tolerate these attacks on our sovereignty and U.S. nationals.
This states the aim. It says people from here must be safer abroad. It says some governments hold them as pawns. It calls that a tool of coercion. It says every tool will be used to stop it. It says such states must be held to account. It calls the practice an affront to law.
Sec. 2. Designation
The Secretary of State may designate any foreign country the government of which directly engages in or provides support for the wrongful detention of a U.S. national as a State Sponsor of Wrongful Detention based on one or more of the following criteria: (a) the wrongful detention of a U.S. national occurs in the foreign country; (b) the government of the foreign country has failed to release a wrongfully detained U.S. national after having been notified by the United States that the detention has been determined wrongful by the Secretary of State; or (c) actions taken by the government of the foreign country indicate, based on the totality of the circumstances: (i) that the government is responsible for, complicit in, or materially supports the wrongful detention of a U.S. national; or (ii) a pattern in which the government is responsible for, complicit in, or materially supports the
The Secretary of State may designate any foreign country the government of which directly engages in or provides support for the wrongful detention of a U.S. national as a State Sponsor of Wrongful Detention based on one or more of the following criteria: (a) the wrongful detention of a U.S. national occurs in the foreign country; (b) the government of the foreign country has failed to release a wrongfully detained U.S. national after having been notified by the United States that the detention has been determined wrongful by the Secretary of State; or (c) actions taken by the government of the foreign country indicate, based on the totality of the circumstances: (i) that the government is responsible for, complicit in, or materially supports the wrongful detention of a U.S. national; or (ii) a pattern in which the government is responsible for, complicit in, or materially supports the
This creates a label for countries. State may name a country a state sponsor of wrongful detention. One test is that such a detention happens there. Another is that the country will not release the person. That follows notice from this country. A third test looks at the whole picture. Backing or hiding such acts counts. A pattern counts too.
Sec. 3. Responses
Upon designation of a foreign country as a State Sponsor of Wrongful Detention under section 2 of this order, the Secretary of State shall review existing authorities to respond to and deter the actions of a government of a foreign country as outlined in section 2 of this order and take steps to implement the following actions, as appropriate and to the extent consistent with law, including the Levinson Act, including: (a) imposing sanctions available under the International Emergency Economic Powers Act (50 U.S.C. 1701 et seq.); (b) making designations under section 7031(c) of the Department of State, Foreign Operations, and Related Programs Appropriations Act, 2024 (division F of Public Law 118-47; 8 U.S.C. 1182 note), as carried forward by the Full-Year Continuing Appropriations Act, 2025 (division A of Public Law 119-4), or similar provisions in subsequent acts; (c) applying
Upon designation of a foreign country as a State Sponsor of Wrongful Detention under section 2 of this order, the Secretary of State shall review existing authorities to respond to and deter the actions of a government of a foreign country as outlined in section 2 of this order and take steps to implement the following actions, as appropriate and to the extent consistent with law, including the Levinson Act, including: (a) imposing sanctions available under the International Emergency Economic Powers Act (50 U.S.C. 1701 et seq.); (b) making designations under section 7031(c) of the Department of State, Foreign Operations, and Related Programs Appropriations Act, 2024 (division F of Public Law 118-47; 8 U.S.C. 1182 note), as carried forward by the Full-Year Continuing Appropriations Act, 2025 (division A of Public Law 119-4), or similar provisions in subsequent acts; (c) applying
This says what follows a listing. State must review the tools it has. It must act to deter the country. A named law guides that work. Sanctions under the emergency powers law are one tool. Visa bans under a spending law are another. More steps follow in the order. Each must fit the law.
Sec. 4. Termination of Designation
The Secretary of State may terminate the designation of a foreign country under section 2 of this order based on: (a) a determination by the Secretary of State that the government of the foreign country: (i) has released the U.S. nationals wrongfully detained within the territory of the foreign country; (ii) has demonstrated changes in leadership or policies with respect to wrongful detention; and (iii) has provided credible assurances that the government of the foreign country will not engage or be complicit in or support acts described in section 2 of this order; or (b) the discretion and direction of the President.
The Secretary of State may terminate the designation of a foreign country under section 2 of this order based on: (a) a determination by the Secretary of State that the government of the foreign country: (i) has released the U.S. nationals wrongfully detained within the territory of the foreign country; (ii) has demonstrated changes in leadership or policies with respect to wrongful detention; and (iii) has provided credible assurances that the government of the foreign country will not engage or be complicit in or support acts described in section 2 of this order; or (b) the discretion and direction of the President.
This says how a listing ends. State may lift it on certain findings. The country must have freed the people held. It must show a change in leaders or policy. It must give credible promises to stop. All three must hold. The President may also end a listing at will.
