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Report to Congressional Committees: 

United States Government Accountability Office: 
GAO: 

March 2010: 

Iraq: 

Iraqi Refugees and Special Immigrant Visa Holders Face Challenges 
Resettling in the United States and Obtaining U.S. Government 
Employment: 

GAO-10-274: 

GAO Highlights: 

Highlights of GAO-10-274, a report to congressional committees. 

Why GAO Did This Study: 

Since the February 2006 bombing of the Al-Askari Mosque in Samara that 
triggered the displacement of thousands of Iraqis, the United States 
has taken a lead role in resettling the displaced. The administration 
has indicated its intent to assist those Iraqis who supported the 
United States in Iraq. In addition, Congress authorized the 
Departments of Defense (DOD) and State (State) to jointly establish 
and operate a program to offer temporary employment to Iraqi special 
immigrant visa (SIV) holders in the United States. 

This report provides information on the (1) status of resettled Iraqis 
in the United States and the initial challenges they face, (2) 
benefits afforded Iraqi refugees and SIV holders, and (3) challenges 
they face obtaining employment with the federal government. GAO 
conducted this review under the Comptroller General’s authority. 

GAO analyzed data on Iraqi refugees and SIV holders in the United 
States, and laws and regulations on the benefits afforded to them. GAO 
also analyzed U.S. government employment and personnel security 
requirements. GAO interviewed officials from five key agencies 
regarding these requirements. 

This report does not contain recommendations. DOD provided official 
comments. State and the Departments of Homeland Security and Health 
and Human Services (HHS) provided technical comments. GAO incorporated 
these comments, as appropriate. 

What GAO Found: 

Between fiscal years 2006 and 2009, the United States admitted 34,470 
Iraqi refugees under State’s Refugee Admissions Program. In addition, 
State issued 4,634 SIVs to Iraqis pursuant to two programs, 
established by Congress to help Iraqis who previously worked for the 
U.S. government in Iraq. Resettlement agencies, working under 
cooperative agreements with State, have resettled Iraqis throughout 
the United States but particularly in California and Michigan. These 
agencies have found that Iraqis arrive in the United States with high 
levels of trauma, injury, and illness, which contribute to the 
challenges they face in resettling in a new country. In addition, 
entry-level jobs normally available to refugees are scarce and more 
competitive in the current economic downturn. Iraqi refugees generally 
have high levels of education, according to U.S. officials and 
representatives from the resettlement agencies. Nevertheless, Iraqis 
have struggled to find entry-level employment in the United States. 

Iraqi refugees and SIV holders are eligible for resettlement 
assistance and public benefits upon arrival in the United States. 
State provides resettlement agencies $1,800 per person to cover basic 
housing, food, and assistance for accessing services during their 
first 30 days in the United States; however, support may continue for 
up to 90 days if basic needs have not been met. Refugees automatically 
receive these benefits; Iraqi SIV holders must elect to receive them 
within 10 days of receiving their visas. In addition, qualified Iraqi 
refugees and, as a result of December 2009 legislation, qualified SIV 
holders can receive certain assistance for up to 7 years through 
public benefits programs. Prior to December 19, 2009, Iraqi SIV holders’
 eligibility for public benefits generally ceased after 8 months. Both 
groups can also receive up to 8 months of cash and medical assistance 
from HHS if they do not qualify for public benefits. In addition, HHS 
funds social services, including job preparation, English language 
classes, and assistance with job interviews, for which Iraqi refugees 
and SIV holders may be eligible for up to 5 years. 

Iraqi refugees and SIV holders, including those who acted as 
interpreters and linguists for civilian agencies and military commands 
in Iraq, have limited opportunities for federal employment. Most 
federal positions in the United States require U.S. citizenship and 
background investigations; certain positions, including most positions 
related to Arabic or Iraq, also require security clearances, which 
noncitizens cannot obtain. However, GAO did identify positions at DOD’
s Defense Language Institute and State’s Foreign Service Institute 
open to qualified noncitizens. Finally, State and DOD have not 
established the temporary program intended to offer employment to 
Iraqi SIV holders under authority granted the agencies in fiscal year 
2009 legislation. Although both agencies have positions requiring 
Arabic language skills, neither identified any unfilled needs that 
could be met by employing Iraqi SIV holders through this joint program. 

