The Territorial Clause of the Constitution gave Congress authority to regulate on behalf of United States territories and possessions. Using that power, Congress made distinctions for those territories which were to be incorporated eventually as states, and those that were not on a path of statehood. Because of this authority, Congress has determined when inhabitants can become nationals and what their status is at any given time. Prior to 1898, all persons born in U.S. possessions were treated as having been born in the United States, and upon acquisition, provisions were made for collective naturalization. After that date, possessions have been selectively judged to foreign localities and not subject to the Citizenship Clause of the Fourteenth Amendment. Because of that determination, all persons in the U.S. outlying possessions were considered U.S. nationals, non-citizens, until Congress chose to convey full rights of citizenship. This included inhabitants of American Samoa, Guam, the Philippines, Puerto Rico, and the Virgin Islands. Non-citizen nationals do not have full protection of their rights, though they may reside in the United States and gain entry without a visa. Likewise, territorial citizens do not have the ability for full participation in national politics.