Emergency Refugee and Migration Assistance: Fiscal Year 2007

Bureau of Population, Refugees, and Migration
Congrssional Presentation Document

Table of Contents

FY 2005 - FY 2007 FUNDING

(in millions, as of 3/7/06)

FY 2005 PRM Accomplishments

PRM strengthened its commitment to provide protection and assistance and to achieve durable solutions for refugees, conflict victims, internally displaced persons (in some cases) and vulnerable migrants in FY 2005 through financial and diplomatic support to key international humanitarian partners, combined with strong performance management.

With PRM’s support, over 550,000 refugees were able to voluntarily return home in safety and dignity, and nearly 55,000 refugees were resettled to the United States in FY 2005. These figures represent significant progress in achieving durable solutions – the ultimate form of protection – for the world’s refugees.

PRM supported major refugee repatriation operations in Afghanistan, Angola, the Balkans, Burundi, Iraq, and Liberia, as well as preparations for and the start up of voluntary returns to Southern Sudan. In each of these countries, refugee returns have played an important role in democracy-building, reconstruction, and development. For example, PRM continued to support UNHCR’s voluntary repatriation program for Burundi refugees, who had fled to surrounding countries during sporadic violence over the past 35 years. More than 250,000 Burundi refugees have returned from Tanzania since this program began in March 2002, including nearly 50,000 in 2005. Repatriation assistance has included transportation from refugee camps to refugees’ home villages, as well as three months of food rations, and basic supplies like plastic sheeting, buckets, pots, tools, and soap.

PRM maintained U.S. leadership in refugee resettlement in FY 2005, with nearly 55,000 refugee arrivals in the U.S. This number surpassed the President’s regionally allocated ceilings and provided critical protection to refugees from an increasingly diverse array of countries. It also demonstrated the Bureau’s commitment to overcome serious challenges in processing refugees for admission, including disease outbreaks, security screenings, and anti-fraud measures. At the same time, PRM demonstrated efficiency on behalf of American taxpayers, keeping per capita refugee arrival costs low in order to admit the maximum number of refugees with the available resources.

Where durable solutions were not possible, and where new humanitarian emergencies broke out, PRM ensured U.S. leadership in humanitarian response and provided protection and assistance according to internationally-accepted standards. For example, PRM led the U.S. government’s response to refugees in Chad who had fled conflict in the Darfur region of Sudan. The Bureau worked closely with the Chadian government, UNHCR, Red Cross and Red Crescent societies and nongovernmental organizations (NGOs) to deliver life-saving assistance in a harsh environment. PRM’s support and performance management effectively lowered global acute malnutrition rates among Sudanese refugees in Chad from emergency to acceptable levels, according to surveys by the Centers for Disease Control and Prevention, as well as PRM’s international partners.

In the Near East, PRM’s continued support for the UN Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) enabled the agency to conduct tolerance education classes in all its schools and offer primary health care to nearly 4.3 million Palestinian refugees in Gaza, the West Bank, Jordan, Syria, and Lebanon. FY 2005 MRA assistance to the United Israel Appeal ensured that thousands of new Jewish immigrants to Israel, many from Ethiopia, received Hebrew language training and other assistance, such as vocational training, vital to their integration into Israeli society. In the Western Hemisphere, one of PRM’s partners, Cooperative Housing Foundation, is now funded too by the Government of Colombia, given the work the agency has done to provide shelter to Colombian IDPs. Supported by PRM funding, UNHCR’s work has resulted in a Government of Colombia commitment of $2 billion for IDP programs over the next five years.

The Bureau advanced support for protection priorities including protection staffing, refugee registration, family tracing and reunification, and combating gender-based violence. Committed to the principle that the presence of professional humanitarian workers is a basic element of refugee protection in the field, PRM continued its push to bolster protection field staffing. After supporting the creation of 27 new UNHCR protection-related positions in FY 2004, PRM worked with UNHCR to ensure that these positions were filled in FY 2005, with the majority now mainstreamed into UNHCR’s regular budget. The Bureau also continued its support to the Protection Surge Capacity project – a joint endeavor between UNHCR and the International Rescue Committee to draw from a roster of experienced protection officers for temporary deployment in emergencies or where there are special protection challenges. This project is now a model for a broader UN effort to develop protection surge capacity for internally displaced persons and others affected by humanitarian crises. PRM also provided “protection as presence” through flexible contributions to ICRC, whose protection expertise in areas of detention and family tracing and reunification is renowned, and whose efficiency in devoting protection resources to field operations (rather than headquarters) is outstanding.

PRM’s FY 2005 support to UNHCR also improved the agency’s refugee registration capacity and therefore its ability to identify and meet the needs of vulnerable individuals, including those in need of resettlement; Project Profile, a standard, universal registration system, is on track to be deployed to refugee sites worldwide by the end of 2006.

In FY 2005, PRM used both funds from its Strategic Global Priorities (SGP) resources and regional funds to provide over $4.4 million to programs that prevent and respond to gender-based violence (GBV). PRM’s goal is to target or integrate GBV activities into refugee assistance programs. In the 2005 Program Assessment Rating Tool (PART) review of “Other PRM Programs,” PRM included its work on GBV as a measure of relying on NGOs to address critical needs. These programs have provided GBV survivors and vulnerable populations with: information and education; health and psychosocial services; and capacity building and legal aid. In Ingushetia and Chechnya, for example, PRM-funded programs have provided internally-displaced individuals and communities with peaceful, non-violent solutions to GBV through theater projects and psychosocial support.

PRM’s protection priorities – including the prohibition against forcible return (non-refoulement) – converged when approximately 450 Uzbek asylum seekers fled to Kyrgyzstan following the May 2005 uprising in Andijon, Uzbekistan. The Bureau mobilized Department efforts to work with UNHCR and other governments in urging the Kyrgyz government to abide by its obligations under the 1951 Refugee Convention and the Convention Against Torture to ensure the asylum seekers’ safely and preclude any possibility of their return to Uzbekistan before their asylum applications had been processed. The Bureau also worked closely with UNHCR and several other countries to arrange an emergency evacuation of the asylum seekers from Kyrgyzstan to Romania on a temporary basis, where they were processed for resettlement.

The Bureau’s international migration work in FY 2005 emphasized protection and assistance to vulnerable migrants, particularly reintegration assistance for victims of human trafficking. PRM participated in and supported regional migration dialogues that resulted in greater capacity among foreign governments to promote orderly and humane migration. In FY 2005, for example, PRM continued to support a successful anti-trafficking project in Ghana. The project identifies, returns, and assists children trafficked to work in fisheries in Ghana’s Upper Volta and Central regions. Activities include documentation, counseling, transportation, family tracing and reunification, as well as activities to facilitate the reintegration of the returned children. The International Organization for Migration (IOM) implements this project, and has assisted several hundred Ghanaian children over the past two years. This IOM project is a stellar example of community efforts to stop the trafficking cycle and rehabilitate child victims.

FY 2006 PRM Priorities

• Support large-scale returns in Burundi, Iraq, Liberia, and South Sudan;
• Protect vulnerable populations, especially from gender-based violence;
• Continue rebuilding the refugee admissions program;
• Ensure adequate health and nutrition for refugees;
• Improve conditions for refugees in protracted situations, particularly by empowering them economically to achieve self-reliance;
• Improve UN humanitarian performance and accountability.

UNHCR figures refer to January-September 2005 only. UNHCR reports on a calendar year basis. Complete UNHCR population data for CY 2005 is not yet available.

Statement by Assistant Secretary Ellen R. Sauerbrey

Overview

The Bureau of Population, Refugees, and Migration (PRM) upholds the first goal of the President’s National Security Strategy: to champion human dignity. In Iraq, Afghanistan, the West Bank and Gaza, Sudan, Liberia, Colombia and elsewhere, the bureau’s work on behalf of refugees, conflict victims, and vulnerable migrants supports U.S. efforts to promote peace and regional stability, advances political and economic freedom, and encourages the good practices of developing nations.

At home, PRM’s Refugee Admissions program demonstrates America’s leadership and compassion, having resettled nearly 54,000 refugees in FY 2005 while upholding the screening and anti-fraud measures essential to our security. Despite the challenges of its mandate, PRM has a record of superior performance, owing largely to its efficient program management, quality of information, and effective coordination with a broad range of international and USG partners.

PRM’s request for $832.9 million in Migration and Refugee Assistance (MRA) and $55 million in Emergency Refugee and Migration Assistance (ERMA) Fund features three main priorities that reflect the President’s foreign policy and management agendas. First, we will strengthen our commitment to protect the lives and dignity of the world’s 13.4 million refugees as well as conflict victims and vulnerable migrants. Second, we seek to contribute to the United Nations reform effort by increasing the effectiveness of multilateral humanitarian action. Third, we will sustain our own strong operational performance against ambitious targets, despite lean administrative resources for the bureau’s essential monitoring, evaluation, and emergency response functions.

PRM’s FY 2007 budget request includes significant support for voluntary repatriation operations and reintegration assistance to help refugees return home in safety and dignity. For instance, the signing of the North-South peace agreement in Sudan presents an opportunity for over 500,000 Sudanese refugees to return from neighboring countries. Refugee re-integration is critical to sustain peace in South Sudan, begin reconstruction, and promote regional stability. In Iraq, PRM’s support for the voluntary return of 900,000 Iraqi refugees and 800,000 internally displaced persons (IDPs) – including building capacity in Iraq’s Ministry of Refugees and Displacement – is helping to strengthen democracy, enhance the rule of law, and energize the country’s reconstruction. Assisted repatriation to Afghanistan – the greatest humanitarian success story of modern times - will also continue in FY 2007 but is projected to come to a close by the end of that year. PRM’s support for voluntary returns to Kosovo, Liberia, Burundi, and the Democratic Republic of the Congo plays a key role in helping to facilitate the resolution of regional conflicts and reconstruction of these war-torn areas.

Where voluntary return is not possible, too many refugees are caught in protracted situations where they are denied freedom of movement, education and permission to work. PRM is committed to addressing protracted refugee situations, and prioritizes programming which empowers refugees economically to be self-reliant and allows them to participate in their own protection. PRM’s request also reflects the need to respond to emergency as well as on-going assistance requirements. We have worked tirelessly to protect the safety, health and dignity of over 200,000 Sudanese refugees in Chad who have fled the ongoing conflict in Darfur. Faced with genocide and other grave human rights abuses, harsh environmental conditions, and a multitude of political and humanitarian actors, we have focused international attention on the challenges of protection in Chad, together with the imperative to deal with the root causes of displacement in Darfur. In the Middle East, PRM supports prospects for peace and stability by providing basic services to over four million Palestinians through contributions to the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA). Finally, in Colombia, PRM will continue to assist persons displaced by civil conflict. Simultaneously we must prepare to support voluntary IDP and refugee returns as President Uribe’s security and stability programs show results.

Prospects for Protection

Protection responsibilities are inextricably linked with humanitarian assistance. The bureau seeks to strengthen protection through several initiatives. First, PRM leads international efforts to enhance protection through physical presence. Protection officers are better positioned to prevent abuses and increase accountability for perpetrators when they are placed where refugees are located. Our FY 2007 budget request includes critical funding to increase the number of UNHCR protection “boots on the ground” in key locations. This field-based approach is increasingly a model for other humanitarian actors, such as USAID, the UN Office for the Coordination of Humanitarian Affairs (OCHA), the Office of the UN High Commissioner for Human Rights, and NGOs.

Gender based-violence (GBV) is a second area in which PRM has taken leadership in humanitarian programming. We have funded non-governmental organizations (NGOs), whose prevention and treatment programs fill gaps in the international system. Yet much more is needed. Recent public attention has focused on GBV suffered by refugees from Darfur; however, such abuses remain endemic to forced migration situations worldwide. PRM’s FY 2007 request incorporates resources for GBV prevention and response. OMB evaluated GBV and other protection programming this year in the Program Assessment Rating Tools (PART) on “Protection and Durable Solutions” and “Other PRM Programs,” and rated both “effective.”

Primary responsibility for both physical and legal protection rests with government authorities in countries where refugees and conflict victims reside. PRM works through bilateral and multilateral diplomacy to encourage governments to meet their obligations on these issues. In addition to UNHCR, we provide significant support to the International Committee of the Red Cross (ICRC) to increase local responsibility for protection needs, including implementation of international humanitarian laws and tracing services to restore family links. The bureau also insists on early and accurate refugee registration, both to determine quantity and quality of humanitarian needs, and to identify vulnerable individuals in need of protection, including resettlement to a third country.

The U.S. Refugee Admissions program achieved significant success in FY 2005 by increasing arrivals nearly 90 percent over FY 2003 levels. Our FY 2007 request for this program reflects our commitment to sustain this effort. The U.S. resettles more refugees than all of the other nine resettlement countries combined. As recognized by the latest PART review, the Admissions program has made tremendous progress in streamlining refugee processing while addressing major security and fraud concerns following September 11, 2001. However, implementation of the program at every level remains costly and highly labor-intensive. Outbreaks of communicable diseases in refugee processing sites have necessitated expensive vaccination campaigns on a large scale to avoid significant interruptions in movements to the U.S. and to protect the American people. Growing concern about the impact of recent amendments to our immigration laws concerning “material support to terrorist organizations” presents a major challenge as it threatens to impede processing of thousands of refugees for resettlement to the U.S. The Department is working closely with the Departments of Justice and Homeland Security, as well as the National Security Council, to resolve material support questions. The budget request of $222.6 million continues the Administration’s strong commitment to the refugee admissions program and provides funding at a level that reflects an expanded program and increasing costs. The number of refugee admissions in FY 2007 will be determined by the President in late FY 2006.

Improving Multilateral Humanitarian Action

The complex nature of providing protection and assistance to refugees, conflict victims, and vulnerable migrants – together with the enormous costs - makes multilateral action imperative to effective humanitarian response. As a major donor, we lead by example and leverage our contributions with other donors to achieve equitable financial burden sharing. This leadership means demanding operational productivity and accountability from our implementing partners, while upholding the principles and best practices articulated and agreed to by donor governments under the Good Humanitarian Donorship initiative. PRM channels roughly 85 percent of its overseas assistance through UN and other international organizations, and monitors them carefully – at headquarters and in the field – to ensure maximum return on taxpayers’ investment, together with maximum program effectiveness for refugees and conflict victims.

One key to mobilizing multilateral humanitarian action is effective public diplomacy. PRM uses public diplomacy to counter charges of U.S. “unilateralism,” achieve recognition of USG contributions in humanitarian fields, and urge other nations to share the financial and policy burdens of refugee protection and resettlement. Public affairs activities directed toward U.S. audiences maintain high public support for the refugee resettlement program, clarify policies in sensitive areas such as population and migration, and draw positive attention to the Department’s work on behalf of refugee populations.

The current climate of UN reform presents an opportunity to further increase the operational productivity and accountability of the multilateral humanitarian system. PRM is a key player in the USG’s effort to improve protection and assistance for internally displaced persons (IDPs) by revamping the UN’s approach to this population to increase accountability and transparency. We are also pushing hard to increase the UN’s capacity for emergency response, and to help ensure the security of humanitarian workers.

Advancing Population and Migration Agendas

The Bureau continues to take a leadership role in coordinating U.S. policies on international population issues. In FY 2005, then-Secretary Powell again determined that U.S. funding to the UN Population Fund (UNFPA) was prohibited under the Kemp-Kasten Amendment to the Foreign Operations Appropriation Act due to UNFPA’s involvement in support for China’s coercive birth limitation regime. We have worked with China over the past five years to seek an end to coercion, and have specifically urged the Chinese authorities to remove all coercive birth planning practices in those PRC counties where UNFPA operates. We will continue to engage at senior levels with both China and UNFPA on these issues. UNFPA funding could be restored if China ended its program of coercive abortion, or if UNFPA were to change its program implementation in China so that it did not support a program of coercive abortion.

PRM also continues to have a lead role in advancing U.S. policy goals on international migration issues, primarily by supporting regional dialogues, as well as projects designed to foster humane and orderly migration policies. For the latter, the bureau funds the International Organization for Migration (IOM) to assist victims of trafficking, in coordination with the Department’s Office to Monitor and Combat Trafficking in Persons (G/TIP) and other USG agencies. We are also seeking to influence the outcomes of several global migration initiatives, including the recently created independent Global Commission on International Migration. Finally, we have invested considerable effort, in coordination with the Department of Homeland Security, to manage Caribbean migration and prepare contingency plans.

Close USG Coordination

We recognize that our relationships with key USG partners, particularly USAID, are critical to USG performance on humanitarian programs. We worked closely with USAID to develop the Joint Performance Plan (JPP). PRM and USAID also routinely discuss resource allocation to international and nongovernmental organizations. PRM and USAID have also taken significant steps to resolve long-standing interagency questions about assistance and protection for internally displaced persons (IDPs).

Outside of formal venues, PRM and USAID are deepening working-level ties through joint training courses and other opportunities for collaboration. We have collaborated to address protection issues in USAID’s Field Operations Guide and Crisis and Recovery Skills training. And we continue to work together to develop and promote the international community’s Good Humanitarian Donorship initiative.

PRM also aims to increase coordination with the Millennium Challenge Corporation and the Department’s Coordinator for Post Conflict Reconstruction and Stabilization (S/CRS) to ensure that refugee protection, assistance and repatriation efforts support transitional and development strategies, particularly in post-conflict environments. Among other things, PRM has seconded staff to S/CRS. Achieving and sustaining refugee solutions in a multilateral context is a critical component of transition support operations and we have a fundamental interest in that office’s success.

The war on terrorism demands greater coordination on humanitarian action and migration management with the Departments of Defense (DOD) and Homeland Security (DHS). PRM seeks to strengthen our strategic cooperation with DOD in our preparation for and response to humanitarian crises in conflict settings. The bureau is working with DOD to incorporate guidance on humanitarian principles and practices into military doctrine and training. We will also increase cooperation with DHS on a variety of issues, including U.S. implementation of UNHCR’s Agenda for Protection, refugee admissions, and international migration initiatives.

