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1.4 REFUGEE RESETTLEMENT
Program Description, Context, Legislative Intent and Broad Program Goals
ACF provides assistance and services to persons admitted to the United States as refugees, asylees, Cuban or Haitian entrants and Amerasian immigrants. The major program goals are to provide resources and technical assistance to States and other grantees in order to help refugees achieve economic self-sufficiency and social adjustment within the shortest time possible following their arrival in the U.S.
Federal resettlement assistance to refugees is provided primarily through a State-administered refugee resettlement program. States provide transitional cash and medical assistance and social services to refugees, and maintain legal responsibility for the care of unaccompanied refugee children.
The Office of Refugee Resettlement (ORR) provides funding for a broad range of social services to refugees, both through States and through direct service grants, to help refugees obtain employment and achieve economic self-sufficiency and social adjustment as quickly as possible. After deducting set-asides mandated by Congress, ORR, as in previous fiscal years, allocated 85 percent of the social service funds on a formula basis. The requested increase of $7.121 million will provide transitional and medical services for additional persons that receive asylum status each year. The request for $10 million (an increase of $5 million over the FY 2001 current estimate) will ensure continued administration of a national network for identification, tracking and certification of trafficking victims. There may be as many as 50,000 such victims of trafficking in the U.S. today.
In June of FY 2000, ORR changed its policy regarding the start date for eligibility of asylees for ORR benefits and services. This policy change added approximately 19,000 asylees to the ORR caseload eligible to receive cash and services. Adding the asylees to the anticipated refugee ceiling (85,000) and entrant arrivals (20,000) increases our total caseload to 124,000.
State Administered Program
Since FY 1995 the Office of Refugee Resettlement (ORR) has been working in partnership with States to implement the requirements of the Government Performance and Results Act (GPRA) into our State-administered program. Our joint efforts have moved the State-administered program to a focus on results through the process of setting and reporting of annual outcome goals.
The State-administered program outcome measure definitions are:
Entered employments (job placements) -- entered employment is defined as the entry of an active participant in employment services into unsubsidized employment for at least one day during any quarter of the Federal fiscal year.
Cash assistance terminations due to earnings -- a cash assistance termination (grant termination) is defined as the closing of a cash assistance case due to earned income in an amount that is predicted to exceed the State’s payment standard for the case based on family size, thereby rendering the case ineligible for cash assistance.
Cash assistance reductions due to earnings -- a cash assistance reduction (grant reduction) is defined as a reduction in the amount of cash assistance that a case receives as a result of earned income from employment.
Average hourly wage at placement -- average hourly wage at placement (employment entry) is calculated as the sum of the hourly wages for the unduplicated number of full-time placements in employment during the fiscal year divided by the total unduplicated number of individuals placed in full-time employment. (This outcome measure is not included in this plan.)
Ninety-day employment retentions -- this is a measure of continued participation in the labor market, not retention of a specific job. Employed means working for wages on the ninetieth day from placement at any unsubsidized job. Where there have been multiple placements for the same individual within the same Federal fiscal year, the date of the first employment entry is the start date for calculating the 90-day follow-up. An individual who is on strike on the ninetieth day is considered employed. An individual who has been laid off and does not anticipate returning to the same employment within 30 days is considered unemployed, unless the individual has obtained other employment.
Entered employments with health benefits available -- entered employments with health benefits available reflects the availability of health benefits (either at placement, or at any time within 6 months of placement) for those individuals who entered full-time employment. This is not a measure of how many individuals elect to enroll in health benefits, but rather how many jobs offer this option. Benefits should be considered available if self-only coverage is available to the employee, even if coverage is not extended to the employee’s family members. Benefits are considered available without regard to whether the employee must contribute to the premium or whether the employee must wait for coverage.
States may include a narrative explanation of local conditions that may have affected performance during the year, such as labor market conditions, or other factors that had an impact on a State’s ability to achieve its goals, such as an unanticipated reduction in refugee arrivals. Four of the above six measures are included in the State Administered program and two are included in the Matching Grants program.
