Annual ORR Reports to Congress - 1999
(3) Voluntary Agency Match Grant Program
FY 1999 marked the 20th anniversary of the Match Grant program. In those twenty years, more than two million refugees have come to this country and 430,249, or 20 percent of all refugees, were served through the Match Grant program.
The Match Grant program, funded by Congress since 1979, provides an alternative approach to State-administered resettlement assistance. The program's goal is to help refugees attain self-sufficiency within four months after arrival, without access to public cash assistance. Participating agencies agree to match the ORR grant with cash and in-kind contributions; twenty percent of their match must be in cash.
Since mid-1996, ORR has matched each dollar of agency contribution of cash or in-kind services with $1.40 of ORR funds, with a maximum Federal contribution of $1,400 per refugee.
In 1999, ORR announced significant changes in the Match Grant program. Beginning with the second trimester, ORR raised the Federal contribution to $2 per $1 of agency cash and in-kind services with the maximum Federal contribution of $2,000 per refugee. Furthermore, ORR directed Voluntary Agencies (VOLAGS) to raise the in-hand weekly cash allowance to adult refugees from the existing $20 to $50 or the maximum amount that would not disqualify a refugee from Medicaid benefits.
While ORR was preparing the supplemental awards, the crisis in the Balkans led to an unanticipated increase in arrival of refugees from Kosovo. In response, ORR issued an addendum to the Match Grant program to enable agencies to serve Kosovar refugees in the Match Grant program. These changes resulted in ORR increasing overall funding for the Match Grant program to an annual budget of $49 million. This amount was offset by slightly more than $6 million of unexpended funds resulting from the dramatic decline in arrivals from the Former Soviet Union anticipated by Hebrew Immigrant Aid Society (HIAS).
The Match Grant program is characterized by a strong emphasis on early employment and intensive services during the first four months after arrival. ORR requires participating agencies to provide maintenance (food and housing), case management, and employment services in-house. Additional services, such as language training and medical assistance, may be provided in-house or arranged through referral to other programs. Refugees in the Match Grant program may use publicly funded medical assistance.
Refugees from the Soviet Union and its successor republics had been the primary beneficiaries of the program since its commencement in 1979. With the decline in arrivals from the former Soviet Union, the Match Grant Program has served an increasingly diverse population. In 1999, participants were from the former Soviet Union, Kosovo, Southeast Asia, Bosnia, Ethiopia, Somalia, Iraq, and a host of other countries. Nine voluntary agencies operated programs in 202 locations last year and provided resettlement services to 31 percent of all refugee arrivals.
Except for HIAS, which places almost all eligible refugees into the program, grantees generally use the following criteria to select refugees for program participation: family size, resettlement site, motivation for employment, and willingness to participate in the program. HIAS' dramatic decline in arrivals resulted in a significant carry forward of funds for the second straight year.
As with the Wilson/Fish and State-administered programs, Match Grant voluntary agencies work with ORR staff to establish goal plans to measure continuous improvement in client outcomes. Because the program emphasizes family self-sufficiency (independence from cash assistance), goal plans measure the proportion of cases that are self-sufficient at four months after arrival in the U.S. and self-sufficiency retention two months later. Goal plans establish self-sufficiency and retention goals for individual participants as well as cases. Other goals for individuals are established for job placements, wages, and the availability of health benefits.
Church
World Service (CWS) was awarded $1,627,000 to enroll 850
refugees in 15 sites including 145 Kosovars. Syracuse, NY joined the
program in January. CWS actually enrolled 933 refugees, and 88 percent
of the families became self-sufficient in 1999. The primary groups
were Kosovars, Bosnians, and Cubans. The largest sites were in Richmond,
Virginia; Greensboro, North Carolina; and Houston, Texas.
CWS |
Cases |
Individuals |
||
---|---|---|---|---|
Self-sufficient (120 days)1 |
271 |
82 % |
746 |
81 % |
Self-sufficient (180 days) |
213 |
100% |
564 |
100% |
Entered Employment |
|
|
396 |
80% |
Average Hourly Wage |
|
|
$7.34292
|
77 % |
Health Benefits 2 |
|
|
|
|
Episcopal Migration Ministries (EMM) received $1,115,800 to serve 797 refugees in the Match Grant program. EMM enrolled 721 refugees at 15 sites and 684 refugees became self-sufficient during 1998. The largest ethnic groups served were Bosnian, Iraqi Kurd, and Somali.
