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B. THE RESETTLEMENT PROCESS

1. Voluntary Agency Processing

The Department of State contracts with private voluntary agencies -- sometimes referred to as Joint Voluntary Agencies or "VAS" - to assist in the processing of refugees for admission to the United States. These agencies pre-screen applicants to determine if they fall within the applicable processing priorities and otherwise appear eligible to be scheduled for an INS refugee interview. In some cases, individuals who appear to qualify for immigration to the U.S. are also advised of those procedures. In addition, prior to interview, they assist the applicant in completing the documentary requirements of the program. If approved, voluntary agency staff guide the refugee through post-adjudication steps such as obtaining a medical clearance and sponsorship assurance.

Voluntary agencies are currently under contract to the Department of State at processing locations in Thailand, the Philippines, Malaysia, Hong Kong, Singapore, Pakistan, Turkey, Austria, Germany, Italy, Greece, the Sudan, Sierra Leone, and Kenya.

2. Overseas Language Training and Cultural Orientation

The Department of State strives to ensure that refugees who are accepted for admission to the United States are as well prepared as possible for the significant changes they will experience during resettlement. In support of this principle, the Bureau for Refugee Programs operates pre-departure training and orientation programs for eligible refugees at selected sites around the world.

In East Asia, the Bureau funds English-as-a-Second-Language and Cultural Orientation (ESL/CO) programs in Thailand and the Philippines. At these sites adult Indochinese refugees participate in a 20-week program consisting of ESL/CO, and Work Orientation. A special program for 11 to 16 year olds, Preparation for American Secondary Schools (PASS), includes instruction in English, American Studies, basic math, and school orientation. In the Philippines, a program for 6 to 11 year olds, Preparing Refugees for Elementary Programs (PREP), also provides instruction in English, basic math, and school skills.

In FY 1992 over 30,000 Indochinese refugees, including Amerasians departing Vietnam under the Orderly Departure Program, are expected to complete this training.

In Africa, the Bureau conducts a short orientation program in Kenya which provides services primarily to Ethiopian refugees enroute to the United States. The Bureau also supports a small cultural orientation program in Botswana for U.S.-bound refugees who come primarily from Angola, Namibia and South Africa.

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3. Health Services

The Office of Refugee Health (ORH), in the Office of the Assistant Secretary for Health, Department of Health and Human Services (HHS), is the focal point for all activities of the U.S. Public Health Service in refugee health. The ORH develops health and mental health policy and identifies problem areas and solutions. Public Health Service agencies active in refugee matters include the Alcohol, Drug Abuse, and Mental Health Administration, the Centers for Disease Control, and the Health Resources and Services Administration.

Close and regular consultative relations are maintained with the Department of State (DOS), Department of Justice, HHS's Office of Refugee Resettlement, State and local health departments, and with international organizations such as the United Nations High Commissioner for Refugees (UNHCR) and the International Organization for Migration (IOM).

Routine U.S. Public Health Service refugee operations include:

Monitoring the quality of medical examinations provided to refugees in
Southeast Asia and worldwide, through on-site visits and training
conferences;

Inspection of each refugee at the U.S. port of entry;

Notification of local health departments of each refugee's arrival, with
expedited notification of cases requiring special follow-up; and

Administration of a domestic preventive health program which provides for
refugee health assessments locally following resettlement.

Special initiatives undertaken or completed recently have included:

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Organizing and conducting an international medical conference on the health
and mental health needs of refugees from the former Soviet Union and
publication of meeting proceedings, which is a unique resource;

Conducting mental health training seminars for medical providers and
resettlement workers for special refugee groups, including Vietnamese
former reeducation camp detainees and Amerasians;

Evaluating reeducation camp detainee health and mental health services;

Directing the PHS response to Haitian migrants at Guantanamo Bay Naval
Station and providing medical screening for Haitians admitted directly to the
U.S.;

Consulting with DOS, INS, and UNHCR on individual refugee cases
presenting unique health problems;

Planning for an international conference on migration medicine jointly with
the World Health Organization (WHO) and IOM; and

Participating in the development of regulations to implement the medical exclusion provisions of the Immigration and Nationality Act of 1990.

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4. Initial Reception and Placement and the Refugee Data Center

Under Reception and Placement (R&P) program cooperative agreements administered by the Bureau for Refugee Programs, eleven private voluntary agencies are responsible for providing initial resettlement services to refugees during their first 90 days in the United States and oversight of "free case" refugees (those without relatives in the United States) for six months. Voluntary agencies receive per capita funding ($588 in FY 1992), which is to be used along with cash and in-kind contributions from private and other sources. Refugee reception and placement services include:

Sponsorship;

Pre-arrival resettlement planning;
Reception;

Basic needs support for 30 days;
Counseling and orientation; and

Health, employment, and other necessary referral services

In FY 1992 the Bureau's on-site monitoring of the Reception and Placement program included in-depth reviews of refugee resettlement in twelve states. As a result of the monitoring, strengths and weaknesses of voluntary agency programs have been identified, and where needed, corrective action has been recommended.

In FY 1992 the domestic resettlement program will have witnessed large-scale arrivals of Soviets, and Amerasians and reeducation ex-detainees exiting Vietnam through the Orderly Departure Program. Most arriving refugees join family already resident in the United States.