Matching Grant Program
The Matching Grant program provides an alternative approach to the State-administered resettlement assistance. It provides voluntary agencies the opportunity to use focused intensive employment services, financial incentives, and the flexibility to experiment with creative solutions to the special employment problems of refugees in order to achieve early placements. The program’s goal is to help refugees attain self-sufficiency within four months after arrival, without access to public cash assistance. This program provides more comprehensive supports during intake and is targeted to families with at least one member deemed employable. Both of these features contribute to the higher success rate for the CY 1999 performance in this program.
The definition for economic self-sufficiency (an integral component of the Matching Grant Program)-- is earnings/income for the total family at a level that enables a family unit to support itself without receipt of cash assistance.
Program Activities, Strategies and Resources
ORR conducts on-site monitoring of selected States and other grantees to help them achieve improved client employment and self-sufficiency outcomes. ORR targets States that have large refugee populations and that receive significant ACF refugee program funding for monitoring. In monitoring, ORR assists States and grantees to identify strategies to improve outcomes on ORR performance measures and provides technical assistance on implementing program improvements.
The Refugee Program is affected by foreign policy decisions and crises. Its ability to quickly resettle new arrivals depends not only on local job markets but also on the rate of influx and refugees' special needs, educational levels, and English proficiency.
Program Coordination, Partnerships and Crosscutting Issues
ACF refugee resettlement policies and activities are coordinated with the U.S. Department of State, State and community agencies, the Immigration and Naturalization Service, the Social Security Administration, the U.S. Department of Agriculture’s Food and Consumer Service, as well as with TANF, Medicaid and other programs within DHHS.
Program-wide Performance
Refugee arrivals in FY 1999 totaled 106,098. ACF experienced a larger than usual bulge in refugee arrivals during the spring and early summer months of FY 1999 due to the Kosovo crisis. Approximately 14,000 Kosovar refugees were brought to the United States and given the right to remain here permanently. The Kosovo situation strained program capability and resources due to the large number of arrivals within a short time. In addition, many of the Kosovars required special services in mental health due to the experiences of torture and persecution.
The Kosovo situation changed dramatically in June and early July of last year. It was announced that if the Kosovar refugees who came to the U.S. by July 31, 1999, decided at a later date that they wished to return to Kosovo, the United States would finance their travel home. The deadline for registration for the funded return home was May 1, 2000. Approximately 11,200 of the 14,000 Kosovar refugees were eligible for the funded return. Approximately 4,000 have registered for the funded return and 3,350 of them have already returned. ACF has no way of knowing how many people have gone back on their own. We assume there have been some and there will likely be others who return to Kosovo on their own.
Outcomes for summer refugee arrivals were not reported until December 1999. ACF is confident that our partners made every effort to meet the established targets, however, at the time that targets were established, our partners were uncertain how many Kosovo refugees would elect to return to Kosovo and how many would stay in the U.S. to participate in our employment programs and services. In addition, our partners were providing services to a group of refugees with compelling special needs, many who were not employment-ready due to trauma. FY 1999 presented a unique set of circumstances and challenges for States with significant numbers of Kosovar refugees. This situation was without precedent in the refugee resettlement program. It was impossible to anticipate the impact that this unique set of circumstances would have when the States were establishing FY 1999 performance targets.
FY 1999 PERFORMANCE IN THE STATE-ADMINISTERED PROGRAM:
ORR tracked State and county performance throughout the year. The FY 1999 performance was as follows:
Entered Employments The goal for measure 3.1a was 51,597. The actual totaled 50,208 a 4 percent decline from the number recorded in FY 1998 (52,298).
Terminations due to Earnings The goal for measure 1.3c was 16,480. The actual totaled 16,445, a 3 percent decline from FY 1998 (16,978).
Employment Retentions The goal for measure 1.3d was 37,936. The actual totaled 36,055, a 5 percent decline from FY 1998 (38,040).