EMM
|
Cases | Individuals | |||||
---|---|---|---|---|---|---|---|
Self-sufficient (120 days) |
225 |
96 % |
684 |
95 % |
|||
Self-sufficient (180 days) |
212 |
98 % |
616 |
99 % |
|||
Entered Employment |
|
|
379 |
96 % |
|||
Average Hourly Wage |
|
|
$6.75
|
80 % |
|||
Health Benefits |
|
|
379
|
|
Ethiopian Community Development Center (ECDC) received $877,400 in 1999 including $300,000 to serve 150 Kosovar refugees and a total of 445 Match Grant clients. ECDC ultimately expended $703,400 on 358 Match Grant clients, including 150 Kosovars. Their network comprised four sites in 1999: Houston, Texas; Chicago, Illinois; San Diego, California; and Washington, D.C. The major ethnic groups served were from the Eastern Europe and Africa. ECDC had a notable increase in average hourly wage to $7.35/hr.
ECDC
|
Cases | Individuals | |||||
---|---|---|---|---|---|---|---|
Self-sufficient (120 days) |
147 |
84 % |
354 |
88 % |
|||
Self-sufficient (180 days) |
123 |
89 % |
301 |
90 % |
|||
Entered Employment |
|
|
193 |
93 % |
|||
Average Hourly Wage |
|
|
$7.35
|
|
|||
Health Benefits |
|
|
161
|
87 % |
Hebrew Immigrant Aid Society (HIAS)
was awarded $11,369,800 in FY 1999 funds, but only expended $8.8 million
as the number of refugees from the former Soviet Union dropped by
more than 2,500. This included $800,000 awarded as an addendum to
the initial award to serve 400 Kosovo refugees. They served 4,846
newly arriving refugees in the Match Grant, the vast majority from
the successor republics of the former Soviet Union. This included
108 refugees from Kosovo; a smaller number of arrivals than originally
anticipated due to the conclusion of the war. Of those refugees who
completed six months in the U.S., 1,401 were completely self-sufficient.
Self-sufficiency for the Kosovar population was higher than the overall
population as 46.6 percent of the cases were self-sufficient within
120 days with job placements averaging $9.41/hr. Sixty-eight communities,
a decline of six, participated in the program during 1999. The six
largest were New York City, San Francisco, Chicago, Los Angeles, Philadelphia,
and Boston.
HIAS
|
Cases | Individuals | |||||
---|---|---|---|---|---|---|---|
Self-sufficient (120 days) |
728 |
33.4% |
1,689 |
32.5% |
|||
Self-sufficient (180 days) |
615 |
90 % |
1,401 |
88.0% |
|||
Entered Employment |
|
|
1,015 |
30.3% |
|||
Average Hourly Wage |
$8.74
|
||||||
Health Benefits |
478
|
68.5% |
HIAS is unique in the Match Grant program in that it places virtually its entire eligible refugee population in the Match Grant program, thereby extending services to many refugees who find it difficult to obtain employment within the four-month time frame.
Immigration and Refugee Services of America (IRSA) was awarded $3,392,400 to resettle 1,800 refugees at ten sites in 1999. This included funding for 200 Kosovars. IRSA enrolled 1,800; 1,574 completed the 120 days of services. Of these, 1,433 were self-sufficient. Bosnian, Kosovar, Vietnamese, Somali, and Iraqi refugees were the largest client groups; the largest of their ten sites were Kansas City and St. Louis, Missouri; Houston, Texas; and Erie, Pennsylvania.
