I read this as, "who comes, who decides, country, who comes this to."
I think it's supposed to be read as, "Who Comes: who decides who comes to this country." Like, the title is supposed to be "Who Comes" with the subtitle, "who decides who comes to this country" but they've decided to throw out all rules on how English is read and instead of going left-to-right, top-to-bottom (or top-bottom, left-right); they've decided to have the text follow some strange, meandering order that involves going right-to-left, top-to-bottom, then left-to-right, then bottom-to-top.
What the fuck?
Why are you trying to make me play "guess the order" with your political pamphlets?
At least it's super obvious that I can just ignore it because whoever handed those out is probably a bigot.
Jesus Christ what a terrible way to advertise your program.
Edit: that's also why I said, "probably" a bigot. I figured there was a chance it was supposed to be legitimately educational but poorly designed; but I also figured that, in the current political climate, there was a significantly higher chance of it being bigoted.