Entered Employments with Health Benefits The goal for measure 1.3b was 27,767. The actual totaled 28,425, a 5 percent increase from FY 1998 (27,124)
CY 1999 PERFORMANCE IN THE MATCHING GRANT VOLUNTARY AGENCY PROGRAM:
The Matching Grant Program emphasizes family self-sufficiency (independence from cash assistance) and is characterized by a strong emphasis on early employment and intensive services during the first four months after arrival. The performance measures are focused on the two most critical program goals: entered employments and the proportion of cases that are self-sufficient at four months after arrival in the U.S.
Entered Employments The goal for measure 1.3e was 8,620. The actual totaled 9,713, a 17 percent increase from the number recorded in CY 1998 (8,049).
Self-sufficiency at 120 days The goal for measure 1.3f was 5,710. The actual totaled 6,497 cases a 20 percent increase from CY 1998 (5,194).
National numbers do not tell the whole story. Many States significantly increased their performance.
Entered employment: The number of job placements decreased by 4 percent in FY 1999, largely due to the unique set of circumstances caused by the arrival of the Kosovar refugees. Twenty-seven States and two California counties exceeded their placements from last year. Six States placed more than 90% of their caseload. Thirty States increased their FY 2000 target by 5% or more than their FY 1999 performance. Thirteen States met or exceeded the FY 1999 target they established; four States missed their target by 5% or less.
Cash Assistance Terminations: The number of cash assistance terminations increased by 2% in FY 1999. Twenty-seven States and four California counties increased the number of cash assistance terminations over the previous year. Fourteen States met or exceeded the FY 1999 target they established; only one State missed their target by 5% or less. Twenty-eight States increased their FY 2000 target by 5% or more of their FY 1999 performance.
Retentions: Seventy-two percent of refugees who found employment retained their employment for ninety days, consistent with 73% in FY 1998. Twenty-eight States and four California counties improved the job retention rate over the previous year. In 32 States, more than 75% of job placements were retained for 90 days or more. Eighteen States met or exceeded the FY 1999 target they established and only two States missed their target by 5% or less. Thirty-five States increased their FY 2000 target by 5% or more of their FY 1999 performance.
Entered Employment with Health Benefits: Sixty-six percent of full-time placements offered health insurance compared with 57% the year before. Thirty-one States and two California counties increased their rates of health benefit availability over FY 1998. Seventeen States met or exceeded the FY 1999 target they established; only four States missed their target by 5% or less. Thirty-nine States increased their FY 2000 target by 5% or more of their FY 1999 performance.
FY 1999 showed 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. Twenty-seven other States reported average wage at placement of $7.00 or above, compared with twenty the year before. Refugees found employment not only at higher wages, but also with more benefits. Average wage at placement in the State-Administered program $7.20, a 4% rise from FY 1998 ($6.90). Average wage at placement in the matching grant program was $7.42, an 11% rise from CY 1998 ($6.58).
Data Issues
Data are submitted quarterly by all States participating in the State-administered program via the quarterly performance report (Form ORR-6). Data for the Matching Grant are submitted to ACF three times per year on the Matching Grant Progress Report form. Baseline data for all measures in the State-administered program are derived from FY 1997 annual unduplicated outcome data as reported on the annual Outcome Goal Plans. Baseline data for the Matching Grant program are derived from the Calendar Year 1997 Report. Matching Grant unduplicated annual performance data are submitted to ACF in February of each year.
Desk monitoring and tracking of quarterly performance report data occur quarterly in the State-administered program and 3 times per year in the Matching Grant program. Data are validated by periodic on-site monitoring, in which refugee cases are randomly selected and reviewed. Outcomes reported by service providers are verified with both employers and refugees to ensure accurate reporting of job placements, wages and retentions.