Resources to Manage Policies and Programs

PRM spends less than three percent of its budget on administrative resources. The budget request of $22.2 million for administrative activities is critical to achieve the bureau’s performance goals by providing the tools and human resources necessary for PRM to develop, manage, and evaluate programs, and shape U.S. humanitarian policy. The request includes no new positions, but absorbs the costs formerly borne by ERMA/Supplemental funds including those related to Iraq. It also seeks to enhance the bureau’s tools for program and financial management by further investing in information technology (IT) and staff training in program monitoring and performance management. The bureau also requires resources to sustain our capacity to respond to humanitarian emergencies through staff deployments, security, and other training.

PRM has actively supported the Department’s efforts related to the PMA’s Competitive Sourcing initiative. The bureau’s Executive Director participates on the Competitive Sourcing Council and volunteered to be part of the “Green Plan Committee” which developed proposals for study and possible competition. In 2005, PRM will update its 2004 Fair Act Inventory, per revised Department guidance on function codes and the “business unit” approach. Upon A/OPE approval of this inventory, we expect to identify bureau business units deemed suitable for study, including those subject to Department-wide study of cross-cutting functions. PRM will maintain this level of engagement in FY 2006 and FY 2007 and will be actively involved in Department-wide studies or competitions that include PRM positions.

A Record of Strong Performance

PRM recognizes that the performance of its programs is as important to American taxpayers as it is to refugees, conflict victims, and other vulnerable migrants. The bureau’s rigorous performance monitoring, budget planning, and program management have earned “effective” PART ratings and some of the highest PART scores in the federal government. We were among the first bureaus to establish efficiency measures for all our programs, and so helped the Department win the President’s Quality Award for budget and performance integration. We are proud of this high level of performance, but do not intend to rest on our laurels. Our FY 2007 request is essential to continue our programs’ strong performance – both to support our partners, and to enhance our administrative capacity for performance monitoring and program management. We are undertaking a final PART review this year.

Conclusion

Our budget request and Bureau Performance Plan (BPP) represent an ambitious but realistic effort to improve humanitarian protection, multilateral action, migration management, and international population policies. Success on these issues is essential and achieves broader U.S. foreign policy objectives while improving the lives of individuals, families, and populations in key regions throughout the world.

FY 2007 Request
Migration and Refugee Assistance (MRA)* Summary

($ in thousands)

Emergency Refugee and Migration Assistance (ERMA) Summary

(in thousands)

Footnotes

*All figures above are shown in the year in which they were appropriated, not necessarily in the year they were obligated.

** The FY 2005 MRA column in the above chart includes the annual FY 2005 MRA appropriation of $763.84 million plus $120.4 million appropriated to the MRA account from the FY 2005 Emergency Supplemental for Iraq/Tsunami Relief.

Migration and Refugee Assistance

($ in thousands)

Overseas Assistance 649,152 562,765 547,988

Migration and Refugee Assistance

Programs administered through the Migration and Refugee Assistance (MRA) account demonstrate the leadership and compassion of the American people while upholding the first goal of the President’s National Security Strategy: to champion human dignity. Humanitarian response, identified as a key U.S. national interest in the joint Department of State/U.S. Agency for International Development Strategic Framework, is an integral element of U.S. foreign policy objectives. In the past year, the U.S. Government has responded to humanitarian emergencies in Chad/Darfur, Pakistan, and the West Bank and Gaza, while continuing to address humanitarian needs in such diverse places as the North Caucasus, Democratic Republic of the Congo, and Nepal. In FY 2005, USG assistance also provided support to significant voluntary returns of refugees and internally displaced persons (IDPs) to Afghanistan, Iraq, Burundi, and Liberia. Building on these successes, the resources requested will help to address similar humanitarian needs in FY 2006 and FY 2007.

The MRA and the Emergency Refugee and Migration Assistance (ERMA) appropriations are managed by the Bureau of Population, Refugees, and Migration (PRM) and are two of the primary funding mechanisms for demonstrating our compassion internationally. MRA funds are appropriated annually in response to projected twelve-month requirements. The FY 2007 request for MRA will fund protection and assistance activities overseas, the admission of refugees to the United States, international migration activities including programs to combat trafficking in persons, resettlement of humanitarian migrants to Israel, and PRM administrative expenses.

Key MRA funding priorities in FY 2007 include: supporting refugee returns (Iraq, Afghanistan, Sudan, and other parts of Africa); continuing to strengthen the admissions program; stabilizing displaced populations in/near conflict and post-conflict zones (e.g., Chad and Afghanistan); providing protection and life-sustaining assistance for those in long-standing situations (e.g., Palestinians and Somalis); using diplomacy to advance humanitarian interests; and improving UN humanitarian performance and accountability.

The core focus of refugee program resources is to provide protection, assistance, and durable solutions, including refugee resettlement, and to promote sound migration management. To support those programs, the FY 2007 request includes a modest funding request for PRM administrative expenses.

Protection, Assistance, and Durable Solutions

To support global protection and assistance requirements for populations of concern, MRA funds are focused on the following three priority areas:

1. Ensuring access to effective protection and first asylum for refugees and conflict victims, and, in certain cases, IDPs and victims of trafficking, and preventing refoulement (involuntary return to a place where a person would face persecution). Protecting women and children is a priority given their numbers and vulnerability.
2. Providing humanitarian assistance across geographic regions according to internationally accepted standards.
3. Promoting durable solutions, including sustainable return and reintegration of refugees in countries of origin, particularly those in protracted situations, as well as local integration in host countries.

U.S. refugee policy is based on the premise that the care of refugees and other conflict victims and the pursuit of permanent solutions for refugee crises are shared international responsibilities. Although just one of many donors, the United States is in most cases the largest individual donor. The majority of refugee assistance funds (almost 87% in FY 2005) are provided multilaterally through international organizations (IOs). Funding is also provided bilaterally to non-governmental organizations (NGOs) that fill gaps in the international community’s multilateral response. The primary recipients of U.S. funds and their major activities are discussed in the Overseas Assistance sections that follow.

Refugee Resettlement – The budget request for refugee resettlement reflects a significant increase in resources, consistent with the Administration’s commitment to revitalize and grow this program. FY 2007 will see an even greater effort to develop resettlement caseloads, while requiring the higher level of funding needed for operational security during processing. The current reality is that smaller groups in numerous, often remote and dangerous, locations are most in need of resettlement. This adds to the challenge and the cost.

To implement this program, the Department provides funding to the UN High Commissioner for Refugees (UNHCR), the International Organization for Migration (IOM), and U.S. NGOs and other organizations, both overseas and domestically. The FY 2007 request will support continuing efforts to identify resettlement caseloads, process them for admission to the United States, and provide initial reception and placement services. MRA funds to UNHCR are targeted to increase its capacity worldwide to screen populations and refer caseloads for resettlement. IOM receives MRA funds for overseas processing functions in some locations and transportation-related services for all refugees admitted under the U.S. program. MRA funds also support numerous U.S.-based NGOs involved both in overseas processing functions and in domestic reception and placement services.

Program Assessment Rating Tool (PART) / Performance Evaluation – Protection and Durable Solutions

For preparation of the FY 2007 budget, the Administration assessed the Department’s Protection and Durable Solutions program using the Program Assessment Rating Tool (PART). In this PART review the program was rated as effective. According to the assessment, the program is well-designed and well-managed. The Office of Management and Budget (OMB) noted that the Department has successfully encouraged program partners to commit to results-oriented program management, and that the program has made steady progress toward its stated annual and long-term goals.

The Administration will continue to improve and standardize the program’s budget presentation documents to ensure budget requests are clearly and consistently linked to individual program’s goals and performance measures. It will also review the findings of the 2006 Inspector General’s inspection of the Bureau and address any areas for improvement related to protection and durable solutions.

Key program performance indicators include: (1) capacity of the Red Cross movement to restore family links; (2) number of countries with effective refugee registration systems; and (3) reduction of the long-standing global refugee population due to the achievement of durable solutions.

International Migration

U.S. international migration policy aims to promote sound migration management, which balances governments’ respect for the human rights of migrants with responsibility to maintain national security. To support efforts to manage international migration flows humanely and effectively, the Department participates in a range of multilateral dialogues relating to migration and supports activities to promote international understanding of migration, with a special emphasis on protection of the basic human rights of migrants, including asylum seekers and victims of trafficking. PRM works closely with IOM, which coordinates with governments, other international organizations, and voluntary agencies to provide operational services for humanitarian migration and technical assistance to governments and others interested in the development of migration policy, legislation, and administration. Funding supports IOM anti-trafficking programs focusing on the protection of trafficking victims while building institutional capacity to carry on counter-trafficking efforts. Programs include identification of victims, return transportation and reintegration assistance. Funds also provide support for humanitarian migration and integration of humanitarian migrants to Israel through support for the migration programs of the United Israel Appeal (UIA).

Administrative Expenses

Responsible and appropriate programming and monitoring of resources requires a skilled and flexible workforce capable of responding to international crises, managing resources of nearly $1 billion, and handling an array of significant humanitarian policy issues. The costs of this workforce -- both domestic and overseas positions -- are paid by the Administrative Expenses line of MRA. This includes all PRM salaries and benefits as well as operating expenses for domestic and overseas offices. The FY 2007 request for administrative expenses is $22.2 million. It includes mandatory wage increases and inflationary costs. The budget request for the Department of State’s Diplomatic and Consular Programs includes costs related to a small PRM staff dedicated to international population policy management.

Overseas Assistance

($ in thousands)

The FY2007 request for Overseas Assistance supports the provision of life-saving protection and assistance to million of refugees and conflict victims in places such as Kenya, Thailand, and Colombia. The FY 2007 request also supports refugee returns and initial reintegration in places such as Afghanistan and Sudan.

Primary International Organization partners

The Department intends to use the funds requested for FY 2007 to provide a U.S. contribution to the calendar year 2007 requirements of the International Organizations (IOs) listed below. Traditionally, U.S. funding aims to meet 20-25 percent of these IOs’ funding requests.

The United Nations High Commissioner for Refugees (UNHCR), PRM’s principal international partner, is mandated by the UN to lead and coordinate international action for the worldwide protection of refugees and the resolution of refugee problems. UNHCR promotes international refugee agreements and monitors governments’ compliance with international refugee law and standards. It also seeks to minimize the threat of violence, including sexual assault, to which many refugees are subject in countries of asylum. UNHCR seeks to promote lasting solutions for refugees, including voluntary repatriation, local integration, and resettlement to a third country. The agency also works with partners to ensure that refugees’ basic needs such as water, shelter, food, and medicine are met. In 2007, UNHCR will continue efforts to direct protection and assistance activities toward refugee women and children, who comprise the majority of most refugee populations.

The International Committee of the Red Cross (ICRC) is an independent, internationally funded humanitarian institution mandated under the Geneva Conventions, to which the United States is a party. The primary goals of the ICRC are to protect and assist civilian victims of armed conflict, trace missing persons, reunite separated family members, and disseminate information on the principles of international humanitarian law. Given the adoption of the Third Additional Protocol to the Geneva Conventions in December 2005, we expect that by 2007 Magen David Adom will be a full member of the International Red Cross and Red Crescent Movement, thus achieving a long-standing humanitarian goal.

The United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) has a continuing mandate from the United Nations to provide education, health, relief, and social services to the over four million registered Palestinian refugees located in Jordan, Syria, Lebanon, and the West Bank and Gaza.

The International Organization for Migration (IOM) works with governments, other international organizations, and voluntary agencies to provide for the orderly and humane migration of persons. IOM works in six service areas: assisted voluntary returns and reintegration, counter-trafficking, migration health, movements, labor migration, and technical cooperation on migration.

U.S. support may also be provided to other IOs and NGOs as required to meet specific program needs and objectives. Other IOs receiving MRA funds in the past include the UN Children’s Fund (UNICEF), the UN Office for the Coordination of Humanitarian Affairs (OCHA), the World Food Program (WFP), and the UN Development Program (UNDP). The six largest of the thirty-one NGO recipients of MRA or Emergency Refugee Migration Assistance (ERMA) funds for overseas assistance in FY 2005, in order of magnitude, were the International Rescue Committee, the International Medical Corps, the American Refugee Committee, the Cooperative Housing Foundation, Mercy Corps, and the International Catholic Migration Commission. Programs of non-governmental organizations may commence at any point in the fiscal year, with funding typically provided for a twelve-month period.

The Department may reallocate funds between regions or organizations within the overseas assistance request in response to changing requirements.

Program Assessment Rating Tool (PART) / Performance Evaluation – Refugee Assistance

For the FY 2007 budget, using the PART, the Administration assessed the Department’s work with international and non-governmental organizations to address specific policy priorities, fill gaps in refugee assistance, and promote orderly and humane migration policies. In this PART review, the program was rated effective. According to the assessment, the program is strategically designed to complement assistance efforts by UNHCR and ICRC to protect and assist refugees, victims of conflict, IDPs, and vulnerable migrants, including victims of human trafficking. The PART review noted that the NGO portion of the program is well managed through a criteria-based application process and with formal financial performance review.

The review noted improvements in the proportion of funding devoted to preventing and responding to gender-based violence (GBV), and in the proportion of foreign governments that have increased activities to combat trafficking in persons (TIP) where PRM funds projects. To ensure continued progress in these and other priority areas, the Administration will expand the formal monitoring and evaluation of PRM’s programs.

Key program performance indicators include: (1) percentage of MRA-funded NGO or ‘other IO’ assistance projects that include activities that focus on prevention and response to GBV; (2) percentage of foreign governments with MRA-funded anti-trafficking projects that have increased their activities to combat TIP; and (3) percentage of funding to NGO and ‘other IO’ projects that are monitored and evaluated through formal reporting channels.

Program Assessment Rating Tool (PART) / Performance Evaluation – UNHCR

During previous budget preparations, the Administration assessed the U.S. contribution to UNHCR and found the program to be effective, with one of the highest scores in the federal government. The program effectively provides for the protection and care of refugees on a multilateral basis, which allows the U.S. to advance its objectives, while providing only a portion of the costs of the programs. The Department monitors progress toward program goals using performance indicators.

Assistance Programs in Africa

($ in thousands)

The African refugee scene is being transformed as political factors are aligning to “solve” four of the largest and most intractable refugee (and IDP) situations – Burundi, Sudan (apart from Darfur), DRCongo, and Liberia. The total refugee population had fallen from 3 million in 2005 to some 2.8 million by early 2006 (despite major outflows from Sudan) and should fall steadily in 2007 and 2008. Several repatriation and reintegration efforts are under way in 2006 that will continue into 2007. The “normal” repatriation and reintegration process takes about three years to complete These operations can be costly in the short term, but save humanitarian money in the longer term as they are essential for post-conflict stability. While security is the primary driver in decisions to return home, a minimum of basic social and economic infrastructure is also necessary for sustainable reintegration. Repatriation and reintegration assistance for refugees able to return home usually includes transportation, a small package of household and agricultural items to facilitate the returnees' re-establishment, and limited rehabilitation of social infrastructure, such as clinics and water projects, in the home community.

At the same time, continued humanitarian assistance will be needed for vulnerable populations unable to return home, in such places as Chad, Ethiopia, Kenya, Sudan, Algeria, Zambia, and Ghana. Given the size and diversity of the Africa region – 53 countries with a variety of ethnic, political, health, economic, and climatic challenges – previously unanticipated refugee emergencies are likely to occur, creating new refugee outflows similar to those from Togo and the Central African Republic in 2005.

Key challenges include: weakening donor response, particularly in the area of food for refugees, owing to urgent priorities elsewhere; protracted and seemingly intractable refugee situations such as those of Somali refugees in Kenya and Western Saharan refugees in Algeria; concerns about the neutrality and security of refugee camps; and problems of humanitarian access to populations in need in Darfur and eastern Chad, for example; the concomitant disasters of drought/famine, as we are seeing in the Horn at present; and threats to refugee health, including HIV/AIDS and malaria.

Protection, both legal and physical, including protection of women and children from sexual violence and from recruitment into armed conflicts, has become more challenging in Africa. Support is planned for ongoing protection programs in Africa, including increased UNHCR protection staffing. Basic humanitarian assistance in Africa continues to lag behind international standards in such life-sustaining sectors as nutrition, where there is now some chronic malnutrition among refugees, and water/sanitation. Contributions to UNHCR and other implementing partners will continue to seek to address some of these gaps.

In Africa as elsewhere, ICRC, often in partnership with other elements of the International Red Cross and Red Crescent Movement, is called upon to provide relief and protection in the most difficult and dangerous areas of countries caught up in armed conflict, where success depends largely on securing the cooperation of the warring parties. This sensitive task has become even more difficult – in Darfur for example – as parties to conflict have increasingly rejected the principle of neutral humanitarian assistance. The ICRC program in Africa provides protection and assistance to conflict victims and displaced persons, assistance to political prisoners and prisoners of war, and tracing services (for detainees and family members separated by conflict).

NGOs are key partners of IOs in Africa, often in specialized areas such as health care, water and sanitation, and education. In some cases, FY 2007 funds will be provided directly to NGOs that require additional support in order to play the implementing partner role. UNICEF, IOM, and other international organizations may also receive funding for assistance activities complementary to those of our key partners.

Assistance Programs in East Asia

($ in thousands)

The FY 2007 request includes continued support for UNHCR and ICRC programs throughout the region and critical programs of non-governmental organizations (NGOs) that assist Burmese refugees in Thailand.

The largest group of refugees in East Asia continues to be Burmese. Of the Rohingya refugees who fled to Bangladesh from Burma in late 1991 to mid-1992, over 236,000 have voluntarily repatriated, but only very small-scale repatriation occurred in 2005. USG contributions to UNHCR in FY 2007 will provide support to the remaining refugees in the camps in Bangladesh as well as the reintegration and recovery needs of Rohingyas in Burma who repatriated within the past three years. Those remaining in Bangladesh need a durable solution, and UNHCR is negotiating with the Government of Bangladesh about this caseload. There are approximately 10,000 Burmese Chin and 10,000 Burmese Rohingya residing in Malaysia, as well as about 30,000 Acehnese refugees from Indonesia.

At the beginning of 2006, approximately 140,000 refugees from a variety of ethnic groups in Burma still resided in camps in Thailand to which they fled to escape attacks by the Burmese army and its allies as well as from general persecution, such as forced labor and dislocation. The Thai Government continues to cooperate with UNHCR on the registration and protection of refugee camp populations. U.S. contributions to UNHCR and NGOs will support protection and assistance for Burmese refugees in Thailand.

