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Annual ORR Reports to Congress - 2001

Wilson/Fish Alternative Program

The Wilson/Fish amendment to the Immigration and Nationality Act, contained in the FY 1985 Contin­uing Resolution on Appropriations, directed the Secretary of the Department of Health and Human Services to develop alternatives to the regular State-administered program for the purpose of:

• increasing refugee self-sufficiency,
• avoiding welfare dependency, and
• increasing coordination among service provid­ers and resettlement agencies.

The Wilson/Fish authority provides public and private non-profit agencies the opportunity to develop new approaches for the provision of cash and medical assistance, social services, and case management. These projects are considered under Category 2 in the Wilson/Fish announcement.

The Wilson/Fish authority also allows projects to establish or maintain a refugee program in a State where the State is not participating in the refugee program or is dropping out of the refugee program or a portion of the program. These projects are considered under Category 1 in the Wilson/Fish announcement.

ORR Appropriation FY 2001                         Transitional and Medical Services                         State-administered Cash/Medical/Administrative                   $153,130,000                                    Matching Grant Program                                                         61,560,000                         Wilson/Fish Program                                                               3,500,000                         Other                                                                                      1,980,000                         Trafficking                                                                               5,000,000                                                                                                                                                                        Sub-total, Transitional and Medical Services                        $225,170,000                         Social Services                                                                                                                                    Social Services Formula                                                       $71,927,850                         Social Services Discretionary                                                  12,693,150                         Difficult to Assimilate Programs                                               26,000,000                         Cuban/Haitian Communities                                                    19,000,000                                    Welfare Reform Program                                                         14,000,000                         Subtotal, Social Services                                                   $143,621,000                         Preventive Health                                                                $4,835,000                         Targeted Assistance                         Targeted Assistance Formula                                                $44,529,300                         Targeted Assistance Ten Percent                                              4,947,700                         Subtotal, Targeted Assistance                                             $49,477,000                         Victims of Torture                                                              $10,000,000                         Total, ORR Appropriation                                                 $433,103,000             Does not include prior year funds available for FY 2001 obligation

No additional funding is appropriated for Wilson/Fish projects; funds are drawn instead from regular cash and medical assistance grants and social services allocations. Wilson/Fish alternative projects typically contain several of the following elements:

• Creation of a “front-loaded” service system which provides i­ntensive services to refugees in the early months after arrival with an emphasis on early employment.
• Integration of case management, cash assistance, and employment services generally under a single private agency that is equipped to work with refugees.
• Innovative strategies for the provision of cash assistance, through incentives, bonuses, and income disregards.

On April 22, l999, ORR published a revised standing announcement for Wilson/Fish projects (64 FR 19793). Wilson/Fish programs no longer are restricted to the amount of funds expended in the prior State-administered program. In addition, programs may be approved to serve families otherwise eligible for the TANF program.

In FY 2001, on-going, statewide Wilson/Fish projects were operated by private agencies in Kentucky, Nevada, and South Dakota and by a State agency in Massachusetts.

Also in FY 2001, ORR reviewed applications for and funded Wilson/Fish projects for the period starting September 30, 2001 as presented in the following table.

As in past years, Wilson/Fish program managers worked closely with ORR staff to establish outcome goal plans for their programs. The program goals established for FY 2001 are based on the program measures adopted for the State-administered program. For an explanation of each

State/County Grantee	RCA for TANF- Types	RMA	Social Services
Alabama - Catholic Social Services of Mobile (Cat. 1)	no	yes	yes
Colorado Department of Human Services (Cat. 2)	yes	no	yes
Kentucky, Catholic Charities of Louisville (Cat. 1)	no	yes	yes
Massachusetts Office of Refugees and Immigrants (Cat.2)	no	no	yes
Nevada, Catholic Charities of Southern Nevada (Cat. 1)	no	yes	yes
North Dakota Department of Human Services (Cat. 2)	no	no	yes
San Diego, Catholic Charities (Cat 2)	yes	no	es
South Dakota, LSS of South Dakota (Cat 2)	yes	no	yes
Vermont, IRSA  (Cat. 2)	yes	no	no

program measure and the outcomes for each project, see the section entitled “Partnerships to Improve Employment and Self-Sufficiency Out-comes,” beginning on page 21.