IRSA
|
Cases | Individuals | |||||
---|---|---|---|---|---|---|---|
Self-sufficient (120 days) |
612 |
91% |
1,433 |
91% |
|||
Self-sufficient (180 days) |
489 |
98 % |
1,242 |
99% |
|||
Entered Employment |
|
|
875 |
92% |
|||
Average Hourly Wage |
|
$6.80
|
|
||||
Health Benefits |
|
683
|
81% |
International Rescue Committee (IRC) received an initial grant award of $3,932,400 for its 1999 program to enroll 2,025 clients, a 100 percent increase from the previous year. By the end of the year, 1,624 new arrivals became self-sufficient by the end of the 120-day period. Sixteen sites participated in the Match Grant. The largest site was San Francisco, California. The largest ethnic groups served were Kosovars, Bosnians, and Cubans.
IRC
|
Cases | Individuals | |||||
---|---|---|---|---|---|---|---|
Self-sufficient (120 days) |
763 |
69 % |
1624 |
76 % |
|||
Self-sufficient (180 days) |
755 |
99% |
1620 |
99 % |
|||
Entered Employment |
975 |
80 % |
|||||
Average Hourly Wage |
|
$8.77
|
|
||||
Health Benefits |
|
610
|
68
%
|
Lutheran Immigration and Refugee Services (LIRS) was awarded $8,605,400 in 1999 including a $2 million addendum to serve 1,000 Kosovars. However, only $5.6 million was expended. They ultimately enrolled 3,656 of whom 3,446 completed 120 days of service at the time of this report. Of these, 2,913 became self-sufficient within 120 days. There were nineteen affiliates participating in the Match Grant program in 1999.
LIRS
|
Cases | Individuals | |||||
---|---|---|---|---|---|---|---|
Self-sufficient (120 days) |
978 |
84% |
2,913 |
85% |
|||
Self-sufficient (180 days) |
814 |
99 % |
2,242 |
99 % |
|||
Entered Employment |
|
|
1,548 |
90 % |
|||
Average Hourly Wage |
$7.18
|
|
|||||
Health Benefits |
1,250
|
85 % |
United States Catholic Conference (USCC) received $15 million to serve 7,830 clients at 51 sites. Three new sites began Match Grant services, Indianapolis, Kansas City and New York. The largest groups served were Bosnians, Kurds, Kosovars, Vietnamese, Serbs, and Cubans.
USCC
|
Cases | Individuals | |||||
---|---|---|---|---|---|---|---|
Self-sufficient (120 days) |
2,433 |
80 % |
6,781 |
81 % |
|||
Self-sufficient (180 days) |
1,979 |
81 % |
5,280 |
76 % |
|||
Entered Employment |
|
|
3,824 |
71 % |
|||
Average Hourly Wage |
|
|
$7.05
|
|
|||
Health Benefits |
|
|
2,748
|
76 % |
World Relief Corporation (WRC) received $2,475,200 to resettle 1,300 refugees in five sites in 1999, including 300 Kosovars. WRC enrolled 1,294 refugees, with 1,130 reaching the 120-day mark by year's end, of which 1,044 became self-sufficient. The largest ethnic groups served were Eastern Europeans and Kosovar refugees. Tampa, Atlanta, and Ft. Worth were their largest sites. Atlanta and High Point, North Carolina joined the program. Of note, average hourly wage increased by $1.
WRC
|
Cases | Individuals | |||||
---|---|---|---|---|---|---|---|
Self-sufficient (120 days) |
340 |
93 % |
1044 |
92% |
|||
Self-sufficient (180 days) |
283 |
92 % |
789 |
99 % |
|||
Entered Employment |
|
|
508 |
87 % |
|||
Average Hourly Wage |
|
|
$7.34
|
|
|||
Health Benefits |
|
|
358
|
76
%
|
Special
Initiatives
(a) Partnerships to Improve Employment and Self-Sufficiency
Outcomes
State Outcome Goal Plans
In FY 1999, the Office of Refugee Resettlement undertook a joint effort
with States to improve State performance in refugee employment and
self-sufficiency outcomes. States and California counties have since
been required to establish annual outcome goals aimed at continuous
improvement of performance along the following six outcome measures:
-
Entered Employments, defined as the entry of a refugee into unsubsidized employment.
-
Terminations Due to Earnings, defined as the termination of a cash assistance case (RCA, TANF, and general assistance) due to earned income.
-
Reductions Due to Earnings, defined as a reduction in the amount of cash assistance that a case receives as a result of earned income.