The FY 2007 request will also continue funding NGOs working in Burmese refugee camps in Thailand. These NGOs address needs not covered by UNHCR or other IOs, including public health programs, water and sanitation, food, fuel and clothing aid, as well as some basic household assistance, such as blankets and mosquito nets. Future MRA requests will seek to cover all USG programs in refugee camps in Thailand, including those currently funded by the U.S. Agency for International Development (USAID).

UNHCR also provides needed protection and assistance to Montagnard asylum seekers from Vietnam in Cambodia. The organization interviews asylum seekers, provides direct assistance in Cambodia, and assists their resettlement to third countries or return to Vietnam. UNHCR staff from several missions in the region participate in monitoring missions to returnee locations in Vietnam’s Central Highlands.

U.S. contributions to ICRC in East Asia support ongoing programs, such as visits to detainees and emergency relief and medical care for conflict victims. Regional ICRC delegations throughout East Asia largely concentrate on core activities of protection, tracing, dissemination, and medical assistance, including the provision of prosthetics for those injured by anti-personnel landmines.

North Korean refugees continue to flee famine and oppression in the DPRK. The North Korean Human Rights Act of 2004 calls on the USG to do more to assist this vulnerable population. PRM will actively continue to support the efforts of the UN to improve its access, protection and assistance of this population in FY 2007.

Assistance Programs in Europe

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In Europe, one major focus of U.S. policy with regards to the Russian Federation and the Independent States of the Former Soviet Union (IS) remains the pursuit of political settlements to the “frozen” and on-going conflicts in the North and South Caucasus. FY 2007 Migration and Refugee Assistance (MRA) funds will continue to assist over one million people who remain displaced as a result of these conflicts. Life-saving assistance over the years through UN and NGO partners has provided protection, food, shelter, health, water & sanitation, education and mine action programs for refugees, internally displaced persons (IDPs) and asylum seekers in the North and South Caucasus.

The situation in the North Caucasus continues to worsen and threaten Russian and U.S. interests.

The conflict in Chechnya, while somewhat more controlled in the Republic, has spread to the republics of Dagestan, Ingushetia, North Ossetia, Kabardino-Balkaria, Karachai-Cherkessiya, and Adygeya.

The United States continues to devote considerable attention to the strategically important region of the South Caucasus, with President Bush making the first visit ever by a U.S. President to Tbilisi in 2005. While we are hopeful that peace discussions will result in possible settlements in the “frozen conflicts” in the South Caucasus, thousands will remain displaced in FY 2007 and will continue to face many hardships (inadequate housing and health care and lack of economic opportunity), with insufficient resources to support them from their governments and the international community.

The FY 2007 MRA request also reflects a continued need for assistance in the Balkans, particularly in building an emergency response capacity. The potentially difficult negotiations over Kosovo’s final status have begun. The process is expected to take up to a year, and could result in significant population movements within the region.

Providing durable solutions for displaced persons is a key aspect of U.S. foreign policy in the region and is essential to promoting regional stability, particularly during the upcoming final status negotiations. Since the end of the war in Kosovo in 1999, MRA funding to NGO partners has helped to provide information on return and integration options to interested IDPs; facilitated cross-boundary returns to pre-war communities in Kosovo through implementation of assistance components including shelter repair, income generation activities and provision of basic household necessities; created sustainable environments for returnees through community stabilization and reconciliation programs; provided income generation activities and legal assistance for refugees and IDPs in Serbia who decide to permanently relocate there; and offered emergency humanitarian assistance such as food and shelter in the aftermath of unanticipated violence, as occurred in Kosovo in March 2004.

In FY 2007, the State Department will continue to work closely with UNHCR and its NGO partners to offer protection and durable solutions. There is a strong possibility that a significant migration flow or other humanitarian emergency may emerge either during or after the Kosovo final status talks. MRA funds will help ensure that UNHCR and NGOs possess appropriate contingency resources to deal with such a crisis.

The State Department will also continue to support ICRC’s unique role in the Balkans facilitating exchange of information on missing persons, conducting prison visits, and building the capacity of local Red Cross societies.

Assistance Programs in the Near East

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Supporting the return and sustainable reintegration of Iraqi refugees and IDPs remains a key priority in this region. Over 250,000 Iraqis have voluntarily returned to their home country since 2003. FY 2005 MRA funds totaling $58.2 million supported IO and NGO implementing partners providing reintegration assistance for these returnees in the critical sectors of health, water/sanitation, shelter, primary education, and protection, thereby increasing the likelihood of sustainable reintegration and stability in areas of high return. Support for the Iraqi Ministry of Displacement and Migration (MODM) enhanced its capacity to coordinate other government ministries and NGOs during humanitarian crises. MRA funds in FY 2005 provided life-sustaining assistance and protection to vulnerable Iraqis in neighboring countries and to non-Iraqi refugees inside Iraq and also supported the durable solution of local integration for over 3,000 Iranians. FY 2006 funding targets include: supporting the voluntary return and reintegration of an estimated 100,000 refugees; strengthening the Temporary Protective Regime for vulnerable Iraqis in neighboring countries; further strengthening MODM’s capacity to respond to humanitarian crises throughout Iraq; complementing the work of the Provincial Reconstruction Teams by meeting the short-term needs of communities impacted by large numbers of returning refugees; and supporting durable solutions such as local integration or voluntary repatriation for non-Iraqi refugees, such as 11,000 Turkish Kurds in Makhmour. Similarly in FY 2007, MRA funds will continue to target reintegration assistance to returnees (150,000 estimated in 2007) and foreign refugee populations in Iraq.

In addition to supporting Iraqi refugees, UNHCR serves more than a half million persons of concern in eight countries of the region: Egypt, Iraq, Israel, Jordan, Lebanon, Saudi Arabia, Syria, and Yemen. Throughout the Near East, UNHCR provides protection and assistance with emphasis on the special needs of women and children, counsels repatriation candidates, assists voluntary returns and reintegration, conducts status determination interviews and resettlement processing, negotiates with host governments regarding conditions for refugees, and provides some vocational skills training and self-help activities.

ICRC activities in the Near East are directed at civilian victims of conflict, people deprived of their freedom (prisoners of war), the wounded and sick, and missing persons. ICRC activities also support civil society, national Red Crescent Societies, and government authorities. ICRC cooperates with national societies on the dissemination of international humanitarian law and on strengthening their tracing services. It runs prosthetic/orthotic centers and trains technicians in this work. ICRC is often the only international humanitarian organization that is able to access areas of civil strife in this region to provide needed protection, medical and other assistance to conflict victims and displaced persons.

The FY 2007 MRA request incorporates continued support for assistance programs of the UN Relief and Works Agency for Palestine Refugees in the Near East (UNRWA), which benefit over four million registered Palestinian refugees in the region. The U.S. has been a major contributor toward UNRWA’s programs since it began operations in 1950, under a UN mandate to assist Palestinian refugees in Jordan, Syria, Lebanon, and the West Bank and Gaza. The agency provides education, health care, and relief and social services. UNRWA schools and vocational training centers play a vital role in helping Palestinian refugees become economically self-reliant. U.S. support helps to provide some stability in the lives of the Palestinian refugee population in an increasingly difficult environment and contributes to building a climate conducive to a peaceful resolution of regional problems. Also, support to UNRWA allows it to continue critical security monitoring of its programs and operations in the West Bank and Gaza. The MRA request does not include any funding for UNRWA’s emergency operations.

UNRWA’s 2006-2007 budget is designed to address the significant decline in humanitarian conditions among Palestinian refugees in the West Bank and Gaza. Since the second Intifada erupted in September 2000, unemployment among Palestinians in the West Bank and Gaza has grown from 10 to 30 percent; and 1.7 million Palestinians (refugees and non-refugees - 47 percent of the population) now live below the poverty line. One in three refugees living in camps in the West Bank and Gaza survives on less than US $1 per day.

The USG strives to support 22-25 percent of UNRWA’s regular annual budget subject to the availability of funds, per the State Department’s 2005 Framework Agreement with UNRWA. In the wake of Gaza disengagement, USG assistance would help UNRWA implement the Wolfensohn team’s recommendations on how best to revive the Palestinian economy by supporting projects designed to help Palestinians become self-reliant, in keeping with the USG policy objective of stabilizing humanitarian conditions in the West Bank and Gaza, where 1.6 million Palestinian refugees live. USG funding will help support UNRWA's strategic goal of bringing its schools, vocational centers, and primary health clinics up to host government standards by reducing school double-shifting and overcrowding and by lessening the daily patient load for its doctors. It would also help support the rehabilitation of shelters and infrastructure in UNRWA refugee camps in Lebanon, the deterioration of which contributes to declining morale and feeds into political militancy.

Assistance Programs in South Asia

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Over 3.3 million Afghans continue living as refugees in Pakistan and Iran despite the return of 3.5 million refugees to Afghanistan since 2001. Reintegration needs inside Afghanistan, as a result of prior large-scale returns, will continue in 2007. Of equal importance will be continuation of programs in Pakistan and Iran that support other durable solutions for those unable to return. MRA funds will facilitate the return of up to 600,000 refugees to Afghanistan in FY 2007 through contributions to UNHCR and others. While the returnees receive travel and minimal reintegration assistance, most of them return to damaged or destroyed homes, a devastated physical and economic infrastructure, and little in the way of employment opportunities. In 2007 the international community will continue the transition from humanitarian assistance to development assistance for returnees in order to anchor returnees in their home communities and respond to unmet humanitarian needs, rebuild infrastructure, and create economic opportunities.

PRM will continue to support ICRC’s programs benefiting victims of the Afghan conflict with a focus on emergency medical assistance and visits to detainees. ICRC runs a number of surgical and field hospitals for war-wounded Afghans and operates rehabilitation centers that provide services to the disabled. ICRC also provides emergency non-food assistance to the internally displaced and vulnerable, as well as water and sanitation projects in urban areas. Protection and tracing activities are important aspects of ICRC's Afghan Conflict Victims program.

UNHCR estimates that over 3 million Afghan refugees remained in Pakistan, Iran, and Central Asia at the end of 2005, of which it expects 650,000 to repatriate in 2006. The uncertain security situation, persecution of certain ethnic groups, and Afghanistan’s limited capacity to absorb additional returnees continue to dampen the pace of returns. The U.S. Government will need to continue supporting UNHCR and its partners’ protection and assistance work on behalf of refugees in these countries. Continued assistance will also support UNHCR/Pakistan's work with the Government of Pakistan to accept long-staying refugees as migrants with rights and access to social services. This durable solution of local integration will be accomplished through institution of a border and migration regime and, in cooperation with USAID and other development actors, by supporting small-scale development projects, identified in 2006, for refugee-affected areas in Pakistan. This is an important step in ultimately phasing out our assistance-based refugee program in Pakistan, and is also a crucial step in building a sound foundation for future Pakistan-Afghan relations.

An estimated 105,000 ethnic Nepalese refugees from Bhutan have been living in seven camps in southeastern Nepal since the early 1990s. The Department is aggressively working with governments in the region and elsewhere to promote durable solutions for this refugee population. In the meantime, PRM will continue to support UNHCR’s protection and assistance activities in the camps, including primary education for refugee children, teacher training, and income generating and skills projects. UNHCR will aim to ensure that any future returns to Bhutan are voluntary and promote resettlement for the most vulnerable individuals. UNHCR also supports Tibetan refugees in transit to India by providing them with food, shelter, and health care and maintaining a Reception Center for Tibetan refugees in Kathmandu. PRM will continue to support ICRC’s activities in the region.

India is host to over 130,000 Tibetan refugees. The Department supports through the Tibet Fund the immediate needs of approximately 2,500 new Tibetan refugees who arrive in India each year. In addition, with no resolution to the Kashmir conflict in sight, support for ICRC’s critical work to protect detainees and conflict victims will also continue through U.S. contributions to its regional appeal.

Another important country of humanitarian interest in the region is Sri Lanka, which currently has 337,000 IDPs living inside its territory and another 130,000 refugees living abroad. PRM will continue supporting UNHCR’s efforts to 1) facilitate an ongoing voluntary repatriation program for Sri Lankan refugees currently residing in camps in southern India (70,000 currently live in those camps), 2) protect and assist conflict-related IDPs with targeted return and relocation projects and legal advice, and 3) assist the UN in mitigating the effects of the tsunami on tsunami-displaced people. PRM will also support ICRC’s efforts to 1) protect civilians against violations of international humanitarian law, 2) help families learn the fate or whereabouts of missing relatives, 3) allow the free movement of people between Vanni and the rest of the country, and 4) improve primary health care facilities and water supplies in the north-east.

Assistance Programs in the Western Hemisphere

($ in thousands)

Assistance to persons displaced by the conflict in Colombia will continue to be a major priority for the United States in the Western Hemisphere. For the past several years, the U.S. government has contributed to addressing the needs of the more than 2.5 million internally displaced persons (IDPs) inside Colombia, as well as tens of thousands of refugees outside Colombia, through a combination of MRA and special appropriations for the USG’s Colombia operations.

Our primary partners in Colombia are ICRC and UNHCR. In 2005, ICRC’s budget for its operations in Colombia (with 54 expatriate staff) was one of its largest in the world. ICRC distributes aid to internally displaced persons in over two-thirds of Colombia’s municipalities and is the primary provider of direct assistance during the emergency phase. Emergency food parcels are a crucial part of its assistance; ICRC also provides hygiene kits, bedding material, dishes and cooking utensils, as needed.

UNHCR is also assisting the Colombian government in responding to the assistance and protection needs of IDPs. Its activities in Colombia include advocacy on behalf of IDPs and capacity building with IDP associations and the national and local governments. In neighboring countries, UNHCR works with host governments to promote refugee-related legislation, support NGO and local government refugee response, register refugees and asylum-seekers, and assist voluntary returns of Colombian refugees. PRM also provides some assistance to new IDPs through NGOs, most significantly the Cooperative Housing Foundation (CHF), which is a major provider of shelter and provides some food/non-food items and psychosocial support as well. In FY 2005, CHF assisted over 13,000 displaced families with shelter and basic necessities.

However, there are still unmet IDP needs in Colombia, especially in rural areas, including lack of documentation and health care. In FY 2006, we will work with our partners to try to address these specific areas. In FY 2006 - 2007, PRM aims to begin partnering with NGOs in Costa Rica and Panama to assist Colombian refugees in those countries, but given the current demands on our resources in Colombia, Ecuador and Venezuela, that may not be feasible.

While Colombia represents the most significant humanitarian assistance requirement in the region, ongoing UNHCR and ICRC programs of protection, mass migration contingency planning, early warning monitoring, and humanitarian law dissemination throughout the hemisphere are needed to maintain a capacity for dealing with the needs of refugees and conflict victims now and in the future. U.S. contributions will help support UNHCR programs that work with States to establish effective protection regimes, especially given the potential for mass migrations in the region. UNHCR training workshops in the Caribbean are particularly important. Funds will also be contributed to ICRC assistance programs in Central and South America.

The MRA request includes funds to meet the Department’s commitment to support the needs of Cuban and Haitian migrants at the Guantanamo Bay Naval Base (GTMO) Migrant Operations Center (MOC) who have been found to be in need of protection and await resettlement in third countries. This requirement was established by Presidential Executive Order 13276. Due to its restricted, isolated location and a housing shortage on the base, the costs of maintaining and managing the MOC remain high. State has coordinated closely with Departments of Defense (DOD) and Homeland Security (DHS) to clarify our roles and responsibilities in the protection of migrants at the MOC. IOM’s management of protected migrant services has greatly reduced PRM's involvement with labor-intensive case management issues and allowed the Bureau to focus on developing resettlement opportunities. In FY 2005 PRM facilitated the resettlement of 55 Haitian and Cuban migrants from GTMO to Spain, Canada, Honduras, and Costa Rica. Resettlement in countries other than the U.S. deters other migrants from taking to the dangerous seas in attempting to reach the U.S.

Strategic Global Priorities

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The Strategic Global Priorities (SGP) line funds critical cross-cutting, global priorities such as emergency response, security of humanitarian workers, refugee women, refugee children, health, and protection. It supports activities of international and non-governmental organizations that do not appear in any specific regional program (e.g., centrally-funded, multiregional activities). The request for SGP funding will provide U.S. contributions to the headquarters and global program costs of the United Nations High Commissioner for Refugees (UNHCR), the headquarters budget of the International Committee of the Red Cross (ICRC), and the multiregional refugee activities of other international or non-governmental organizations. SGP program activities also include interagency coordination efforts, emergency response units of international organizations, and monitoring and evaluation activities.

A portion of SGP funding is specifically linked to performance measurement, e.g., commitment to improve protection and decrease incidence of gender-based violence (GBV) by increasing field presence in remote and precarious refugee settings. A particular emphasis of our SGP funding is to promote initiatives in such areas as refugee women and children, GBV, enhancing refugee protection, registration, HIV/AIDS prevention, and resolving protracted refugee situations. These situations ultimately become integrated into the regular programs of our partners and lead to more effective and efficient programs in support of refugee needs.

A key priority in funding UNHCR out of the SGP budget line is the prevention of sexual exploitation and the improvement of UNHCR’s protection presence in the field. The increasing violence of conflicts, including increases of GBV, large numbers of refugees and displaced persons in the world, most of whom are women and children, and the strain on resources to deal with them has eroded the protection of refugees over the years. The Bureau has worked closely with our NGO and IO partners on the prevention of sexual exploitation, and now requires that all our NGO partners have codes of conduct reflecting core principles regarding sexual exploitation. The continuation of the efforts to enhance UNHCR’s protection staffing capacity within the organization and the development of an enhanced registration system are important USG priorities. Funding is also included for UNHCR’s Operational Reserve, an important mechanism on which UNHCR’s emergency response capacity depends.

Funding for the ICRC headquarters budget covers the permanent activities carried out by ICRC staff in Geneva; field-related costs are normally attributed to the regional appeals. (The contribution to the headquarters budget is paid in Swiss francs, and the dollar amount will vary according to the exchange rate at the time of payment.) The contribution will be calculated at not less than 10 percent of the 2007 ICRC headquarters budget in accordance with the Foreign Relations Authorization Act of 1988 and 1989. The ICRC headquarters budget is funded through voluntary contributions by governments and national societies of the Red Cross/Red Crescent Movement. U.S. contributions to ICRC's regional emergency appeals are described under the previous regional sections of this document.

The SGP budget line also supports positions held by Americans with UNHCR through its Junior Professional Officer (JPO) program.