Matching Grant Program

Calendar Year (CY) 2001 marked the 22nd anniversary of the Matching Grant program. In those twenty-two years, more than two million refugees have come to this country, and nearly 490,000 refugees (20 percent of all refugees) were served through the Matching Grant program. In CY 2000, nearly 27,000 refugees participated, almost 30 percent of the eligible population. These 27,000 refugees were served by 239 affiliate sites of the nine voluntary agencies, or volags, in 122 cities in 41 States. For CY 2001, 30,000 refugees, Cuban/Haitian entrants, and asylees were projected to participate at 248 sites in 42 States. Ultimately, the events of September 11, 2001 interrupted the flow of refugee arrivals and only 26,000 clients enrolled in the program. The interruption in refugee arrivals disrupted the refugee community and service providers alike. ORR responded by providing additional resources and services to refugees who lost their jobs. ORR also took steps to maintain the infrastructure of the Matching Grant program during this critical time.

The Matching 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. The agency must match at least $1,000 for each $2,000 in Federal funds per enrollment. For 2001, ORR awarded nearly $54 million in the Matching Grant program, an amount matched by $27 million in non-Federal funds, goods and services.

The Matching 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 Matching Grant program may use publicly funded medical assistance.

In 2001, a special initiative was added to the program to serve Burmese granted asylum in the Territory of Guam. Matching Grant guidelines were modified to enable the Burmese asylees to enter the program effective with the date of arrival in the mainland. More than 400 Burmese asylees without sponsors went directly into the program. Other changes to the Matching Grant guidelines included: rent to be paid through the first month following entered employment; cash allowance to be paid throughout the first 120 days of eligibility.

As with the Wilson/Fish and State-administered programs, Matching 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. Goals are also established for individual refugees in terms of job placements, wages, and health benefits.

Summaries of the progress reports of the nine participating agencies follow, with all data reported over the calendar year. Note that clients reaching 120 days may exceed actual enrollments. This is due to the large disparity of enrollments at the end of CY 1999 compared to those in CY 2000 for whom services continue to be provided.

Church World Service (CWS) received $2,806,000 to enroll 1,403 refugees in 22 sites. CWS actually enrolled 1,384 refugees despite the dramatic decline in arrivals. CWS reported 1,089 clients achieved self-sufficiency of the 1,292 that reached the 120-day mark, or 84 percent of the families achieving self-sufficiency. The primary groups were Bosnians, Sudanese and Cubans. The largest sites were Miami, Florida; Richmond, Virginia; and Houston, Texas. The inclusion of Cuban parolees and asylees in the Matching Grant program resulted in nearly meeting its enrollment goals for CY 2001.

CWS	Cases			Individuals
Self-sufficient (120 days)1	510	83 %	1,089		84 %
Self-sufficient (180 days)	329	98 %	687		96 %
Entered Employment			815		92 %
Average Hourly Wage Health Benefits2			$7.57 10		82 %

Episcopal Migration Ministries (EMM) received $2,186,000 to serve 1,093 refugees in the Matching Grant program. EMM enrolled 1,037 refugees at 21 sites, including 118 asylees which enabled the agency to achieve 95 percent of its enrollment goal. The largest ethnic groups served were Bosnian and Sudanese.

EMM	Cases		Individuals
Self-sufficient (120 days)	430	84 %		927	82 %
Self-sufficient (180 days)	389	95 %		887	85 %
Entered Employment				515	78 %
Average Hourly Wage Health Benefits				$7.71 428	83 %

Ethiopian Community Development Council (ECDC) received $972,000 in CY 2001 to serve 486 Matching Grant clients in five sites: Houston, Texas; Chicago, Illinois; San Diego, California; Arlington, Virginia, and the newest site, Omaha, Nebraska. ECDC ultimately enrolled a total of 436 refugees in the Matching Grant program, the shortfall due to low arrivals at the end of the year. The major ethnic groups served arrived from Sudan, Bosnia, and Somalia.

ECDC	Cases		Individuals
Self-sufficient (120 days)	222	85 %		375	84 %
Self-sufficient (180 days)	157	98 %		295	99 %
Entered Employment				256	91 %
Average Hourly Wage Health Benefits				$7.73 214	85 %

Hebrew Immigrant Aid Society (HIAS) requested $9,204,000 to support activities in CY 2001, carrying forward $1,105,000 in unexpended CY 2000 funds to serve 4,602 clients. HIAS ultimately served 3,497 clients in the Matching Grant program, the vast majority from the successor republics of the former Soviet Union. Of those refugees, 1,616 were completely self-sufficient after six months in the U.S. Sixty-three communities participated in the Matching Grant program, a decline of two from the number that participated in 2000. New York City, Chicago and Los Angeles enrolled the largest number of participants.