5. Transportation

The Department of State funds the transportation of refugees resettled in the United States through a program administered by the International Organization for Migration (IOM) which includes funding for international and domestic airfares, IOM processing, medical screening, communications, documentation, and transit accommodations where required. The cost of the airfares (over 80 percent of this total) is provided for refugees in the form of a loan; loan beneficiaries are responsible for repaying a designated sum over time after resettlement. Funds provided for transportation loans and related services cover most refugees resettled in the United States. Amerasian immigrants receive services provided to refugees. Other immigrants enter the United States on prepaid tickets.

6. Ongoing Domestic Resettlement Programs

For FY 1993, the Administration has proposed $227 million for Refugee and Entrant Assistance, a 45 percent reduction from last year's budget.

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The Office of Refugee Resettlement (ORR) in the Department of Health and . Human Services (HHS) has proposed a new, streamlined program, entitled the "Private Resettlement Program (PRP)," that ensures newly-arrived refugees who are not eligible for Federal categorical public assistance will be able to receive transitional support while also receiving intensive case management through more efficient use of resources. The proposal assumes a funded admissions level of 122,000 refugees for FY 1993.

The PRP would terminate the States-administered Refugee Cash Assistance (RCA) and Refugee Medical Assistance (RMA) programs and would provide transitional support, through voluntary agencies, to newly-arrived refugees who are ineligible for Aid to Families with Dependent Children (AFDC) or Supplemental Security Income (SSI). States would continue to be responsible for administering Federal Targeted Assistance and Social Services funds. ORR would also provide funds to voluntary agencies to help refugees attain self-sufficiency as quickly as possible.

The implementation of the PRP continues to be discussed among the Office of the Coordinator, ORR, the States, voluntary agencies, mutual assistance associations and the Congress.

The Private Resettlement Program will provide a longer period of assistance to refugees and will help refugees obtain employment sooner than would be possible under the States-administered RCA and RMA Programs.

7. Domestic Initiatives

The Wilson/Fish Amendment to the Immigration and Nationality Act, contained in the FY 1985 Continuing Resolution on Appropriations, enables ORR to develop alternative projects which promote early employment of refugees. It provides to States, voluntary resettlement agencies, and others the opportunity to develop innovative approaches for the provision of cash and medical assistance, social services, and case management.

In the summer of 1985, ORR awarded grants to California and Oregon for demonstration projects designed to decrease refugee reliance on welfare and to promote earlier economic self-sufficiency. The California project was phased out by the State in 1990.

In FY 1990, ORR approved a grant to the United States Catholic Conference for a demonstration project, operated by Catholic Community Services of San Diego, which began September 1, 1990.

The Oregon Refugee Early Employment Project (REEP)

The Oregon project, the Refugee Early Employment Project (REEP), began its seventh year of activity in FY 1992. REEP integrates the delivery of cash assistance with case management, social services, and employment services within the private non-profit sector in an effort to increase refugee employment and reduce reliance on cash assistance. REEP encompasses a tri-county area surrounding Portland, where 85 percent of all refugees in Oregon initially settle.

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The project serves needy refugees who do not meet the AFDC or SSI categorical requirements (ie., members of two-parent families, couples without children, and single individuals) during their initial eight months in the United States. Refugees who normally are eligible for assistance under AFDC continue to be eligible for that program and do not participate in REEP.

During the past year, 835 REEP participants, of whom 96 percent were receiving cash assistance, entered employment. During the first nine months of the fiscal year, REEP reported a 75 percent job retention rate for these individuals. The employment costs were $937 per job placement and $417 per REEP participant.

United States Catholic Conference - San Diego Project

In FY 1990, USCC was awarded a grant for a demonstration project to be operated by its affiliate, Catholic Community Services of San Diego. It is the third Wilson/Fish project to be funded, and the first grant awarded directly to a private sector agency.

The project serves USCC-sponsored new arrivals and provides a range of in-house services aimed at increasing the rate of refugee self-sufficiency and decreasing the average length of time on assistance. The project provides cash assistance to project participants at a level comparable to cash assistance from State-administered programs. The 125 employable refugees who were enrolled during the first four months of the project utilized cash assistance an average of 6.7 months during their first eight months in the U.S. 90 (72 percent) became self-sufficient before the end of the first 12 months in the U.S.

Cuban Exodus Relief Fund (CERF)

In September 1991, the Cuban Exodus Relief Fund (CERF) was awarded a grant of $1.7 million for a demonstration project to resettle 1,000 Cuban refugees admitted under the funded program. CERF provides medical assistance and services to newly-arrived refugees, who are precluded from accessing any public assistance for a minimum of 12 months. In agreement with the U.S. Coordinator for Refugee Affairs and ORR, CERF is also permitted to use the grant funds to provide medical assistance for up to 1,000 additional refugees admitted under the Private Sector Initiative (PSI).

Alaska Refugee Outreach (ARO)

In January 1992, ORR awarded $140,000 to Alaska Refugee Outreach (ARO), a local affiliate of the Episcopal Migration Ministries, for a demonstration project to be operated in four communities in the State of Alaska. The demonstration project will provide language and employment services to approximately 100 refugees during FY 1992. This project is the third awarded to a non-profit organization and the first established in Alaska, the one State that has not participated in refugee assistance and services through a State-administered refugee program.