Migration

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International migration activities focus on cooperation with other governments and with international and non-governmental organizations to facilitate humane and effective migration management. MRA funds for migration activities are primarily disbursed through the International Organization for Migration (IOM). The FY 2007 request for migration activities includes an annual assessed contribution to IOM. As a member of IOM, as authorized in the Migration and Refugee Assistance Act of 1962, the United States pays annually a 25.74 percent assessment to the organization’s administrative budget. The IOM assessed contribution is paid in Swiss francs, and the dollar amount will vary according to the exchange rate at the time of payment (in FY 2005 the assessed contribution amounted to $8.02 million). The Migration budget line also supports two positions held by Americans with IOM through the Associate Expert (AE) program.

Assistance in this category will support the international migration policy goals for which PRM has primary responsibility, especially the promotion and protection of the human rights of vulnerable migrants, including asylum seekers and victims of trafficking. As part of this effort, PRM plays a key role in overall USG efforts to combat trafficking,, and a top priority of the FY 2007 request for migration includes support for programs to assist trafficking victims while building the capacity of foreign governments and NGOs to better confront this challenge. Resources will continue to support key programs to provide protection to victims, including victims’ identification, return transportation, reintegration and medical assistance. PRM will work with IOM to develop and disseminate capacity-building material, such as IOM modules in various languages to train government and NGO representatives on issues relating to the protection of trafficking victims. PRM will continue to encourage IOM to strengthen the development and use of performance indicators for anti-trafficking programs. These performance indicators will be an integral part of evaluating the effectiveness of MRA-funded anti-trafficking activities, as well as for justifying continued USG support. Anti-trafficking programming is closely coordinated with other U.S. anti-trafficking efforts through the State Department’s Office to Monitor and Combat Trafficking in Persons and the inter-agency Senior Policy Operating Group on Trafficking in Persons.

Another principal migration activity is participation in and support for regional migration dialogues. Since 1996, the United States has been involved in the Regional Conference on Migration (RCM), a forum where ten North and Central American governments and the Dominican Republic discuss and cooperate on common migration challenges. In addition, since 1985 the United States has participated in the Intergovernmental Consultations on Asylum, Refugee, and Migration Policies in Europe, North America, and Australia (IGC), an informal channel for senior and mid-level policy officials from the United States, Canada, Australia, and European countries to exchange views and share information. PRM also supports newer regional dialogues, such as the South American Conference on Migration (SACM) and the Migration Dialogue for Southern Africa (MIDSA) for member states of the Southern African Development Community (SADC), and the Bali Ministerial Process on People Smuggling, Trafficking in Persons and Related Transnational Crime, covering the Asia-Pacific region. PRM is actively involved in discussions on migration and trafficking issues at the regional level through the Organization of American States and the Summit of the Americas (OAS), and at a global level through the UN system.

Refugee Admissions

($ in thousands)

In FY 2007, PRM will continue to work on three priority areas for the admissions program: pipeline development, enhanced security during processing, and high-quality reception and placement services. The increased level of funding for refugee admissions in FY 2007 reflects the Administration's commitment to the program.

Africa

African admissions comprise 33 percent of the allocated program during FY 2006, or some 20,000 arrivals. In FY 2005, African admissions totaled 20,749 and continued to show recovery from the post-9/11 period. During FY 2006, PRM will continue to process populations in need of resettlement in both East and West Africa. A number of large groups of African refugees for whom no other durable solution appears possible are currently under review for processing and will, along with family reunification cases, comprise the FY 2007 caseload. The Africa program will continue to be among the larger regional programs.

East Asia

In FY 2006, assuming early resolution of the “material support for terrorism” issue*, arrivals from East Asia will likely comprise some 28 percent of the year’s arrivals or 15,000 refugees. The State Department is planning to process Burmese refugees in Thailand and Malaysia in FY 2006. Otherwise, FY 2006 will see processing of a residual caseload from the Orderly Departure Program and a small number of other cases in Vietnam. Looking ahead to FY 2007, it is likely that the program will begin processing significantly more Burmese refugees from the border camps in Thailand and possibly vulnerable Tibetans in Nepal.

Europe

The FY 2006 program in Europe will include primarily persons from the former Soviet Union, religious minorities of special interest to the United States, including Jews, Evangelical Christians, and certain Ukrainian religious activists. The program for some 16,000 Meshketian Turks from Krasnodar is fully underway, and most will arrive during FY 2006. In FY 2007, we expect to continue processing religious minority cases.

Near East and South Asia

Admission of Iranians (primarily religious minorities) and small numbers of other nationalities are expected to continue in 2006. The U.S. Government will continue to admit vulnerable Iraqis and Afghans, including women at risk. The scale of FY 2007 admissions from the region is expected to be similar to that of FY 2006 – some 5,000, although part of a large population of Bhutanese in Nepal may enter the program if longstanding multilateral complications can be resolved.

Latin America and the Caribbean

Admissions in this region during FY 2006 will comprise in-country processing for Cubans and the small program for Colombians. With resolution of the “material support for terrorism” issue*, we expect the Colombian program would increase. Arrivals from Cuba have increased markedly as the program has overcome some of the significant backlog created after 9/11. In FY 2007, arrivals from the region will be similar.

Itemization of Costs

Each step in the refugee admissions process involves direct costs to the program, including caseload identification, overseas processing (both before and after the Department of Homeland Security (DHS) interview), medical examination, security screening, transportation, and reception and placement. Funds are also used to support centralized data management and administrative overhead of both the overseas and domestic partners involved in the program. The budget request for refugee admissions funds the programs described below. Funds may also be used for the evaluation of these programs.

Identification and Processing

The Department funds UNHCR, IOM, and NGOs to assist with the identification and processing of refugees worldwide for resettlement in the United States. Processing responsibilities include screening applicants to assess their eligibility for interview by DHS adjudicators under the U.S. refugee program. Some applicants interviewed by DHS are not approved for U.S. resettlement. Therefore, more cases are processed during the course of the year than will actually be admitted to the United States as refugees. For approved refugees, processing funds are also used to pay for medical examinations, cultural orientation materials and briefings, and required travel documentation.

In addition to overseas processing operations, the Department funds certain services performed in the United States that are essential to the smooth and efficient operation of the admissions process. This includes maintaining a U.S.-based Refugee Processing Center that manages the refugee admissions database and case allocation and sponsorship functions.

Transportation and Related Services

For FY 2007, the Administration requests funds for transportation and related services provided by IOM in support of the U.S. admissions program. This activity includes funding for international and domestic airfares, IOM operational support, communications, and transit accommodations where required. The cost of airfare is provided to refugees on a loan basis; beneficiaries are responsible for repaying their loans over time after resettlement. Therefore, the requirement for appropriated funds for refugee transportation in any given year is partially offset by loan repayments made available to IOM from refugees previously resettled.

Reception and Placement Program

Through the Department's Reception and Placement program (R&P), private voluntary organizations and one state agency receive funds to provide basic services to refugees for initial integration into U.S. society. These agencies are expected to augment federal funds by drawing on private cash and in-kind contributions, which are essential to the success of this program. Services include pre-arrival planning, reception at the airport, initial provision of basic necessities, including housing, food and clothing, orientation to their communities, counseling, and referral to local social service programs.

The Department coordinates with the domestic refugee assistance programs administered by the Office of Refugee Resettlement in the Department of Health and Human Services (HHS/ORR), which assumes responsibility for assisting resettled refugees after the initial service period covered by the R&P program.

Program Assessment Rating Tool (PART) / Performance Evaluation

During previous budget preparations, the Administration assessed the Refugee Admissions to the United States program. According to the assessment, the program has a clear purpose, planning processes are in place, and the program is well managed. The Department monitors progress toward program goals using performance indicators.

* The material support for terrorism issue, which refers to a question of whether certain aliens are admissible into the U.S., is currently under review within the U.S. government.

MRA Humanitarian Migrants to Israel

($ in thousands)

The FY 2007 request will maintain our support for migrant programs of the United Israel Appeal (UIA). Our grant to the UIA helps finance programs of the Jewish Agency for Israel, which assist in the absorption into Israeli society of Jewish humanitarian migrants coming to Israel from the former Soviet Union, Ethiopia, and other countries of distress. All migrants receive programmatic support designed to promote their integration into Israeli society and include transportation to Israel, Hebrew language instruction, transitional housing, education, and vocational training. In 2005 UIA expected to support the movement of about 13,200 migrants to Israel, including over 3,600 Ethiopian Jews. In 2006 UIA projects that approximately 16,700 Jewish migrants will move to Israel, including 7,200 Ethiopian Jews. In 2007 we expect a similar number (16,700) would resettle in Israel. The increase in number of migrants reflects the accelerated program to move Ethiopian Jews to Israel.

Program Assessment Rating Tool (PART) / Performance Evaluation

During previous budget preparations, the Administration assessed the Humanitarian Migrants to Israel program. According to the review, the program is well managed and has a clear purpose: to provide assistance for the resettlement in Israel of humanitarian migrants from the former Soviet Union, countries in Eastern Europe, Africa and the Near East, and other countries of distress. The Department monitors progress toward program goals using performance indicators.

MRA Administrative Expenses

($ in thousands)

The FY 2007 request of $22.2 million for administrative expenses provides the Department with the resources essential to manage effectively and responsibly critical humanitarian programs funded through the MRA and ERMA appropriations. With this administrative budget, the PRM Bureau manages resources approaching $1 billion and an array of significant humanitarian policy issues as well as the refugee admissions program. PRM staff address program design and implementation, monitor and evaluate operational activities, and support other parts of the State Department in integrating refugee and humanitarian issues into broader foreign policy concerns. They play an equally important humanitarian diplomacy role.

The administrative expenses line funds salaries and benefits for Bureau staff in Washington, D.C. and overseas, as well as travel and overseas post allocations. Costs related to the small staff dedicated to international population activities are included in the Department of State's Diplomatic and Consular Programs account.

U.S. Emergency Refugee and Migration Assistance Fund

($ in thousands)

The U.S. Emergency Refugee and Migration Assistance Fund (ERMA) is a no-year appropriation, drawn upon by the President to meet “unexpected urgent refugee and migration needs” whenever the President determines that it is “important to the national interest” to do so. The Migration and Refugee Assistance Act of 1962, as amended, provides permanent authorization for the account of up to $100 million. The FY 2007 request of $55 million will provide the critical capacity needed to respond to unexpected refugee and migration emergencies.

At the beginning of FY 2006, $28.2 million remained in the fund. The FY 2006 ERMA appropriation was $30 million, which was reduced to $29.7 million after a 1% across-the-government rescission. During the first quarter of FY 2006, $5 million was drawn down from the Fund to support unexpected urgent humanitarian needs of refugees and other victims of the October 2005 earthquake in Pakistan, leaving $52.9 million available as of the second quarter of FY 2006. We anticipate extensive use of ERMA resources in 2006 to respond to any number of refugee emergencies now on the horizon.

Replenishment of the Fund in FY 2007 is essential to maintaining USG leadership to respond to refugee and migration emergencies, providing sufficient resources to cover the average annual drawdown level in recent years.

Thanks in part to an emergency supplemental appropriation, obviating the need for more extensive use of ERMA, a total of $42.7 million was drawn down from the ERMA fund in FY 2005 for the following needs:

Presidential Determination 2005-01: $8 million

On October 7, 2004, $8 million was authorized to support unexpected and urgent needs related to Burundi refugee repatriation and reintegration.

Presidential Determination 2005-23: $34.7 million

On March 29, 2005, $34.7 million was authorized to respond to the humanitarian crisis in the West Bank and Gaza ($20 million) and to support unexpected and urgent needs related to refugee repatriation and reintegration in Burundi ($10 million) and the Democratic Republic of the Congo ($4.7 million).

U.S. Emergency Refugee and Migration Assistance Fund

($ in thousands)

The U.S. Emergency Refugee and Migration Assistance Fund (ERMA) is a no-year appropriation, drawn upon by the President to meet “unexpected urgent refugee and migration needs” whenever the President determines that it is “important to the national interest” to do so. The Migration and Refugee Assistance Act of 1962, as amended, provides permanent authorization for the account of up to $100 million. The FY 2007 request of $55 million will provide the critical capacity needed to respond to unexpected refugee and migration emergencies.

At the beginning of FY 2006, $28.2 million remained in the fund. The FY 2006 ERMA appropriation was $30 million, which was reduced to $29.7 million after a 1% across-the-government rescission. During the first quarter of FY 2006, $5 million was drawn down from the Fund to support unexpected urgent humanitarian needs of refugees and other victims of the October 2005 earthquake in Pakistan, leaving $52.9 million available as of the second quarter of FY 2006. We anticipate extensive use of ERMA resources in 2006 to respond to any number of refugee emergencies now on the horizon.

Replenishment of the Fund in FY 2007 is essential to maintaining USG leadership to respond to refugee and migration emergencies, providing sufficient resources to cover the average annual drawdown level in recent years.

Thanks in part to an emergency supplemental appropriation, obviating the need for more extensive use of ERMA, a total of $42.7 million was drawn down from the ERMA fund in FY 2005 for the following needs:

Presidential Determination 2005-01: $8 million

On October 7, 2004, $8 million was authorized to support unexpected and urgent needs related to Burundi refugee repatriation and reintegration.

Presidential Determination 2005-23: $34.7 million

On March 29, 2005, $34.7 million was authorized to respond to the humanitarian crisis in the West Bank and Gaza ($20 million) and to support unexpected and urgent needs related to refugee repatriation and reintegration in Burundi ($10 million) and the Democratic Republic of the Congo ($4.7 million).

FY 2007 Bureau Performance Plan: Summary of Goal Papers

GOAL 1: Protection & Durable Solutions (PART)

PRM's protection programs seek to ensure access to effective protection for refugees, conflict victims, and, in certain cases, internally displaced persons. Our primary goals are to: prevent refoulement (involuntary return to a place where there is risk of persecution), promote access to asylum, enhance physical protection (especially for women and children), and promote durable solutions. 

INDICATORS

• Annual measure: Number of new national laws adopted by States to implement obligations under international humanitarian law (IHL).
• Long-term measure: Increased capacity of National Societies to restore family links. (target = 10% by 2009)
  Annual measure: Ratio of number of Red Cross Messages distributed in countries where ICRC cooperates with National Societies to number of countries where ICRC cooperates with National Societies.
• Long-term measure: Complete development and deployment of UNHCR's registration system, "Project Profile."
  Annual measure: Number of countries with effective registration capacity of UNHCR in refugee situations.
• Long-term measure: Number of fully funded permanent, international, professional posts in the "protection" area that exist within UNHCR. (target = 290 by 2009, from 240 in 2003)
  Annual measure: Number of UNHCR protection posts worldwide.
• Long-term measure: Reduction of long-standing global refugee population due to achievement of durable solutions. (target = 25% by 2009, from 9.7 million in 2003)
  
• PART efficiency measure: ICRC field protection program costs as a percentage of total protection costs (including HQ protection support).

GOAL 2: Assistance

PRM's assistance program covers a wide range of initiatives designed to address the humanitarian needs of refugees, returning refugees, victims of conflict, and, in some cases, internally displaced persons. Through the programs we support, we provide effective and efficient humanitarian response at internationally accepted standards.

INDICATORS

• Crude Mortality Rates (CMR) do not exceed established thresholds in 95% of targeted refugee sites.
• Nutritional status: Incidence of global acute malnutrition in children under age five.
  Global acute malnutrition is defined as weight-for-height ratios that are less than 2 standard deviations below the mean (Z score of less than –2), or less than 80% median weight-for-height, or the presence of nutritional edema.
• PART Efficiency measure: Assistance deliveries on time and in accordance with specification for the UN Relief and Works Agency for Palestine Refugees in the Near East (UNRWA).

GOAL 3: Refugee Admissions to the U.S. (PART)

The goals of the Resettlement Program are to ensure that:

• Eligible refugees in need of protection are offered the durable solution of resettlement to the United States or other resettlement countries;
• The annual refugee admissions ceiling for the U.S. is based on a valid assessment of the number of refugees at risk overseas and U.S. capacity to respond;
• The U.S. government uses as many of the slots allocated under the President’s annual ceiling as possible;
• The Bureau provides support and influence so that UNHCR maintains a strong capacity to identify and refer refugees in need of resettlement;
• Relevant U.S. government agencies make the most efficient use of available resources to maximize benefits to refugees;
• Security, health, and anti-fraud measures are fully implemented in refugee processing;
• Refugees approved by DHS and otherwise admissible are moved to the U.S. as quickly as possible;
• Standardized essential services are provided by a nationwide network of sponsoring agencies to recently resettled refugees, so that they can begin the process of becoming self-sufficient, fully integrated members of U.S. society.

INDICATORS

• Number of refugees admitted to the U.S. as a percentage of the regional ceilings established by Presidential Determination.
• Number of individual and group refugee referrals to the U.S. from UNHCR.
• Percentage of refugees moved to U.S. within 6 months of DHS approval.
• Percentage of agency affiliates in the Reception and Placement (R&P) program found to be in compliance with established basic standards of care, which ensure that refugees’ basic necessities (including decent housing, furnishings, health and employment services, and school enrollment for children) are met upon arrival and during an initial period in the U.S.
• PART efficiency measure: Total average cost per refugee arrival in the U.S.

GOAL 4: UNHCR (PART)

The United Nations High Commissioner for Refugees is the UN agency mandated to provide international protection to refugees, and to seek permanent solutions to their plight. Today, the UNHCR is one of the world's principal humanitarian agencies, with responsibility to protect and assist over 18 million persons of concern, including nearly 10 million refugees. As mandated by Congress, UNHCR is the U.S. government's primary partner in refugee protection and assistance.

INDICATORS

• Number of UNHCR protection posts worldwide.
• Number of countries with significant refugee populations for which UNHCR provides a comprehensive refugee needs assessment to donors.
• The percentage of negative findings in an audit report for one year that are fully addressed by March of the year following issuance of the audit report.
• PART efficiency measure: UNHCR Inventory Control – Value non-expendable items procured/total value of recorded non-expendable property procured.

GOAL 5: Humanitarian Migrants to Israel (PART)

This program began in 1973 to address the situation of Jews in the former Soviet Union, Eastern Europe, Africa and the Near East and other countries where Jews are in distress. The U.S. funds portions of five programs as part of the overall work of the United Israel Appeal, the only U.S. organization with a resettlement program in Israel. The program resettles humanitarian migrants to Israel, providing them with knowledge and skills to help them integrate and achieve self-sufficiency.