Summary Table
Performance Measures |
Targets |
Actual |
Reference |
||
|---|---|---|---|---|---|
1.4a. Increase the number of refugees entering employment through ACF-funded refugee employment services by at least 5% annually from FY 1997 actual performance. |
FY
02: 59,730 |
FY
02: |
Px M-46 |
||
1.4b. Increase the number of entered employments with health benefits available as a subset of full-time job placements by 5% annually from the FY 1997 actual performance. |
FY
02: 32,144 |
FY
02: |
Px M-46 |
||
1.4c. Increase the number of refugee cash assistance cases closed due to employment by at least 5% annually as a subset of all entered employments from the FY 1997 actual performance. |
FY
02: 19,077 |
FY
02: |
Px M-47 |
||
1.4d. Increase the number of 90-day job retentions as a subset of all entered employments by at least 5% annually from the FY 1997 actual performance. |
FY
02: 43,915 |
FY
02: |
Px M-47 |
||
1.4e. Increase the number of refugees who enter employment through the Matching Grant (MG) program as a subset of all MG employable adults by at least 5% annually from the calendar year 1997 actual performance. |
CY
02: 9,979 |
CY
02: |
Px |
||
1.4f. Increase the number of refugee families (cases) that are self-sufficient (not dependent on any cash assistance) within the first 4 months after arrival by at least 4% annually from the calendar year 1997 actual performance. |
CY
02: 6,423 |
CY
02: |
Px |
||
|
FY 2000 Data Availability: Annual,
unduplicated FY 2000 data is due from States 45 days after
end of year, circa November 15. Because individual State
reports may be missing and time is needed to validate and
verify the data, final State data will be available in
April 2001, final MG data in May 2001. |
|||||
Total Funding (dollars
in millions) |
FY
02: $446.2 |
*Bx: budget just. section
I |
|||
Performance Measures for FY 2002 and Final Measures for FY 2001
Background for the selection of performance measures: The Office of Refugee Resettlement (ORR) convened a workgroup comprised of State Refugee Coordinators and ORR staff in November 1994 to establish performance measures and annual outcome goals. The workgroup agreed the selection of performance measures would be based on the following criteria: measures must be results-oriented, quantifiable, based on reliable data, stated in terms of positive change in social or economic conditions for the refugees using the services and they must measure program effectiveness. The targets would measure achievements in a given period of time.
The workgroup also recommended that States be required to establish annual outcome targets aimed at continuous improvement of performance for each of the selected program measures. All the performance measures are aimed at increasing refugee early employment and self-sufficiency. The workgroup recommended the following six program measures as most representative and manageable for reporting purposes. Five of the six measures have been incorporated in the ACF annual performance plan.
Entered employments (job placements)
Cash assistance terminations due to earnings
Cash assistance reductions due to earnings
Average hourly wage at placement
90-day employment retentions
Entered employments with health benefits available
STATE-ADMINISTERED PROGRAM
Specific program goals to be achieved in FY 2002 have been set on the four most critical of the six outcome measures. For the FY 1999 - 2002 targets, a common baseline year of 1997 (the earliest year with a complete data set) was established for both programs serving refugees, replacing the baselines used previously. Baselines for the State-administered program were established using fiscal year data.
1.4a.FY 2001: Increase the number of refugees entering employment through ACF-funded refugee employment services by at least 5% annually from the FY 1997 actual performance of 46,800 to 56,885.
FY 2002: Increase the number of refugees entering employment through ACF-funded refugee employment services by at least 5% annually from FY 1997 actual performance of 46,800 to 59,730.
1.4b.FY 2001: Increase the number of entered employments with health benefits available as a subset of full-time job placements by 5% annually rom the FY 1997 actual performance of 25,186 to 30,613.
FY 2002: Increase the number of entered employments with health benefits available as a subset of full-time job placements by 5% annually from the FY 1997 actual performance of 25,186 to 32,144.
1.4c.FY 2001: Increase the number of refugee cash assistance cases closed due to employment by at least 5% annually as a subset of all entered employments from the FY 1997 actual performance of 14,948 to 18,169.