-
Average Wage at Placement, calculated as the sum of the hourly wages for the full-time placements divided by the total number of individuals placed in employment.
-
Job Retentions, defined as the number of persons working for wages (in any unsubsidized job) on the 90th day after placement. This is a measure of continued participation in the labor market, not retention of a specific job.
-
Entered Employments with Health Benefits, defined as a job placement with health benefits offered within six months of employment, regardless of whether the refugee actually accepts the coverage offered.
ORR tracked State
and county performance throughout the year. The FY 1999 performance was
as follows:
-
Entered Employments totaled 50,173, an 8 percent decline from the number recorded in FY 1998 (54,417).
-
Terminations due to Earnings totaled 16,531 a 3 percent decline from FY 1998 (16,978).
-
Reductions due to Earnings totaled 5,403 a 27 percent decline from FY 1998 (7,399).
-
Average Wage At Placement ($7.20) rose four percent from FY 1998 ($6.90).
-
Employment Retentions (35,739) a 10 percent decline from FY 1998 (39,763).
-
Entered Employments with Health Benefits reached 28,579, a 1 percent decline from FY 1998 (28,991).
These performance
measure outcomes must be viewed in the overall context of increasing
arrival numbers, but a decreasing caseload. A caseload is defined
as the unduplicated number of active employable adults enrolled in
employment services. In FY 1999 the caseload decreased by eight percent.
The rate of job placements increased by one percent, and 71 percent
of refugees who found employment retained their employment for ninety
days, consistent with 73 percent in FY 1998. The rate of cash assistance
terminations increased by two percent in FY 1999. Sixty-seven percent
of full-time placements offered health insurance, compared with 61
percent the year before.
Twenty-eight States and two California counties exceeded
their placements from last year. Connecticut, Georgia, Maine, New
Hampshire, New Mexico, Rhode Island, Vermont, and Virginia exceeded
their placements last year by more than one third.
Twenty-three States and three California counties increased the number
of cash assistance terminations over the previous year. Six States
(Arkansas, Florida, Mississippi, New Hampshire, New Mexico and Rhode
Island) reported that every cash assistance recipient terminated assistance
after job placement.
Twenty-six States and three California counties improved the job retention
rate over the previous year. Retention rates of over 90 percent were
reported in Alabama, Arkansas, Colorado, Delaware, Indiana, New Hampshire,
North Carolina, North Dakota, Pennsylvania, Rhode Island, South Dakota,
Texas, Utah, Vermont, and Wisconsin. Among larger States, retention
rates met or exceeded 80 percent in Florida and Oregon. Among California
counties, Contra Costa, San Joaquin, and Yolo recorded high rates
of retention.
FY 1999 saw significant improvement in the quality of jobs found for
refugees. Forty States and nine California counties reported higher
wages at placement than in FY 1998. Delaware ($8.57), Massachusetts
($8.75), South Dakota ($8.24) and San Francisco County ($8.92) reported
the highest average wage at placement. Twenty-nine other States reported
an average wage at placement of $7.00 or above, compared with only
twenty States the year before.
Refugees found employment not only at higher wages,
but also with more benefits. Thirty-three States and four California
counties increased their rates of health benefit availability over
FY 1998. Arkansas found health insurance for all 12 if its job placements
(100 percent), and Hawaii found health insurance for all 18 of its
full-time job placements (100 percent). Rhode Island found health
insurance for 56 of its 57 full-time job placements (98 percent).
Seven other States - Arizona, Delaware, Indiana, Minnesota, North
Carolina, Ohio and Virginia - reported that at least 90 percent of
its entered employments included health benefits. In eleven other
States, at least 80 percent of refugees found employment with health
benefits available.
ORR also tracked the cost per job placement in each State and California
county. This measure is the ratio of the total employment service
funds used by the State for employment services divided by the number
of entered employments recorded during the fiscal year. The State
average unit cost was $1,498 per job placement. The range was quite
wide, however, from a low of $301 per placement (Louisiana) to a high
of $6,398 per placement (West Virginia). In California counties, unit
costs ranged from $615 per placement (Merced) to $5,846 per placement
(San Diego). California's overall average unit cost was $2,847.