INDICATORS

1. Availability and quality of mandatory services to eligible humanitarian migrants. Mandatory services are defined as care and processing en route, transport to Israel, and transitional housing.

• Humanitarian migrants are provided with effective Hebrew language training.
• Humanitarian migrants to Israel are provided with effective vocational training.
• PART efficiency measure: Reduction in time migrants from the former Soviet Union stay at absorption centers, thereby reducing cost.

GOAL 6: Other PRM Programs (PART)

The Bureau works with international and non-governmental organizations to address specific policy priorities, fill gaps in refugee assistance, and promote orderly and humane migration policies.

INDICATORS

• Filling Critical Roles: Percentage of PRM-funded NGO or ‘other IO’ assistance projects that include activities that focus on prevention and response to gender-based violence (GBV). Activities may include: awareness-raising, psychosocial, medical, and legal activities.
• Monitoring & Evaluation: Percentage of funding to NGO and other IO projects that are monitored and evaluated (M&E) by program officers and refugee coordinators through formal reporting channels in line with the Comptroller’s M&E cables and PRM M&E procedures (i.e., reporting cables, official memos and/or e-mails.)
• Trafficking in Persons: Percentage of foreign governments with PRM-funded anti-trafficking projects that have increased their activities to combat TIP. Activities include but are not limited to: (1) making new budget allocations or continuing budget allocations directed toward anti-trafficking; and/or (2) Developing new legislation to combat trafficking; and/or (3) providing in-kind support or facilitate program activities.
• Financial Oversight: Percentage of NGOs and ‘other’ IOs that take corrective action within a year of receiving negative findings in financial audits.
• Efficiency Measure: Efficiency of managing NGO projects, measured by the average amount of time between receipt of project proposal or deadline of submission and funding action.

GOAL 7: Population

Advance USG interests in bilateral and multilateral fora dealing with population and development issues.

INDICATORS

• Achieve management reforms at the United Nations Population Fund (UNFPA).

GOAL 8: Human Resources and Training

Ensure PRM has the right people in the right places to achieve the Bureau's overall strategic goals while supporting career advancement for PRM employees through appropriate staffing, training opportunities, and mentoring/leadership activities.

INDICATORS

• Staffing: The Bureau has the right number of employees in the right places to support the Bureau's objectives and national interests.
• Training: PRM has trained personnel to respond to humanitarian emergencies.
• Training: Participation of PRM staff in the setting of individual development plans, bureau organized training courses, Department-wide mandatory training requirements.
• Database: PRM is able to systematically track and monitor programs and funding.

FY 2007: Bureau Performance Plan

Abbreviations and Acronyms

Goal Paper

STRATEGIC GOAL: HT - Humanitarian Response
PERFORMANCE GOAL - HT.01 Assistance for Refugees and Other Victims

Part Program:

Protection and Durable Solutions (PART)

PRM's protection programs seek to ensure access to effective protection for refugees, conflict victims, and, in certain cases, internally displaced persons. Our primary goals are to: prevent refoulement (involuntary return to a place where there is risk of persecution), promote access to asylum, enhance physical protection (especially for women and children), and promote durable solutions.

This PART Initiative replaces PRM's previous Initiative/Program on Protection and Durable Solutions.

I. PART Scores/Ratings

II. PART Program Efficiency Measure

ICRC's field protection program costs as a percentage of total protection costs (including HQ protection support).

III. Long-Term Strategies

• Support international advocacy for the regular and consistent application of refugee and humanitarian laws and principles by states, including non-refoulement, humanitarian and civilian character of refugee camps, humanitarian access to populations in need, and security for humanitarian workers.

• Prevent refoulement of refugees through demarches and other diplomatic efforts, particularly where return will result in persecution or exposure to conflict.

• Promote appropriate durable solutions for all refugees, including voluntary repatriation, local integration and resettlement.

• Work with international organizations to create conditions that preclude forced displacement.

• Encourage U.S. humanitarian and political players to work in tandem to attempt to modify behavior of State and non-State actors injurious to the interests of refugees, IDPs and conflict victims.

• Use public diplomacy and public affairs to increase domestic and international understanding of the needs of refugees and other victims.

• Fund programs that seek to ensure adequate physical and legal protection for refugees and conflict victims, with special attention to vulnerable groups, including measures to deter, detect, and address gender-based violence (GBV) and exploitation.

• Support the development of UNHCR's refugee registration system, the Red Cross movement's capacity to restore family links, and a robust cadre of professional protection field staff.

• At international meetings, and in all cooperative agreements with partners, call for partners to adopt and implement codes of conduct prohibiting exploitation of humanitarian beneficiaries, with particular emphasis on the protection of women and children.

• Encourage all humanitarian organizations to promote protection in their work.

IV. Lead & Partners

Lead: State/PRM.

International partners funded by PRM: UN High Commissioner for Refugees (UNHCR), International Committee of the Red Cross (ICRC), United Nations Children's Fund (UNICEF), and other international organizations providing protection to refugees and conflict victims.

USG partners: State/International Organization Affairs (IO), State/Regional Bureaus, State/Democracy, Human Rights, and Labor (DRL), State/Coordinator for Reconstruction and Stabilization (S/CRS), State/Legal Affairs (L), State/Intelligence and Research (INR), State/Public Affairs (PA), State/International Information Programs (IIP), US Agency for International Development (USAID), Department of Homeland Security (DHS), Department of Defense (DOD), National Security Council (NSC), Office of Management and Budget (OMB).

Non-Governmental Organization (NGO) partners funded by PRM: nearly 40 funded NGO partners, including International Rescue Committee (IRC), American Refugee Committee (ARC), Cooperative Housing Foundation (CHF), and International Medical Corps (IMC) (four NGOs that received the most PRM funding in FY 2004).

V. External Factors

• The actions or policies of other sovereign governmental, quasi-governmental or non-governmental actors toward refugees, conflict victims, and internally displaced persons may increase the risk to these populations and undermine or oppose the USG’s objectives.

• Support of this PART initiative/ program is carried out largely through multilateral organizations; the USG (or any other donor) does not have sole control over the direction of these organizations, nor can it guarantee that they will receive adequate resources to achieve program goals.

• Lack of humanitarian access to affected populations – whether due to government policies, environmental conditions, conflict, or other security concerns – may hinder protection efforts.

• U.S. domestic policy toward asylum seekers and the protection of refugees impacts the bureau’s ability to affect changes in the policies and practices of other governments with regard to these same issues.

VI. Cross-Cutting Issues References

• AF (RS.02 Resolution of Regional Conflicts) - Conflict Management and Mitigation
• DRL (DE.02 Universal Human Rights Standards) - Apply human rights standards
• EA (DE.01 Democratic Systems and Practices) - Human Rights, Freedoms and Democracy
• EU (RS.02 Resolution of Regional Conflicts) - Chechnya
• IO (DE.02 Universal Human Rights Standards) - International Organization Human Rights Programs And Activities
• IO (RS.02 Resolution of Regional Conflicts) - UN Responses To Threats To Peace And Security
• L (DE.02 Universal Human Rights Standards) - Develop and Initiate Law Relating to International Human Rights
• NE (RS.02 Resolution of Regional Conflicts) - Implementation of the Road Map
• PM (HT.01 Assistance for Refugees and Other Victims) - Humanitarian Mine Action and Post-Conflict Security
• PM (RS.02 Resolution of Regional Conflicts) - Global Peace Operations Initiative
• PRM (HT.01 Assistance for Refugees and Other Victims) - UNHCR (PART)
• SA (DE.01 Democratic Systems and Practices) - Democratic Stability in South Asia's Frontline States
• SA (RS.02 Resolution of Regional Conflicts) - Peace Implementation in Sri Lanka

VII. Linkages to Other Strategic and Performance Goals

• Regional Stability - RS.02 Resolution of Regional Conflicts
• Democracy and Human Rights - DE.02 Universal Human Rights Standards
• Humanitarian Response - HT.02 Disaster prevention/response via capacity building

PART Key/Annual Goal - A

Increase the number of new national laws adopted each year by States to implement obligations under international humanitarian law (IHL).

Part Measure/Performance Indicator and Rating

Number of new national laws adopted each year by States to implement obligations under international humanitarian law (IHL).

Means/Actions to Achieve FY 2007 Target

• PRM supports ICRC's Advisory Service on International Humanitarian Law.
• ICRC's Advisory Service on IHL assists and tracks States' development of national legislation to implement IHL obligations.

Other Performance Information

Verification

ICRC tracks governments' implementation of international humanitarian law in its Treaty Database and its National Implementation Database. New national laws and other IHL developments are reported in ICRC's “National Implementation of International Humanitarian Law: Biennial Report 2002-2003.”

Validation

The adoption of national legislation signifies a positive outcome of ICRC activities.

PART Key/Annual Goal - B

Increase the collection and distribution of Red Cross Messages by National Red Cross and Red Crescent Societies in countries where ICRC cooperates with them.

Part Measure/Performance Indicator and Rating

Ratio of number of Red Cross Messages collected and distributed in countries where ICRC cooperates with National Societies to number of countries where ICRC cooperates with National Societies.

The program has set targets to increase this ratio by approximately 2% per year.

Means/Actions to Achieve FY 2007 Target

• PRM supports ICRC's efforts to restore family links through Red Cross messaging and tracing activities.
• ICRC works closely with local partners, particularly National Red Cross and Red Crescent Societies, to develop their capacity to restore family links.

Other Performance Information

Verification

ICRC registers and tracks missing persons and separated family members through its PROT5 database. It collects data annually on the number of RCMs collected and distributed, and the number of countries where it cooperates with National Societies.

Validation

This measure focuses on the capacity of National Red Cross and Red Crescent Societies to collect and distribute Red Cross Messages in cooperation with ICRC, as a critical aspect of restoring family links.

PART Key/Annual Goal - C

Develop effective registration capacity for refugees.

Part Measure/Performance Indicator and Rating

Number of countries with effective registration capacity in refugee situations.

Effective registration capacity refers to UNHCR's deployment worldwide of Project Profile by 2006, followed by the government's operation of Project Profile alone or jointly with UNHCR in 2007 and beyond.

• PRM supports an improved registration system by contributing earmarked funding to UNHCR, advocating for Project Profile's development and deployment, and monitoring registration efforts in the field.

Other Performance Information

Verification

UNHCR and Refugee Coordinator reports, as well as field visits conducted by PRM program officers.

Validation

Refugee registration establishes the number of refugees present in a given situation, family ties and composition, numbers of vulnerable persons, etc. This helps ensure that all refugees receive the assistance and protection they need, and helps prevent abuse of refugee assistance by non-refugees.

PART Key/Annual Goal - D

Creation of a separate UNHCR budget mechanism to provide funding for creation of additional posts with UNHCR in the “protection” area, and annual progress toward creation, funding and mainstreaming of these positions.

Part Measure/Performance Indicator and Rating

Number of UNHCR protection posts worldwide. Targets are threefold: a) Sustain support each year for posts previously created (earmarked by PRM); b) number of posts mainstreamed in UNHCR's budget (cumulative, no PRM earmark); c) number of posts newly supported/ created each year (earmarked by PRM).

Means/Actions to Achieve FY 2007 Target

• PRM works with UNHCR to identify appropriate new protection posts. PRM provides additional resources to UNHCR in a timely manner to undertake these activities. PRM works with UNHCR to mainstream these positions, and encourages other donors to support protection staffing.

Other Performance Information

Verification

Personnel reports from UNHCR, other IOs, and NGOs that work in conjunction with UNHCR. Field verification visits of PRM program officers and Refugee Coordinators.

Validation

The presence of staff with specific protection responsibilities is critical to providing both legal and practical protection for vulnerable individuals and groups. By co-locating with refugees, protection officers are better positioned to prevent abuses and increase accountability for perpetrators.

VIII. Association Between Long Term Goals and Key/Annual Goals

IX. PART Funding Sources

X. OMB Findings and Recommendations

OMB Finding/Recommendation/Status/Department Actions

Bureau Initiative/Program:

Assistance

PRM's assistance program covers a wide range of initiatives designed to address the humanitarian needs of refugees, returning refugees, victims of conflict, and, in some cases, internally displaced persons. Through the programs we support, we provide effective and efficient humanitarian response at internationally accepted standards.

III. Long-Term Strategies

• Through international and non-governmental organizations, provide funding for assistance to refugees and conflict victims that meets the internationally accepted SPHERE standards for humanitarian relief in the sectors of shelter, site management, food and nutrition, public health, water supply and sanitation, education, psychosocial support, and the environment.

• Promote self-reliance opportunities for refugees and IDPs to encourage the transition from external assistance to self-sufficiency.

• Ensure that humanitarian assistance, particularly for refugee reintegration and post-conflict recovery, implements sustainable programs and fosters capacity-building.

• Collaborate with other donors and humanitarian agencies to fill critical roles in programming, such as responsibilities for IDPs; encourage the UN to bring management and resources to bear on acute regional emergencies such as the combination of conflict, famine, malaria and HIV/AIDS in Africa.

IV. Lead & Partners

Lead: State/PRM.

International partners funded by PRM: UN High Commissioner for Refugees (UNHCR), International Committee of the Red Cross (ICRC), UN Relief and Works Agency for Palestine Refugees in the Near East (UNRWA), International Organization for Migration (IOM), UN World Food Program (WFP), United Nations Children's Fund (UNICEF) and other relevant international organizations providing humanitarian assistance.

USG partners: State/International Organization Affairs (IO), State/Oceans, Environmental and Scientific Affairs (OES), State/Regional Bureaus, State/Coordinator for Reconstruction and Stabilization (S/CRS), State/Global AIDS Coordinator, State/Intelligence and Research (INR), State/Public Affairs, State/International Information Programs, US Agency for International Development (USAID), Department of Agriculture, Department of Health and Human Services/Centers for Disease Control (CDC), Department of Defense, National Security Council (NSC), Office of Management and Budget (OMB).

Non-Governmental Organization (NGO) partners funded by PRM: nearly 40 funded NGO partners, including International Rescue Committee (IRC), American Refugee Committee (ARC), Cooperative Housing Foundation (CHF), and International Medical Corps (IMC) (four NGOs that received the most PRM funding in FY 2004).

V. External Factors

• Large-scale populations of refugees and conflict victims may require sustained support over an extended period of time, pending political solutions to the underlying causes of their flight. Protracted conflict situations will continue to be a problem.

• Cooperation or lack thereof by nations hosting refugees will affect the quality of assistance programs.

• Lack of humanitarian access to affected populations – whether due to government policies, environmental conditions, conflict, or other security concerns – may hinder assistance programs.

• Economic underdevelopment may limit our ability to assist refugees.

• Quality of management of international and non-governmental organizations will shape overall effectiveness of assistance efforts.

• Support of this initiative/ program is carried out largely through multilateral organizations; the USG (or any other donor) does not have sole control over the direction of these organizations, nor can it guarantee that they will receive adequate resources to achieve program goals.

• UN development and relief agencies have complementary goals, but different mandates; a relief-to-development continuum is not guaranteed.

Performance Indicator and Rating

Crude Mortality Rates (CMR)

Means/Actions to Achieve FY 2007 Target

• Through international organizations and NGO partners, PRM provides food, water, shelter, health and other humanitarian assistance to refugees, IDPs and conflict victims.

• PRM monitors refugee conditions, and coordinates with international organizations, NGOs, USG partners, and other donors to ensure the appropriate allocation of resources to respond to the threat or occurrence of increased mortality.

• Support efforts to improve data collection, e.g., expand pilot data collection effort to other countries and partner organizations, and to take other measures to address any problems of excess mortality.

• PRM works with key partners to improve the delivery of humanitarian assistance, with particular attention to refugee health and food issues.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

In June 2004, CMR exceeded 2/10,000/day among Sudanese refugees in Chad. With PRM's support, the Centre for Research on the Epidemiology of Disasters has created an online Complex Emergencies Database (CE-DAT) to track data on CMR and nutritional status.

Basis of FY 2005 To-Date Performance Rating

Where data are available, CMR does not exceed regional emergency thresholds in over 99% of targeted refugee sites. To date, CMR has been reported above the regional emergency threshold in only one camp in Chad out of over 225 refugee camps and settlements worldwide. PRM's strong support for humanitarian action in Chad has contributed to a decline in CMR among Sudanese refugees from Darfur, although it remains an issue of concern in selected sites in Chad.

With PRM's support, the Complex Emergencies Database (CE-DAT) is operational and contains data on mortality, nutritional status, morbidity and vaccination coverage for eight pilot countries. It is currently expanding data coverage to eight additional countries and improving its online interface.

Explanation of Changed Targets

N/A

Verification

Data source: Reports from CE-DAT, WHO, OCHA, WFP, UNHCR, and non-governmental organizations. PRM program officers in Washington and refugee coordinators in the field collect data from these sources.

USAID and PRM are collaborating with international organizations and NGO partners to develop a standardized methodology for collecting CMR data. Because humanitarian agencies have not yet adopted a common, standard methodology for collecting CMR data, the reliability of this data varies. Targeted sites include refugee camps and settlements identified by UNHCR; the total number of sites is based on population data from end CY 2003. Recent data are not available for all refugee sites.

Validation

The crude mortality rate is the mortality rate from all causes of death for a population. It is an accepted indicator of the extent to which the international community is meeting minimum standards of care (see www.sphereproject.org) and thus the overall impact and performance of the international relief system (www.smartindicators.org). Criteria developed by UNHCR and SPHERE establish regional CMR thresholds for emergency response based on long-term CMR data in these areas.

Performance Indicator and Rating

Means/Actions to Achieve FY 2007 Target

• Through international organizations and NGO partners, PRM provides food, water, shelter, health and other humanitarian assistance to refugees, IDPs and conflict victims.

• PRM monitors refugee conditions, and coordinates with international organizations, non-governmental organizations, USG partners, and other donors to ensure the appropriate allocation of resources to meet refugees' nutrition and health needs.

• PRM works closely with USAID, WFP and UNHCR to meet refugee food needs.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

In 8% of targeted sites (20 sites out of over 225 refugee camps and settlements worldwide), more than 10% of children under age five suffered from global acute malnutrition. For example, in June 2004, surveys conducted by the Centers for Disease Control and Prevention found that 36-39% of children under age five, among Sudanese refugees in Chad, suffered from global acute malnutrition .