FY 2002: Increase the number of refugee cash assistance cases closed due to employment by at least 5% annually as a subset of all entered employments from the FY 1997 actual performance of 14,948 to 19,078.
1.4d.FY 2001: Increase the number of 90-day job retentions as a subset of all entered employments by at least 5% annually from the FY 1997 actual performance of 34,409 to 41,824.
FY 2002: Increase the number of 90-day job retentions as a subset of all entered employments by at least 5% annually from the FY 1997 actual performance of 34,409 to 43,915.
Data sources: ORR-6.
Beginning with FY 1996, States (and California counties) submit an end-of-year report to ORR comparing projected annual targets with actual targets achieved for each of the six measures. States may include a narrative to explain increases or decreases in performance due to local conditions that may have affected performance during the year, such as labor market conditions or other factors, such as unanticipated reduction in refugee arrivals.
When setting targets for each measure, States are asked to establish targets aimed at improving the previous year’s actual performance. While there are no national performance requirements or formal-comparison of States, each State’s actual annual performance is compared to that State’s projected targets to calculate the level of achievement and to ensure that States strive for continuous improvement in their goal-setting process from year to year. States that reach a high employment and self-sufficiency rate of 90% among employable refugees may choose to maintain their target levels rather than increase them. Although there are no monetary punishments or rewards, data on each State’s or county’s annual targets and actual performance for the six measures are published in the Annual Report to Congress. The publicity serves as an incentive for improved performance.
MATCHING GRANT VOLUNTARY AGENCY PROGRAM
ACF requires nonprofit agencies participating in the Matching Grant Voluntary Agency Program to set outcome goals each year on five outcome measures negotiated with the Matching Grant agencies. Only the first two outcome measures are included in this annual performance plan and report.
- Entered employments (job placements)
- Self-sufficiency at 120 days (cases and persons)
- Self-sufficiency at 180 days (cases and persons)
- Average hourly wage at placement
- Entered employments with health benefits available
The Matching Grant program baselines use the calendar year to reflect the matching grant program period. The two sets of measures that follow track progress for this program.
1.4e.FY 2001: Increase the number of refugees who enter employment through the Matching Grant program as a subset of all MG employable adults by at least 5% annually from the calendar year 1997 actual performance of 7,819 to 9,504 persons in calendar year 2001.
FY 2002: Increase the number of refugees who enter employment through the Matching Grant program as a subset of all MG employable adults by at least 5% annually from the calendar year 1997 actual performance of 7,819 to 9,979 persons in calendar year 2002.
1.4f.FY 2001: Increase the number of MG refugee families (cases) that are self-sufficient (not dependent on any cash assistance) within the first 4 months after arrival by at least 4% annually from the calendar year 1997 actual performance of 5,279 cases to 6,176 cases in calendar year 2001.
FY 2002: Increase the number of MG refugee families (cases) that are self-sufficient (not dependent on any cash assistance) within the first 4 months after arrival by at least 4% annually from the calendar year 1997 actual performance of 5,279 cases to 6,423 cases in calendar year 2002.
Data source: Matching Grant Progress Report
ORR has implemented a number of strategies aimed at challenging States to improve performance for targets that were not achieved. ORR publishes State and Matching Grant performance results in the Annual Report to Congress; certificates of commendation are presented to States with increased performance at the annual ORR national conference; and ORR staff negotiate the targets and provide technical assistance and monitoring to the States and Matching Grant Program grantees to achieve mutually acceptable goals.
Ability to predict future performance: ORR continues to focus on performance and encourages grantees to be courageous in setting goals. ORR negotiates annual goals with each of its grantees and stresses continuous improvement. The extent to which ORR can predict future performance is limited, because of the emergency humanitarian nature of the refugee resettlement program. Response to international mass migrations of persecuted persons, such as the Kosovars, places additional demands on our domestic resettlement partners by dramatically increasing the numbers of refugees receiving ORR services. However, the robust economy has enabled our service network to place additional refugees in jobs each year.
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