HIAS	Cases		Individuals
Self-sufficient (120 days)	813	37 %		1,708	34 %
Self-sufficient (180 days)	788	86 %		1,616	83 %
Entered Employment				1,024	32 %
Average Hourly Wage Health Benefits				$9.86 471	63 %

Immigration and Refugee Services of America (IRSA) received $8,506,000 to resettle 4,253 refugees at sixteen sites, including three new sites. This was a dramatic increase over 1999 when the program served 1,800 in ten sites. IRSA ultimately enrolled 4,253 clients in the Matching Grant program, the only agency to meet its projected enrollments. Miami continues to be the largest program, enrolling 1,864 clients of the newly eligible Cuban parolee population. Fully 52 percent of the caseload consisted of asylees, Cuban/Haitian entrants and victims of trafficking. Ninety-one percent of cases were self-sufficient at 120 days.

IRSA	Cases		Individuals
Self-sufficient (120 days)	1,821	91 %		3,696	91 %
Self-sufficient (180 days)	1,610	99 %		3,446	98 %
Entered Employment				2,337	89 %
Average Hourly Wage Health Benefits				$7.18 1,454	69 %

International Rescue Committee (IRC) received a grant award of $6,570,000 to enroll 3,285 clients at its sixteen regional offices. By the end of the year, 3,014 new arrivals were enrolled in the program, the shortfall arising from the interruption of refugee arrivals after September 11. More than thirty-five ethnicities were represented in the IRC caseload. Of 3,154 clients reaching their 120^th day, 2,692, or 85 percent, were self-sufficient. At the largest site in Miami, Florida, 1,028 clients enrolled in the program, with 93 percent self-sufficient within four months.

IRC	Cases		Individuals
Self-sufficient (120 days)	1,276	85 %		2,692	85 %
Self-sufficient (180 days)	1,204	94 %		2,694	94 %
Entered Employment				1,727	82 %
Average Hourly Wage Health Benefits				$7.82 1,151	72 %

Lutheran Immigration and Refugee Service (LIRS) received $8,290,000 to serve 4,145 clients in CY 2001. LIRS enrolled 3,684 clients during the year. 4,332 individuals completed 120 days in the program, 3,768 of whom became self-sufficient within 180 days.

LIRS	Cases		Individuals
Self-sufficient (120 days)	1,595	86 %		3,768	87 %
Self-sufficient (180 days)	1,317	98 %		3,506	98 %
Entered Employment				2,179	83 %
Average Hourly Wage Health Benefits				$7.52 1,610	80 %

United States Conference of Catholic Bishops (USCCB) received $17 million to serve 8,500 clients at 60 sites. USCCB ultimately enrolled 7,738 clients in CY 2001. Of 8,425 reaching the 120^th day after arrival, 6,974 reached self-sufficiency. The number of self-sufficient participants by the end of 180 days was 6,442.

USCCB	Cases		Individuals
Self-sufficient (120 days)	3,211	82 %		6,986	83 %
Self-sufficient (180 days)	2,814	95 %		6,445	95 %
Entered Employment				4,257	76 %
Average Hourly Wage Health Benefits				$7.62 2,979	74 %

World Relief Corporation (WRC) received $3,680,000 to resettle 1,840 refugees in its ten affiliate sites. WRC enrolled 1,505 clients, including 74 asylees and 136 Cuban entrants. Of 1,611 clients reaching 120 days, 1,346 were self-sufficient by the 120-day mark. The largest ethnic groups served were Eastern European and African refugees.

WRC	Cases		Individuals
Self-sufficient (120 days)	564	82 %		1,346	84%
Self-sufficient (180 days)	532	97 %		1,348	97 %
Entered Employment				772	79 %
Average Hourly Wage Health Benefits				$7.51 594	86 %

Partnerships to Improve Employment and Self-Sufficiency Outcomes

In FY 1996 ORR undertook a joint effort with States to improve State performance in refugee employment and self-sufficiency outcomes. States and California counties have been required since FY 1996 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 90^th 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, with FY 2001 performance reported as follows:

• Entered Employments totaled 45,893, a six percent decline from the number recorded in FY 2000 (48,900).
• Terminations due to Earnings totaled 14,223, an eight percent decline from FY 2000 (15,438).
• Reductions due to Earnings totaled 2,978, a forty-six percent decline from FY 2000 (5,462).
• Average Wage at Placement ($7.92) rose four percent from FY 2000 ($7.57).
• Employment Retentions totaled 31,137, an eight percent decline from FY 2000 (33,743).
• Entered Employments with Health Benefits reached 27,270, a one percent increase from FY 2000 (27,094).

This is a Historical Document.