The Department and USAID continued supporting new tools/measures to improve data collection and reporting on nutritional status.

Basis of FY 2005 To-Date Performance Rating

Global acute malnutrition rates among Sudanese refugees in Chad have declined since FY 2004; however, they remain at serious levels (around 15%), according to recent NGO surveys. PRM is working with UNHCR and other international and nongovernmental organizations to ensure that less than 10% of children under age five suffer from global acute malnutrition in refugee camps in Chad in FY 2005.

Explanation of Changed Targets

N/A

Verification

Reports from CE-DAT, WHO, OCHA, WFP, UNHCR, and nongovernmental organizations. USAID and PRM are creating a standardized methodology for collecting CMR and nutritional status data.

USAID and PRM are collaborating with international organizations and NGO partners to develop a standardized methodology for collecting nutritional status data. Because humanitarian agencies have not yet adopted a common, standard methodology for collecting nutritional status data, the reliability of this data varies. Targeted sites include refugee camps and settlements identified by UNHCR; the total number of sites is based on population data from end CY 2003. Recent data are not available for all refugee sites.

Validation

Nutritional status is a basic indicator for assessing the severity of humanitarian crisis, together with Crude Mortality Rate. In emergencies, weight loss among children 6-59 months is used as a proxy indicator for the general health and well-being of the entire community. Global acute malnutrition (GAM) is the term used to include all malnourished children whether they have moderate wasting, severe wasting or edema, or some combination of these conditions. GAM is defined as weight-for-height ratios that are less than 2 standard deviations below the mean (Z score of less than -2), or less than 80% median weight-for-height, or the presence of nutritional edema.

Performance Indicator and Rating

PART Efficiency Measure:

Percentage of assistance deliveries on time and in accordance with specification for the UN Relief and Works Agency for Palestine Refugees in the Near East (UNRWA).

Means/Actions to Achieve FY 2007 Target

• PRM will continue to fund UNRWA at a level consistent with beneficiary and organizational needs in collaboration with the international community to provide UNRWA with the resources it needs to effectively manages its operations.

• UNRWA will discontinue use of suppliers that fail to achieve targeted standards.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

80%

The average percentage DIFOTIS figure for December 2004 is 80% from a range of 55% to 97%. The lower figure represents deliveries to the West Bank, where a strike compounded difficulties in the movement of goods.

Basis of FY 2005 To-Date Performance Rating

Data will be available in FY 2006.

Explanation of Changed Targets

Since the formulation of this indicator, UNRWA has strengthened its methodology for calculating DIFOTIS using new computer software. This more rigorous methodology has reduced the 2003 baseline to 80% (from the original baseline of 84%). Targets for FY 2005-2008 have been revised in light of the adjusted baseline.

Verification

UNRWA compares the goods and the date they are received against the orders they are billed for. In addition to contributing to good resource management, this allows UNRWA to determine whether each shipment meets the agreed terms presented in the order. UNRWA provides PRM with regular annual reports (on a calendar year basis), including an aggregate measure of DIFOTIS. PRM staff regularly meet with UNRWA staff throughout the year to review their operations.

Validation

DIFOTIS (Delivery In Full On time In Specification) as a performance indicator is an “aggregate,” where the supplier passes only if the supplier fulfills all three measures of delivery: (a) in full, (b) on time, and (c) in accordance with specifications. Requiring all three of these criteria met is a necessary expectation because failing to meet any one of these in delivery jeopardizes the efficacy of any given intervention. Identifying suppliers that consistently fail to achieve success according to the targets established by this indicator allows UNRWA to systematically eliminate non-performers and improve service delivery. Suppliers, in turn, understand that they are being measured against a standard and will be held accountable if they consistently fail to achieve that standard. Institutional adoption of this indicator has allowed UNRWA to improve DIFOTIS from a level of 42% in CY 2001 to 80% in CY 2003.

Performance Indicator and Rating

PART Efficiency Measure: Other PRM programs.

Efficiency of managing NGO projects, measured by the average amount of time between receipt of project proposal and funding action.

Means/Actions to Achieve FY 2007 Target

• Continue to develop Abacus database system and increase its use by PRM staff.
• Identify and address Bureau business practices that delay funding actions.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

In FY 2004, the Bureau brought online the Abacus database capable of tracking a wide range of program information, including the time that it takes for a proposal to be reviewed, approved, processed, and funded. PRM staff in Washington and Geneva were trained to use Abacus and now use the system on a daily basis.

Basis of FY 2005 To-Date Performance Rating

To date, the average time between receipt of an NGO proposal and funding action is 52 working days.

Explanation of Changed Targets

This indicator is being used as a measure in the Other PRM Programs PART, and will therefore be discontinued under this Initiative/Program.

Verification

The Abacus database calculates the number of working days between receipt of NGO proposals and funding action, and computes the average for all proposals in a system-generated report. The target for FY 2005 is actually baseline information that is preliminary based on recent implementation of the Abacus system. Targets are subject to change based on refinement of this baseline.

Validation

From receipt of a grant proposal to funding of the proposal, the proposal must be reviewed and processed by the Bureau’s regional offices, the Policy and Resource Planning office, the Front Office, and the Comptroller. The time that it takes for a grant to be processed by all of these offices in turn reflects the administrative efficiency of these offices and the bureau as a whole. Reductions in the time that it takes to process a cooperative agreement should reflect efficiency gains in this administrative system and ultimately benefit refugee populations through quickened response. Significant gains are expected through the use of the new Abacus database.

Part Program:

UNHCR (PART)

The United Nations High Commissioner for Refugees is the UN agency mandated to provide international protection to refugees, and to seek permanent solutions to their plight. Today, the UNHCR is one of the world's principal humanitarian agencies, with responsibility to protect and assist over 17 million persons of concern, including nearly 10 million refugees. As mandated by Congress, UNHCR is the U.S. government's primary partner in refugee protection and assistance.

I. PART Scores/Ratings

II. PART Program Efficiency Measure

UNHCR Inventory Control: Value non-expendable items procured/total value of recorded non-expendable property procured.

III. Long-Term Strategies

• Provide the USG's “fair share” contribution to UNHCR appeals, while urging maximum program effectiveness for refugees and maximum efficiency on behalf of American taxpayers.

• Promote increased and equitable responsibility-sharing through government-to-government and public diplomacy.

• Encourage UNHCR to provide assessments of refugee needs, and provide complementary funding to NGOs in order to fill gaps in programming, where necessary.

• Through leadership in UNHCR's Executive Committee, annual Frameworks for Cooperation, and the provisions of additional targeted funds, ensure UNHCR's commitment to USG priorities, including protection (especially of women and children), durable solutions, needs-based budgeting, emergency response capacity, and security for humanitarian workers.

• By monitoring and providing program funds, ensure that UNHCR assistance meets internationally accepted standards (including those developed by the SPHERE project) for humanitarian relief in the sectors of shelter, site management, food and nutrition, public health, water and sanitation, education, psychosocial support, and the environment.

• At international meetings and in field operations, encourage cooperation and coordination among humanitarian agencies.

• Work with international organizations and other governments to create conditions that preclude forced displacement.

• Support international advocacy for the regular and consistent application of refugee and humanitarian laws and principles by states, including nonrefoulement, humanitarian and civilian character of refugee camps, humanitarian access to populations in need, and security for humanitarian workers.

• Encourage other humanitarian organizations, especially UNHCR partners, to promote protection in their work.

• Develop UNHCR's capacity to refer cases for resettlement to the United States.

IV. Lead & Partners

Lead: State/PRM

USG partners: State/International Organization Affairs (IO), State/Regional Bureaus, State/Legal (L), State/Coordinator for Reconstruction and Stabilization (S/CRS), State/Public Affairs (PA), State/International Information Programs (IIP), USAID, Department of Health and Human Services/Centers for Disease Control and Prevention (CDC), Department of Homeland Security (DHS), National Security Council (NSC), Office of Management and Budget (OMB).

Other partners: UN Office for the Coordination of Humanitarian Affairs (OCHA), World Food Program (WFP), United Nations Childrens Fund (UNICEF), other UN agencies, International Committee of the Red Cross (ICRC), International Organization for Migration (IOM), NGOs.

V. External Factors

• UNHCR is a multilateral organization; the USG (or any other donor) does not have sole control over the direction of UNHCR, nor can it guarantee that it will receive adequate resources to achieve program goals.

• Lack of humanitarian access to affected populations -- whether due to government policies, environmental conditions, conflict, or other security concerns -- may hinder UNHCR's efforts.

• The actions or policies of other sovereign governmental, quasi-governmental or non-governmental actors toward refugees and other persons of concern to UNHCR may increase the risk to these populations and undermine or oppose UNHCR's and/or the USG's objectives.

VI. Cross-Cutting Issues References

• AF (RS.02 Resolution of Regional Conflicts) - UNHCR (PART)
• EA (RS.02 Resolution of Regional Conflicts) - UNHCR (PART)
• EU (RS.02 Resolution of Regional Conflicts) - UNHCR (PART)
• IO (HT.02 Disaster prevention/response via capacity building) - UNHCR (PART)
• NE (RS.02 Resolution of Regional Conflicts) - UNHCR (PART)
• PA (PD.01 International Public Opinion) - UNHCR (PART)
• PRM (HT.01 Assistance for Refugees and Other Victims) - UNHCR (PART)
• SA (RS.02 Resolution of Regional Conflicts) - UNHCR (PART)

VII. Linkages to Other Strategic and Performance Goals

• Regional Stability - RS.02 Resolution of Regional Conflicts
• Public Diplomacy and Public Affairs - PD.01 International Public Opinion

PART Key/Annual Goal - A

Carry out needs assessments for increasingly smaller UNHCR country programs.

Part Measure/Performance Indicator and Rating

Number of countries with significant refugee populations for which UNHCR provides a comprehensive refugee needs assessment to donors.

Means/Actions to Achieve FY 2007 Target

• As the lead USG contributor to UNHCR, PRM is working with other donors to urge UNHCR and other UN agencies to base funding appeals on comprehensive refugee needs assessments in a two-tiered system that shows needs as well as expected resource availability.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

UNHCR has completed needs assessments for at least 7 countries as part of its annual budget planning, and provided them to donors (as Country Operations Plans). Examples include: Democratic Republic of the Congo, Burundi, Southern Sudan, Kenya, Liberia, Sierra Leone, South Africa.

Basis of FY 2005 To-Date Performance Rating

Needs assessments are ongoing in 2005.

Explanation of Changed Targets

This is a new PART measure consistent with the program’s long-term goals.

Verification

UNHCR’s Global Appeals and reporting, as well as monitoring by PRM/Washington, RMA/Geneva and regional Refugee Coordinators.

Validation

Needs assessments allow donors to prioritize humanitarian responses and hold the international community as a whole accountable when needs go unmet.

PART Key/Annual Goal - B

Show improved budget management over the previous year by reducing the number of negative audit findings, and increasing the percentage of negative findings for which adequate progress has been made to address the problem in the subsequent year.

Part Measure/Performance Indicator and Rating

The percentage of critical recommendations in an audit report for one year that are fully addressed by June of the year following issuance of the audit report.

• The U.S. and other members of UNHCR's Executive Committee urge UNHCR to move forward quickly to address problems identified by the UN Board of Auditors.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

41 recommendations; 51% addressed; 37% being addressed

Basis of FY 2005 To-Date Performance Rating

UN Board of Auditors' report for 2005 will be released in September.

Explanation of Changed Targets

Language has been modified to replace “negative findings” with “critical recommendations,” consistent with language used in the UN Board of Auditors' report. The timeline has also shifted from March to June to reflect the UN's audit reporting schedule.

Verification

UNHCR is subject to external oversight by the UN Board of Auditors, which conducts audits on an annual basis and reports to donors, including the U.S., on its findings and provides recommendations for improvement in the use and management of funds.

Validation

Addressing negative UN audit findings in a timely manner demonstrates UNHCR's commitment to financial accountability and transparency.

PART Key/Annual Goal - C

Creation of a separate UNHCR budget mechanism to provide funding for creation of additional posts with UNHCR in the “protection” area, and annual progress toward creation, funding, and mainstreaming of these positions.

Part Measure/Performance Indicator and Rating

Number of UNHCR protection posts worldwide.

Means/Actions to Achieve FY 2007 Target

• PRM works with UNHCR to identify appropriate new protection posts. PRM provides additional resources to UNHCR in a timely manner to undertake these activities. PRM works with UNHCR to mainstream these positions, and encourages other donors to support protection staffing.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

UNHCR has established a separate budget mechanism for additional protection staffing. PRM has provided funds in FY 2004 to support 27 additional UNHCR protection-related posts (protection and community service posts). UNHCR has solicited applications for 27 new positions.

Basis of FY 2005 To-Date Performance Rating

UNHCR has solicited applications for the 27 additional protection-related posts funded by PRM, and is in the process of filling these positions. At least 3 protection-related positions are expected to be incorporated into UNHCR's regular budget for 2006 (which is planned and submitted in late 2005).

Explanation of Changed Targets

Performance is contingent on funding availability. Differences in PRM and UNHCR's fiscal years may result in positions being staffed in the fiscal year following funding.

Verification

Personnel reports from UNHCR, other IOs, and NGOs that work in conjunction with UNHCR. Field verification visits of PRM program officers and field representatives.

Validation

A greater number of trained protection officers reduces the number of protection violations that occur against a given population. Creating additional protection posts reflects UNHCR's commitment to protecting refugees.

VIII. Association Between Long Term Goals and Key/Annual Goals

IX. PART Funding Sources

ERMA, IRRF, MRA

X. OMB Findings and Recommendations

Part Program:

Refugee Admissions to the U.S. (PART)

The goals of the Resettlement Program are to ensure that:

Eligible refugees in need of protection are offered the durable solution of resettlement to the United States or other resettlement countries;

The annual refugee admissions ceiling for the U.S. is based on a valid assessment of the number of refugees at risk overseas and U.S. capacity to respond;

The U.S. government uses as many of the slots allocated under the President’s annual ceiling as possible;

The Bureau provides support and influence so that UNHCR maintains a strong capacity to identify and refer refugees in need of resettlement;

Relevant U.S. government agencies make the most efficient use of available resources to maximize benefits to refugees;

Security, health, and anti-fraud measures are fully implemented in refugee processing;

Refugees approved by DHS and otherwise admissible are moved to the U.S. as quickly as possible;

Standardized essential services are provided by a nationwide network of sponsoring agencies to recently resettled refugees, so that they can begin the process of becoming self-sufficient, fully integrated members of U.S. society.

II. PART Program Efficiency Measure

Total Average Cost per Refugee Arrival in the U.S.

III. Long-Term Strategies

• Work with partner agencies to ensure that all have a common understanding of which refugees are in need of U.S. resettlement and are likely to qualify for it.

• Develop the capacity of UNHCR and NGOs to refer cases to the U.S. program.

• Deter fraudulent claims by working with UNHCR, non-governmental organizations (NGOs) and the Department of Homeland Security (DHS) to develop effective procedures for referring cases to the program.

• Monitor overseas refugee processing operations to ensure that all security, anti-fraud, and health screenings are accomplished in a timely manner.

• Monitor essential services (including acceptable housing, employment opportunities, health care and education for children) that are provided by sponsoring agencies during the period of refugees’ initial resettlement in the U.S.

IV. Lead & Partners

Lead: State/PRM.

International Organization partners funded by PRM: UN High Commissioner for Refugees (UNHCR), International Organization for Migration (IOM).

USG partners: State/Public Affairs, State/International Information Programs, Department of Homeland Security (DHS); Department of Health and Human Services (HHS)/Office of Refugee Resettlement (ORR); HHS/Centers for Disease Control and Prevention (CDC); Federal Bureau of Investigation (FBI), Central Intelligence Agency (CIA).

Non-Governmental Organization (NGO) and State partners funded by PRM: U.S. Conference of Catholic Bishops, Lutheran Immigrant and Refugee Services, International Rescue Committee, World Relief Corporation, Immigrant and Refugee Services of America, Hebrew Immigrant Aid Society, Church World Service, Domestic and Foreign Missionary Service of the Episcopal Church of the USA, Ethiopian Community Development Center, State of Iowa, and International Catholic Migration Commission.

V. External Factors

• Foreign governments may not permit processing of refugees in their territories.
• Insecurity in the field may prevent access to caseloads under consideration for admission to the U.S.
• Domestic security factors may impair the USG’s ability to resettle refugees in a timely fashion.
• DHS may not approve as many refugees for admission to the U.S. as State/PRM expects.

VI. Cross-Cutting Issues References

• CA (HS.01 Proper Visa Adjudication) - Visa and Consular Services
• IIP (PD.01 International Public Opinion) - Promote Understanding and Benefits of Policies for a More Prosperous World
• PA (PD.04 Domestic Understanding of Foreign Policy) - Outreach to Expanded U.S. Audience
• PRM (HT.01 Assistance for Refugees and Other Victims) - Protection and Durable Solutions (PART)

VII. Linkages to Other Strategic and Performance Goals

• Homeland Security - HS.01 Proper Visa Adjudication

PART Long-Term Goal - 1

Refugees admitted to the U.S. within established ceilings based on an assessment of the number of refugees at risk overseas and U.S. capacity to respond.

Part Measure/Performance Indicator and Rating

Number of refugees admitted to the U.S. as a percentage of the regional ceilings established by Presidential Determination.

Means/Actions to Achieve FY 2007 Target

• Work with partner agencies to identify and refer refugees in need of resettlement, and to ensure that all security, anti-fraud, and health screenings are accomplished in a timely manner.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

106%; 52,868 refugees were resettled in the U.S., surpassing the allocated ceiling of 50,000.

Basis of FY 2005 To-Date Performance Rating

108%; 52,813 refugees were resettled in the U.S. surpasing the allocated ceiling of 50,000.

Explanation of Changed Targets

The allocated ceiling for FY 2006 has yet to be determined by the President. Based on a significantly increased budget request for the admissions program in FY 2006, the President may set higher admissions targets for FY 2006 and FY 2007.

Verification

PRM’s Refugee Processing Center collects data on refugees admitted to the U.S. that is readily available to PRM staff.