Sec. 5. Definitions
For the purposes of this order: (a) the term ``government'' includes the government of a country; any political subdivision, agency, or instrumentality thereof; any person owned or controlled, directly or indirectly, by the foregoing; and any person who has acted or purported to act directly or indirectly for or on behalf of, any of the foregoing; (b) the term ``person'' refers to an individual or entity; (c) the term ``entity'' refers to a government or instrumentality of such government, partnership, association, trust, joint venture, corporation, group, subgroup, or other organization; (d) the term ``wrongful detention'' refers to the detention of a U.S. national the Secretary of State has determined to be unlawful or wrongful pursuant to the Levinson Act; and (e) the term ``U.S. national'' has the same meaning as ``United States national'' given in 22 U.S.C. 1741e(2).
For the purposes of this order: (a) the term ``government'' includes the government of a country; any political subdivision, agency, or instrumentality thereof; any person owned or controlled, directly or indirectly, by the foregoing; and any person who has acted or purported to act directly or indirectly for or on behalf of, any of the foregoing; (b) the term ``person'' refers to an individual or entity; (c) the term ``entity'' refers to a government or instrumentality of such government, partnership, association, trust, joint venture, corporation, group, subgroup, or other organization; (d) the term ``wrongful detention'' refers to the detention of a U.S. national the Secretary of State has determined to be unlawful or wrongful pursuant to the Levinson Act; and (e) the term ``U.S. national'' has the same meaning as ``United States national'' given in 22 U.S.C. 1741e(2).
This defines terms. Government covers a country's own bodies. Local units count. So do firms it owns or controls. So does anyone acting for it. Person means a human or a group. Entity covers firms, trusts and other bodies. Wrongful detention means one State has found unlawful. A named law sets that test. National is defined by another law.
Sec. 6. Other Detaining Entities
To the extent permitted by applicable law, the provisions of this order referring to a foreign government shall also apply to an entity exercising control over most or all of the territory of a country, regardless of whether such entity has been recognized as the government of such country.
To the extent permitted by applicable law, the provisions of this order referring to a foreign government shall also apply to an entity exercising control over most or all of the territory of a country, regardless of whether such entity has been recognized as the government of such country.
This widens who is covered. Parts of the order speak of a foreign government. Those parts also reach other bodies. The test is control over most of a country. Full control counts too. It does not matter whether anyone recognizes it as the government. The law still sets the limits.
Sec. 7. Rule of Construction
This order shall not be construed to impair or otherwise affect any lawfully authorized investigative, protective, information security, or intelligence activity of an officer, agent, or employee of the United States, or any person undertaking such activity or activities pursuant to a contract with the United States. Further, nothing in this order shall be construed to imply that every U.S. national detained in a foreign country designated under section 2 of this order should be or has been determined to be wrongfully detained under the Levinson Act.
This order shall not be construed to impair or otherwise affect any lawfully authorized investigative, protective, information security, or intelligence activity of an officer, agent, or employee of the United States, or any person undertaking such activity or activities pursuant to a contract with the United States. Further, nothing in this order shall be construed to imply that every U.S. national detained in a foreign country designated under section 2 of this order should be or has been determined to be wrongfully detained under the Levinson Act.
This limits how the order is read. It does not block lawful government work. Investigations are named. So is protective work. So is information security. So is intelligence work. Contractors doing such work are covered too. It also does not mean every person held in a listed country is wrongly held.
Sec. 8. General Provisions
Every order carries this. It is not what the order does.
(a) Nothing in this order shall be construed to impair or otherwise affect: (i) the authority granted by law to an executive department, agency, or the head thereof; or [[Page 43897]] (ii) the functions of the Director of the Office of Management and Budget relating to budgetary, administrative, or legislative proposals. (b) This order shall be implemented consistent with applicable law and subject to the availability of appropriations. (c) This order is not intended to, and does not, create any right or benefit, substantive or procedural, enforceable at law or in equity by any party against the United States, its departments, agencies, or entities, its officers, employees, or agents, or any other person. (d) The costs for publication of this order shall be borne by the Department of State. <GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT> (Presidential Sig.) THE WHITE HOUSE, September 5, 2025.
(a) Nothing in this order shall be construed to impair or otherwise affect: (i) the authority granted by law to an executive department, agency, or the head thereof; or [[Page 43897]] (ii) the functions of the Director of the Office of Management and Budget relating to budgetary, administrative, or legislative proposals. (b) This order shall be implemented consistent with applicable law and subject to the availability of appropriations. (c) This order is not intended to, and does not, create any right or benefit, substantive or procedural, enforceable at law or in equity by any party against the United States, its departments, agencies, or entities, its officers, employees, or agents, or any other person. (d) The costs for publication of this order shall be borne by the Department of State. <GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT> (Presidential Sig.) THE WHITE HOUSE, September 5, 2025.
This is the closing clause that nearly every order carries. It says the order does not change what the law already allows. It also says no one can sue to enforce it.
How this order is quoted
Each section is quoted as the order prints it, under its own number and heading. Executive orders are United States government works and are not under copyright. Long sections are cut at a sentence and the whole order is a click away.