Validation

This indicator measures the effectiveness of the refugee admissions program overall. To the extent that PRM has control of the process, it also measures PRM's performance in managing the program.

PART Long-Term Goal - 2

A nationwide network of service providers with the capacity to assist arriving refugees to begin the process of becoming self-sufficient, fully-integrated members of U.S. society.

Part Measure/Performance Indicator and Rating

Partner agencies ensure that all employable adults are employed by the 90th day in the U.S.

Means/Actions to Achieve FY 2007 Target

• Monitor essential services (especially education and employment opportunities) that are provided by sponsoring agencies during the period of refugees' initial resettlement in the U.S.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

Quantitative data will not be available until the third quarter of FY 2005.

Basis of FY 2005 To-Date Performance Rating

Reliable 90-day employment statistics will not be available until the third quarter of FY 2005.

Explanation of Changed Targets

Previous quantitative data was incomplete.

Verification

PRM collects this data using the Worldwide Refugee Admissions Processing System (WRAPS). U.S. media reporting and press queries to PRM can provide anecdotal evidence of program success or difficulties.

Validation

Through on-site monitoring and home visits, PRM evaluates if affiliates comply with standards of care to enable refugees to build new lives in the U.S. PRM considers 91% to be a maximum target -- 100% of refugees may not realistically be employed within 90 days of arrival in the U.S.

PART Key/Annual Goal - A

Strengthen domestic and overseas refugee processing operations to ensure that all security, anti-fraud, and health screenings are accomplished in an effective and timely manner.

Part Measure/Performance Indicator and Rating

Percentage of refugees moved to U.S. within 6 months of DHS approval.

Means/Actions to Achieve FY 2007 Target

• Monitor overseas refugee processing operations to ensure that all security, anti-fraud, and health screenings are accomplished in a timely manner

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

77.7% of refugees moved to the U.S. within 6 months of DHS approval. PRM is optimistic that the program will demonstrate further gains through the end of FY 2005. In addition, new security procedures, the mechanism for family reunion processing, and integration of medical screening and quality control and management were fully implemented.

Basis of FY 2005 To-Date Performance Rating

Insufficient time has elapsed to validate quantitatively, however processing operations are proceeding smoothly. Therefore PRM expects the 70% target will be met.

Explanation of Changed Targets

N/A

Verification

PRM collects this data using the Worldwide Refugee Admissions Processing System (WRAPS).

Validation

This indicator measures PRM’s effectiveness in managing more efficient processing of refugees once their DHS interviews are completed (out-processing).

PART Key/Annual Goal - B

Ensure that standardized essential services (including decent housing, employment opportunities, and education for children) are provided by sponsoring agencies during the period of refugees' initial resettlement in the U.S. (Measured by compliance rate).

Part Measure/Performance Indicator and Rating

Percentage of agency affiliates in the Reception and Placement (R&P) program found to be in compliance with established basic standards of care, which ensure that refugees’ basic necessities (housing, employment, health, child education) are met upon arrival and during an initial period in the U.S.

Means/Actions to Achieve FY 2007 Target

• Monitor essential services (including acceptable housing, employment opportunities, health care and education for children) that are provided by sponsoring agencies during the period of refugees’ initial resettlement in the U.S.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

87%; compliance rates are slightly below target. This is largely due to PRM emphasis on monitoring affiliates known to have performance problems during the year.

Basis of FY 2005 To-Date Performance Rating

79% to date. Compliance rates will likely fall short of target due to challenges of concentrated placement of Hmong refugees in 2005.

Explanation of Changed Targets

N/A

Verification

PRM refugee admissions officers perform on-site monitoring trips to 30-35 affiliates per year (each visit includes 3-4 home visits). There are approximately 387 affiliates in the U.S.

Validation

Through on-site monitoring and home visits, PRM evaluates if affiliates are in compliance with standards of care for all essential core services. These services ensure that refugees are able to begin to build new lives in the U.S.

PART Key/Annual Goal - C

Assist UNHCR to strengthen its capacity to identify appropriate durable solutions for refugees, including third-country resettlement.

Part Measure/Performance Indicator and Rating

Number of individual and group refugee referrals to the U.S. from UNHCR.

Means/Actions to Achieve FY 2007 Target

• Provide additional funding to develop the capacity of UNHCR and NGOs to refer cases to the U.S. program.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

The program received 17,095 referrals from UNHCR in FY 2004.

Basis of FY 2005 To-Date Performance Rating

As of 31 March 2005, the program has received 10,213 referrals from UNHCR.

Explanation of Changed Targets

N/A

Verification

PRM’s Refugee Processing Center collects data, readily available to PRM staff, on refugees referred to the U.S. program.

Validation

The number of referrals indicates PRM’s ability to coordinate with outside partners or to use in-house resources to identify refugee cases in need of resettlement. PRM does not have direct control of the outcome but plays an important role in coordinating with agencies making referrals.

VIII. Association Between Long Term Goals and Key/Annual Goals

IX. PART Funding Sources

MRA, ERMA

X. OMB Findings and Recommendations

Bureau Initiative/Program:

Partner Accountability

Develop more formalized agreements with our partners to ensure accountability and mutual progress toward achieving stated goals.

III. Long-Term Strategies

• Develop clear expectations and goals for each of our NGO and international organization partners (e.g., UNHCR Framework for Cooperation) and programs.
• Encourage transparent and responsible financial practices among our partners.
• Exert USG influence on key personnel staffing patterns and encourage appointments of U.S. citizens to relevant policy positions involving refugees and IDPs within the UN system.

IV. Lead & Partners

Lead: State/PRM.

International partners funded by PRM and for which PRM has primary management authority within the USG: UN High Commissioner for Refugees (UNHCR), International Committee of the Red Cross (ICRC), UN Relief and Works Agency for Palestine Refugees in the Near East (UNRWA), International Organization for Migration (IOM).

Non-Governmental Organization (NGO) partners funded by PRM: nearly 40 funded NGO partners, including International Rescue Committee (IRC), American Refugee Committee (ARC), Cooperative Housing Foundation (CHF), and International Medical Corps (IMC) (four NGOS that received the most PRM funding in FY 2004).

V. External Factors

• International organizations and NGOs are autonomous organizations with planning and management processes independent of PRM.
• External financial evaluations and audits occur at irregular intervals.
• Support of this initiative/ program is carried out largely through multilateral organizations; the USG (or any other donor) does not have sole control over the direction of these organizations, nor can it guarantee that they will receive adequate resources to achieve program goals.

Performance Indicator and Rating

Means/Actions to Achieve FY 2007 Target

• PRM provides funded organization with clear guidance and effective oversight as a pro-active means of avoiding “critical recommendations” and encouraging corrective action.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

95% of our partners have taken corrective action in response to any “critical recommendations” in financial audits conducted of their organizations.

Basis of FY 2005 To-Date Performance Rating

FY 2005 results are not yet available; Audits are due nine months after an organization's fiscal year end date.

Explanation of Changed Targets

Language has been modified to replace “negative findings” with “critical recommendations,” consistent with language used in auditors' reports.

Verification

Periodic external audits are conducted on all PRM's NGO and non-UN international partners (e.g., ICRC and IOM). Data on states, local governments, and non-profit organizations comes from OMB A-133 audits. UN organizations are audited by the UN Board of Auditors.

Validation

Financial transparency is essential to ensuring responsible programming and effective oversight.

Part Program:

Other PRM Programs (PART)

PRM programs seek to ensure access to effective protection and assistance for refugees, conflict victims, internally displaced persons (in certain cases), victims of human trafficking and other vulnerable migrants. This program includes support to the International Organization for Migration and other international organizations (excluding UNHCR, ICRC & UNRWA), as well as non-governmental organizations.

I. PART Scores/Ratings

II. PART Program Efficiency Measure

Average amount of time between receipt of project proposal or deadline of submission and funding action (working days).

III. Long-Term Strategies

• Through international and non-governmental organizations, provide funding for assistance to refugees and conflict victims that meets the internationally accepted SPHERE standards for humanitarian relief in the sectors of shelter, site management, food and nutrition, public health, water supply and sanitation, education, psychosocial support, and the environment.
• Fund programs that include measures to deter, detect, and address gender-based violence (GBV) and exploitation.
• Collaborate with other donors and humanitarian agencies to fill critical roles in programming, such as responsibilities for IDPs.
• Fund programs to protect and assist victims of trafficking, and support countries that demonstrate commitment to monitoring and combating trafficking in persons.
• Support IOM's efforts to promote sound migration policies and programs and to establish its Council sessions as a forum for the discussion of international migration policy.
• Develop clear expectations and goals for each of our NGO and international organization partners and programs.
• Encourage transparent and responsible financial practices among our partners.

IV. Lead & Partners

Lead: State/PRM.

International partners funded by PRM: International Organization for Migration (IOM), UN World Food Program (WFP), United Nations Children's Fund (UNICEF) and other relevant international organizations providing humanitarian assistance.

USG partners: State/International Organization Affairs (IO), State/Oceans, Environmental and Scientific Affairs (OES), State/Regional Bureaus, State/Coordinator for Reconstruction and Stabilization (S/CRS), State/Global AIDS Coordinator, State/Office to Monitor and Combat Trafficking in Persons (G/TIP), State/Public Affairs, State/International Information Programs, US Agency for International Development (USAID), Department of Agriculture, Department of Justice, Department of Labor, Department of Health and Human Services, Department of Defense, National Security Council (NSC), Office of Management and Budget (OMB).

Non-Governmental Organization (NGO) partners funded by PRM: nearly 40 funded NGO partners, including International Rescue Committee (IRC), American Refugee Committee (ARC), Cooperative Housing Foundation (CHF), and International Medical Corps (IMC) (four NGOs that received the most PRM funding in FY 2004).

• Cooperation or lack thereof by nations hosting refugees will affect the quality of assistance programs.

• Lack of humanitarian access to affected populations – whether due to government policies, environmental conditions, conflict, or other security concerns – may hinder assistance programs.

• The USG (or any other donor) does not have sole control over the direction of multilateral and nongovernmental organizations, nor can it guarantee that they will receive adequate resources to achieve program goals.

• Support for gender-based violence NGO programs is contingent on the availability of additional funds.

• Control of migration is a sovereign right; policies of other governments are not easily influenced; they are also highly susceptible to political posturing.

• Developing countries may not have sufficient capacities or resources to commit to effective migration systems.

• External financial evaluations and audits occur at irregular intervals.

VI. Cross-Cutting Issues References

• DRL (DE.02 Universal Human Rights Standards) - Apply human rights standards
• IO (DE.02 Universal Human Rights Standards) - International Organization Human Rights Programs And Activities
• NE (DE.02 Universal Human Rights Standards) - Trafficking in Persons
• PRM (HT.01 Assistance for Refugees and Other Victims) - Assistance
• TIP (DE.02 Universal Human Rights Standards) - Anti-Trafficking Program for Military and Civilian Personnel.

VII. Linkages to Other Strategic and Performance Goals

• Regional Stability - RS.02 Resolution of Regional Conflicts
• Social and Environment Issues - SE.04 Migration Policies and Systems
• Humanitarian Response - HT.02 Disaster prevention/response via capacity building
• Management and Organizational Excellence - MG.01 Human Resources and Training

PART Key/Annual Goal - A

Increase the percentage of PRM-funded NGO or other international organization assistance projects that include activities that focus on prevention of and response to gender-based violence (GBV).

Part Measure/Performance Indicator and Rating

Percentage of PRM-funded NGO or other international organization assistance projects that include activities that focus on prevention of and response to gender-based violence (GBV).

• PRM's FY 2007 budget request includes funds specifically for GBV programs by NGOs and other international organizations. The bureau also encourages NGOs and other international organizations to incorporate GBV prevention and response activities in multisectoral programs.

Other Performance Information

Verification

NGOs often have specialized capacities during complex humanitarian emergencies. Therefore, PRM relies on NGO partners to fill this important gap and ensure that essential GBV support is provided. Activities may include: awareness-raising, psychosocial, medical, and legal activities.

Validation

Available evidence suggests that the stress and disruption of daily life during complex humanitarian emergencies may lead to a rise in GBV, particularly sexual violence.

PART Key/Annual Goal - B

Foreign governments with PRM-funded anti-trafficking projects (1) Make new budget allocations or continuing budget allocations directed toward anti-trafficking activities; and/or (2) Develop new legislation to combat trafficking; and/or (3) Provide in-kind support or facilitate program activities.

Part Measure/Performance Indicator and Rating

Foreign governments with PRM-funded anti-trafficking projects (1) Make new budget allocations or continuing budget allocations directed toward anti-trafficking activities; and/or (2) Develop new legislation to combat trafficking; and/or (3) Provide in-kind support or facilitate program activities.

• Provide funding for anti-trafficking programs in countries whose governments are committed to combating TIP.
• Through public and international diplomacy encourage other countries to participate in efforts to combat TIP.
• Maximize coordination with G/TIP and other USG agencies.

Other Performance Information

Verification

The yearly Trafficking in Persons Report, as well as other information provided by G/TIP, and reports from IOM on each project, are used to evaluate whether countries with PRM-funded anti-trafficking projects have increased their activities to combat trafficking or raised their tier status.

Validation

The decision to increase efforts to combat TIP rests solely with the host government; PRM’s decision to fund a project in such country may not always produce the desired result in a limited time. For this reason, we do not believe it is realistic to expect to see more than an 80% success rate.

PART Key/Annual Goal - C

Increase the percentage of funding to NGO and other international organization programs that are monitored and evaluated (M&E) by program officers and refugee coordinators through formal reporting channels.

Part Measure/Performance Indicator and Rating

Percentage of funding to NGO and other international organization programs that are monitored and evaluated (M&E) by program officers and refugee coordinators through formal reporting channels.

This measure does not include UNHCR, ICRC and UNRWA, but focuses on other IOs.

Means/Actions to Achieve FY 2007 Target

• Devote adequate administrative resources to support the staff and travel needs for robust monitoring and evaluation.
• Ensure that PRM monitoring and evaluation strategies focus on NGO and other international organization programs that receive significant funds.

Other Performance Information

Verification

Reporting occurs through PRM Comptroller’s M&E cables and other PRM M&E procedures. PRM's capacity for M&E is dependent on its administrative resources. PRM seeks to increase resources devoted to M&E, and to target M&E activities at those NGOs and other IOs that receive the largest share of funds.

Validation

Information gathered and analyzed by officers through M&E reporting mechanisms is vital for both program accountability and assessing the capacity of our partners. M&E is also important for problem-solving and troubleshooting in order to meet the most urgent needs of the beneficiaries we serve.

PART Key/Annual Goal - D

Increase the percentage of NGOs and other international organizations that take corrective action within a year of receiving critical recommendations in financial audits.

Part Measure/Performance Indicator and Rating

Percentage of NGOs and other international organizations that take corrective action within a year of receiving critical recommendations in financial audits.

Means/Actions to Achieve FY 2007 Target

PRM provides funded organization with clear guidance and effective oversight as a pro-active means of avoiding “critical recommendations” and encouraging corrective action.

Other Performance Information

Verification

Periodic external audits are conducted on all PRM's NGO and non-UN international partners (e.g., IOM). Data on states, local governments, and non-profit organizations comes from OMB A-133 audits. UN organizations are audited by the UN Board of Auditors.

Validation

Financial transparency is essential to ensuring responsible programming, accounting, and stewardship of funds.

VIII. Association Between Long Term Goals and Key/Annual Goals

IX. PART Funding Sources

X. OMB Findings and Recommendations

OMB Finding/Recommendation/Status/ Department Actions

Part Program:

Humanitarian Migrants to Israel (PART)

This program began in 1973 to address the situation of Jews in the former Soviet Union, Eastern Europe, Africa and the Near East and other countries where Jews are in distress. The U.S. funds portions of five programs as part of the overall work of the United Israel Appeal, the only U.S. organization with a resettlement program in Israel. The program resettles humanitarian migrants to Israel, providing them with knowledge and skills to help them integrate and achieve self-sufficiency.

I. PART Scores/Ratings

II. PART Program Efficiency Measure

Reduction in time migrants from the former Soviet Union stay at absorption centers, thereby reducing cost.

III. Long-Term Strategies

• Provide funding to the United Israel Appeal so that adequate integration programs and assistance are available to humanitarian migrants to Israel.

IV. Lead & Partners

Lead: State/PRM

Partner: United Israel Appeal, Jewish Agency for Israel (JAFI).

V. External Factors

• The program being evaluated is unique as the U.S. grant is a piece of a larger resettlement initiative and is not a program fully financed and controlled by the USG.
• Funds for the U.S. grant are earmarked by Congress.

PART Long-Term Goal - 1

Humanitarian migrants become self-sufficient members of Israeli society within the two years of grant support.

Part Measure/Performance Indicator and Rating

The percentage of Ethiopian humanitarian migrant households that leave absorption centers within a period of 24 months, where Ethiopian humanitarian migrants represent the most vulnerable sub-group under the program.

• PRM staff monitor program outputs and respond according to perceived program needs. PRM continues to help UIA reform its data collection and reporting to ensure that beneficiary needs are properly assessed and met.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

74% of Ethiopian migrant households achieved self-sufficiency in FY04. Adjusted baseline from 2003 was 76%.

Basis of FY 2005 To-Date Performance Rating

Data is based on twice-yearly reports from the United Israel Appeal (UIA). UIA report is pending.

Explanation of Changed Targets

Original baseline data was inaccurate due to inaccurate information from implementing agency.

Verification

Data based on twice-yearly reports from the UIA. Grant-specific site visits are conducted at least once a year by PRM/Washington staff. PRM’s refugee coordinator in Amman also conducts site visits.

Validation

Humanitarian migrants leave absorption centers when able to secure permanent housing. Leaving absorption centers reflects their ability to make this critical step towards self-sufficiency and the ability to secure and service low-interest government loans or otherwise provide housing for themselves

PART Key/Annual Goal - A

Enable Hebrew language participants to advance a full learning level.

Part Measure/Performance Indicator and Rating

Humanitarian migrants are provided with effective Hebrew language training.

Means/Actions to Achieve FY 2007 Target

• PRM staff monitor program outputs and respond according to perceived program needs. PRM continues to help UIA reform its data collection and reporting to ensure that beneficiary needs are properly assessed and met.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

93% of language trainees from the Newly Independent States successfully advanced a full grade level within the specified period (five months). Data based on twice-yearly reports from the United Israel Appeal.

The measurement for trainees from Ethiopia will be available later in FY 2005.

Basis of FY 2005 To-Date Performance Rating

Rating applies to the 90% of language trainees from Newly Independent States advancing to a full grade level within the specified period (five months). A new measurement tool is being developed for the Ethiopian language trainees, with a new baseline and targets to be set by end of FY 2005.

Explanation of Changed Targets

N/A

Verification

Data based on twice-yearly reports from the United Israel Appeal. Grant-specific site visits are conducted at least once a year by PRM/Washington staff. PRM’s refugee coordinator in Amman also conducts site visits.

Validation

Hebrew language training contributes to the program’s long-term goal of enabling humanitarian migrants to become self-sufficient members of Israeli society.

PART Key/Annual Goal - B

High school students under the program earn a matriculation certificate upon completion of the program.

Part Measure/Performance Indicator and Rating

Unaccompanied minors participating in the program are expected to matriculate from high school. The Ministry of Education and the Ministry of Immigration and Absorption have collaborated with UIA and JAFI on setting a target of 80%.

Means/Actions to Achieve FY 2007 Target

• PRM will fund the program at the appropriate level to ensure that the teaching and learning resources are available to the grantee. PRM staff will regularly review program progress and respond as necessary.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

80% of unaccompanied minors matriculated from high school in FY 2004.

Basis of FY 2005 To-Date Performance Rating

Quantitative data is unavailable to date. UIA report is pending.

Explanation of Changed Targets

N/A

Verification

UIAbi-annual reports. PRM staff field visits. 80% is considered to be a maximum target for this measure.

Validation

Education is the basis for employment, assimilation and civic participation in Israel.

PART Key/Annual Goal - C

Humanitarian migrants learn vocational skills that aid their employment in Israel.

Part Measure/Performance Indicator and Rating

Humanitarian migrants to Israel are provided with effective vocational training.

• PRM staff monitor program outputs and respond according to perceived program needs. PRM continues to help UIA reform its data collection and reporting to ensure that beneficiary needs are properly assessed and met.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

96% of trainees successfully completed Kedma pre-vocational training program.

Basis of FY 2005 To-Date Performance Rating

Quantitative data unavailable to date. UIA report is pending.

Explanation of Changed Targets

N/A

Verification

Data based on twice-yearly reports from the United Israel Appeal. Grant-specific site visits are conducted once a year by PRM/Washington staff. PRM’s refugee coordinator in Amman also conducts site visits.

Validation

Vocational training contributes to the program’s long-term goal of enabling humanitarian migrants to become self-sufficient members of Israeli society. Completion of pre-vocational training enables participants to access vocational training supplied by Israel's Ministry of Labor.

PART Key/Annual Goal - D

Humanitarian migrants receive mandatory services and are satisfied with these services.

Part Measure/Performance Indicator and Rating

Availability and quality of mandatory services to eligible humanitarian migrants. Mandatory services are defined as care and processing en route, transport to Israel, and transitional housing.

Means/Actions to Achieve FY 2007 Target

• PRM staff monitor program outputs and respond according to perceived program needs. PRM continues to help UIA reform its data collection and reporting to ensure that beneficiary needs are properly assessed and met.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

Data is based on twice-yearly reports from the UIA.

Basis of FY 2005 To-Date Performance Rating

Data based on twice-yearly reports for the UIA. UIA report is pending, expected June 2005.

Explanation of Changed Targets

N/A

Verification

Data based on twice-yearly reports from the United Israel Appeal. Grant-specific site visits are conducted at least once a year by PRM/Washington staff. PRM’s refugee coordinator in Amman also conducts site visits. The UIA conducts annual surveys of recent arrivals to measure satisfaction.

Validation

Receiving mandatory assistance will enable humanitarian migrants to Israel to achieve the program’s long-term goal of enabling them to become self-sufficient members of Israeli society.

VIII. Association Between Long Term Goals and Key/Annual Goals

IX. PART Funding Sources

MRA

X. OMB Findings and Recommendations

FY 2007 Bureau Performance Plan

Goal Paper

STRATEGIC GOAL SE - Social and Environment Issues

PERFORMANCE GOAL SE.04 Migration Policies and Systems

Bureau Initiative/Program:

Effective and Humane Migration Policies and Systems

Promote orderly and humane migration policies on the regional and inter-regional level.

III. Long-Term Strategies

• Support IOM's efforts to promote sound migration policies and programs and to establish its Council sessions as a forum for the discussion of international migration policy.
• Support regional migration dialogues leading to specific outcomes.
• Build capacity in developing nations to manage migration effectively and humanely.
• Develop effective protection regimes for vulnerable migrants.
• Establish measures of effectiveness for programs to combat trafficking in persons and assist vulnerable migrants, especially trafficking victims.
• Promote U.S. migration policies consistent with our international obligations and commitments.
• Inform U.S. and foreign audiences about U.S. migration policy goals.

Lead: State/PRM.

International Organization partners funded by PRM: International Organization for Migration (IOM), UN High Commissioner for Refugees (UNHCR).

USG partners: State/Office to Monitor and Combat Trafficking in Persons (G/TIP), Department of Homeland Security (DHS); Department of Justice, Department of Labor, USAID, Department of Health and Human Services (HHS), National Security Council (NSC).

• Control of migration is a sovereign right; policies of other governments are not easily influenced; they are also highly susceptible to political posturing.
• Roots causes of migration -- e.g., poverty, oppressive government, natural disaster, and war -- are not easily remedied.
• Migrant sending countries often have different interests on migration issues than migrant receiving countries.
• Developing countries may not have sufficient capacities or resources to commit to effective migration systems.

Performance Indicator and Rating

Percentage of Initiatives Agreed Upon at Regional Migration Dialogues That Are Implemented

Means/Actions to Achieve FY 2007 Target

• Participate in and provide funding for migration dialogues to ensure that the initiatives agreed to are feasible and implemented in a timely manner.
• Support implementation of initiatives through funding and diplomacy, including public diplomacy.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

Over 90% of the activities agreed upon by members of the Intergovernmental Consultations on Asylum, Refugee and Migration Policies in Europe, North America and Australia (IGC) have been implemented. Over 75% of the activities agreed by Regional Conference on Migration in North and Central America (RCM) member states have been implemented. Shorter-term activities were conducted in a reasonable timeframe, while implementation of longer-term initiatives is underway. While the activities of more nascent regional dialogues are difficult to quantify, considerable progress is being made in establishing these fora and developing specific goals and activities of the groups.

Basis of FY 2005 To-Date Performance Rating

Approximately 80% (17 of 21) activities agreed to by Regional Conference on Migration in North and Central America (RCM) member states have been implemented or are in the process of implementation in FY05. Nearly 100% of the activities agreed upon by members of the Intergovernmental Consultations on Asylum, Refugee and Migration Policies in Europe, North America and Australia (IGC) have been implemented or are in the process of implementation.

Explanation of Changed Targets

N/A

Verification

The Bureau participates in migration dialogues, and tracks the implementation of follow-on activities.

Validation

Tracking the number of activities implemented under the auspices of migration dialogues is a good indicator because it is the most quantifiable measure of governments’ political and financial commitment to the success of these dialogues. The Department’s Bureau of Population, Refugees, and Migration is the only U.S. government entity to track the activities implemented under the migration dialogues. The U.S. participates in and supports various active regional dialogues on migration including the RCM; the South American Conference on Migration (SACM) the Summit of the Americas (SOA); the Migration Dialogue for Southern Africa (MIDSA); the nascent West Africa Regional Consultative Process (WARCP); the IGC; and discussions with the EU under the auspices of the New Transatlantic Agenda (NTA).

Performance Indicator and Rating

Foreign governments with PRM-funded anti-trafficking projects (1) Make new budget allocations or continuing budget allocations directed toward anti-trafficking activities; and/or (2) Develop new legislation to combat trafficking; and/or (3) Provide in-kind support or facilitate program activities.

• Provide funding for anti-trafficking programs in countries whose governments are committed to combating trafficking in persons.
• Through international and public diplomacy (in regional dialogues, international organizations, bilateral discussions and other fora), encourage foreign governments and publics, as well as other international donors, to actively participate in efforts to combat trafficking in persons. Leverage current funding to achieve greater resource allocation on the part of these countries to combat trafficking in persons.
• Maximize impact of Bureau-supported anti-trafficking programs by coordinating with G/TIP to ensure PRM-funded activities complement efforts of other USG agencies.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

90% of foreign governments with PRM-funded projects have increased their activities to combat trafficking in persons.

Basis of FY 2005 To-Date Performance Rating

Activities to combat trafficking in persons are ongoing in FY 2005.

Explanation of Changed Targets

N/A

Verification

The yearly Trafficking in Persons Report, mandated by Congress and compiled by the State Department, as well as other information provided by the Office to Monitor and Combat Trafficking in Persons (G/TIP), and reports from IOM on each project, will be used to evaluate whether countries with PRM-funded anti-trafficking projects have increased their activities to combat trafficking or raised their tier status. Examples of increased activities might include: the adoption of anti-trafficking laws; the development of preventive programs; in-kind contributions, and the provision of victims’ assistance, including shelters, facilitating returns, and integration or reintegration.

Validation

Concrete actions taken by governments to combat trafficking in persons are good indicators of the effectiveness of PRM-funded projects to improve the capacity of these governments to address this problem. However, it is important to recognize that the decision to increase efforts to combat trafficking in persons rests solely with the host government; PRM’s decision to fund a project in such country may not always produce the desired result in a limited time. For this reason, we do not believe it would be realistic to expect to see more than an 80% success rate on an annual basis.

STRATEGIC GOAL SE - Social and Environment Issues

PERFORMANCE GOAL SE.01 Global Health

Population Policy

Advance USG interests in bilateral and multilateral fora dealing with population and development issues.

III. Long-Term Strategies

• Participate in regular meetings with key USG agencies (e.g., USAID, HHS, Census), multilateral organizations, and key stakeholders (e.g., NGOs) to identify and implement strategies to promote progress towards the many international goals for 2015 adopted at the International Conference on Population and Development (ICPD) that are in agreement with U.S. policy.
• Work with UNFPA to reform and cease its involvement with family planning programs that employ coercive measures so that future U.S. funding of UNFPA is legally permitted.
• Conduct USG bilateral dialogues and negotiate international agreements in support of U.S. population policies.
• Continue frequent discourse with the Congress concerning implementation of U.S. population programs within provisions of U.S. law.
• Promote the integration of population issues into broader human rights, economic growth and sustainable development strategies.
• Lead efforts to enhance understanding of, and support for, population and development issues, including with the public.
• Work to eliminate all forms of coercion from family planning and reproductive health programs, and promote age-appropriate and culturally sensitive reproductive health education.

IV. Lead & Partners

Lead: State/PRM, State/IO.

Partners: USAID, Department of Health and Human Services, U.S. Census Bureau, Domestic Policy Council, National Security Council (NSC), United Nations, NGOs (including both USAID cooperating agencies (CAs) and advocacy groups).

• Sovereign governments may choose not to agree or comply with ICPD goals.
• The United Nations Population Fund may provide funds to an organization or program that supports or participates in the management of a program of coercive abortion or involuntary sterilization.
• Bilateral funding for U.S. population activities is managed by USAID, not the Department of State.

Performance Indicator and Rating

Means/Actions to Achieve FY 2007 Target

• Continue dialogue with UNFPA and other parties in regular meetings to determine appropriate elements of a framework agreement.
• Negotiate framework agreement with UNFPA, if funding is permissible under U.S. law.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

UNFPA reforms methods of monitoring and evaluating three programs. Implementation of UNFPA’s new monitoring and evaluation system, TAP, began in October 2003. Assessment of this method is ongoing.

Basis of FY 2005 To-Date Performance Rating

UNFPA is incorporating the Technical Advisory Programme (TAP) into program evaluation to increase program operations and effectiveness.

Explanation of Changed Targets

N/A

Verification

Data Source: UNFPA documentation.

Validation

The Department's collaboration with UNFPA focuses on promoting human rights in reproductive health care, especially voluntariness, and strengthening the performance of that agency. Ensuring financial transparency, operational accountability and management reform are important first steps for institutional reform and establishing a foundation for promoting efficiency gains.

Goal Paper

STRATEGIC GOAL MG - Management and Organizational Excellence

PERFORMANCE GOAL MG.01 Human Resources and Training

Bureau Initiative/Program:

Development of a capable and flexible work force to achieve Bureau objectives

Ensure PRM has the right people in the right places to achieve the Bureau's overall strategic goals while supporting career advancement for PRM employees through appropriate staffing, training opportunities, and mentoring/leadership activities.

• Strategic Alignment: Support FS recruitment for PRM as well as onward assignments for PRM FS officers. Promote full utilization of current, and possible expansion of Foreign Service officer positions in the bureau. Seek to address staffing alignment factors affected by the ebb/flow of bureau planning and response to humanitarian crises including development of an emergency response capability. Develop CS staff to ensure that the Bureau has the right people in the right places to respond to CS retirements and other attrition factors.
• Talent: Recruit, train, and support qualified and versatile employees and provide them with the training and skills required to meet management and program needs. Promote use of individual development plans to develop Bureau staff and identify professional growth opportunities. Identify management and leadership opportunities with an aim to further develop and enhance mid and senior-level Bureau officers. Develop staff capabilities in the area of analytical thinking regarding humanitarian response and after action assessment.
• Training: In collaboration with NFATC, continue to offer annual four-day PRM orientation to introduce the Bureau's mission and operating procedures to new staff and partners. Require new PRM staff to attend. Advertise FSI courses and encourage staff to take appropriate courses for their roles, as well as mandatory training programs specifically related to leadership, security, and IT. PRM trainers, assisted by NFATC and outside presenters, provide Monitoring and Evaluation (M&E) training; PRM staff with policy, program and financial responsibilities is required to attend the five-day M&E Workshop.

Lead: PRM

Partners: The Bureau of Human Resources directs recruitment programs from which PRM draws candidates for civil and foreign service positions. The NFATC provides most training resources in collaboration with PRM; PRM advises on choice of outside presenters for their expertise; various offices within the Bureau of Human Resources and the Office of Personnel Management (OPM) provide training assistance.

V. External Factors

• Government-wide or department restrictions on hiring could affect recruiting and training for vacant positions.
• The deficit in mid-level Foreign Service officers should be diminished as the impact of the Diplomatic Readiness Initiative is realized.
• Insufficient funding for salaries and benefits would have a negative impact on maintaining a qualified and trained staff capable of meeting the Bureau's goals.
• Refugee and conflict victim caseloads could go up or down, making it difficult to provide adequate or timely training for all personnel.

Performance Indicator and Rating

• Facilitate enrollment into identified training programs (including those offered by USAID/DCHA/OFDA) to increase emergency response capacity for appropriate PRM staff. Offer limited number of internally organized in-service training sessions open to interested Bureau staff on emergency response topics. Coordinate efforts with S/CRS to ensure enough staff are developing appropriate skill-sets.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

Initial assessment completed: Emergency Response (ER) policy established; ER team met regularly; watch list mechanism revised; ER training needs identified; commitment to support enhanced ER capacity among key partners; Iraq (2002-2003) after-action assessment completed; ER field capability refined.

Basis of FY 2005 To-Date Performance Rating

Participation in WEM (1 staff); OFDA trainings (4 staff); 5 expanded M&E sessions [average 16+ staff per session] (i.e., Basics of Nutrition, Food Security Assessment: Concepts, Operations, Obstacles, Response; Refugee Protection; Law and Politics of Responding to Genocide).

Explanation of Changed Targets

By 2008, PRM expects to have a solid trained core cadre of personnel to respond to humanitarian emergencies. Beyond FY 2008, PRM will continue to identify and train newly assigned staff each year, but will revise/replace this measure to address other training needs.

Verification

Tracking of human resource recommendations implemented.

Tracking of participation of Bureau Emergency Action/Response Planning Team (PRP and ER team) in appropriate staff development activities.

Validation

PRM will improve capabilities to manage emergency preparedness and response efforts by developing and enhancing staff skills and abilities.

Performance Indicator and Rating

Training: Participation of PRM staff in the setting of development plans, bureau organized training courses, Department-wide mandatory training requirements.

• Support creation of development plans at bureau staff office level by providing information and materials, as well as coordinating with HR/CSP/CD to conduct training on the generation and completion of development plans.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

100% of required staff attended Orientation and M&E courses. 100% of targeted supervisory staff were provided materials for self-study and/or attended HR/CD workshops

Basis of FY 2005 To-Date Performance Rating

To date: Less than 50% staff trained; less than 25% have development plans. There are plans to schedule additional training session in 3rd and 4th quarter by individual offices and bureau wide session.

Explanation of Changed Targets

N/A

Verification

PRM tracks staff participation in training through its bureau training records.

Validation

A well-trained and goal-oriented staff is bett

Performance Indicator and Rating

Means/Actions to Achieve FY 2007 Target

• Provide Abacus user-specific training for all new program managers and officers.
• Regular reviews of Abacus use by office directors and other managers to identify areas for improving data availability and use.

Other Performance Information

Actual Results for FY 2004 and Basis for Performance Rating

USAID/OFDA ABACUS system specific to PRM's needs became operational. All program managers and officers were trained in its use.

Basis of FY 2005 To-Date Performance Rating

To date: Database is operational. First phase of training of bureau staff completed: Focus of training effort was domestic staff in place as of Aug/Sept 04; new (including TDY) staff being trained within the first 30 days on the job; focus shifting to overseas (Refcoord) staff -- have trained Geneva Staff and staff in Washington for consultation; outreach either by a distance learning approach and/or tutorial conducted by Washington based staff on TDY to Refcoord post.

Explanation of Changed Targets

Discontinue indicator in FY08. Database will be fully operational; any further customization and improvements will be complete by 2007. Use of and training for use of application will have become part of PRM's normal business process.

Verification

Database records.

Validation

Increased access to data and the ability to aggregate it according to reporting needs significantly enhances the bureau’s ability to review its current activities, align strategic objectives and programming, and enhance planning capacity. Implementation of such a database was recommended by the Office of the Inspector General's last review of PRM.

er able to meet both Bureau-wide and Department-wide strategic goals.

Performance Ratings

Resources by Account/Country

($ in Thousands)

Resources by Goal

($ in Thousands)

Position Summary