View [hyperlink, http://www.gao.gov/products/GAO-10-274] or key 
components. For more information, contact Joseph A. Christoff at (202) 
512-8979 or christoffj@gao.gov. 

[End of section] 

Contents: 

Letter: 

Background: 

Iraqi Refugees and SIV Holders Arrive under Three Different U.S. 
Programs and Face Challenges upon Arrival in the United States: 

As of December 2009, Iraqi SIV Holders Are Eligible for Resettlement 
Assistance and Public Benefits to the Same Extent as Refugees: 

Iraqi Refugees and SIV Holders Face Challenges in Obtaining U.S. 
Government Employment: 

Agency Comments and Our Evaluation: 

Appendix I: Objectives, Scope, and Methodology: 

Appendix II: Initial Resettlement, by State, of Iraqi Refugees and 
Special Immigrant Visa Holders, Fiscal Years 2006 through 2009: 

Appendix III: Comments from the Department of Defense: 

Appendix IV: GAO Contact and Staff Acknowledgments: 

Tables: 

Table 1: Iraqi Refugee Admissions to the United States, Fiscal Years 
2006 through 2009: 

Table 2: Special Immigrant Visas Issued to Iraqis, Fiscal Years 2007 
through 2009: 

Table 3: Arabic Language Positions in the United States at DOD and 
State for Eligible Noncitizens, as of November 6, 2009: 

Table 4: Initial Resettlement, by State, of Iraqi Refugees and Special 
Immigrant Visa Holders, Fiscal Years 2006 through 2009: 

Figures: 

Figure 1: Initial Resettlement, by State, of Iraqi Refugees and 
Special Immigrant Visa Holders, Fiscal Years 2006 through 2009: 

Figure 2: Highlights of Resettlement Assistance Available to Iraqi 
Refugees and Special Immigrant Visa Holders in the United States: 

Abbreviations: 

CBP: U.S. Customs and Border Protection: 

DHS: Department of Homeland Security: 

DLI: Defense Language Institute: 

DOD: Department of Defense: 

DOJ: Department of Justice: 

FSI: Foreign Service Institute: 

HHS: Department of Health and Human Services: 

NDAA: National Defense Authorization Act: 

NGO: nongovernmental organization: 

OPE: overseas processing entity: 

OPM: Office of Personnel Management: 

ORR: Office of Refugee Resettlement: 

PRM: Bureau of Population, Refugees, and Migration: 

SCHIP: State Children's Health Insurance Program: 

SIV: special immigrant visa: 

SNAP: Supplemental Nutrition Assistance Program: 

SSI: Supplemental Security Income: 

TANF: Temporary Assistance for Needy Families: 

UNHCR: United Nations High Commissioner for Refugees: 

USAID: U.S. Agency for International Development: 

USCIA: U.S. Citizenship and Immigration Services: 

[End of section] 

United States Government Accountability Office: 
Washington, DC 20548: 

March 9, 2010: 

Congressional Committees: 

The February 2006 bombing of the Al-Askari Mosque in Samara triggered 
sectarian violence in Iraq and increased the number of displaced 
Iraqis. The United States has taken a lead role in resettling 
displaced Iraqis under the Department of State's (State) Refugee 
Admissions Program. In addition, Congress established two special 
immigrant visa (SIV) programs to help qualified Iraqis who previously 
worked for the U.S. government in Iraq to immigrate to the United 
States.[Footnote 1] The administration has indicated its intent to 
assist those Iraqis who supported the United States in Iraq. Many 
worked for the United States as translators, interpreters, or 
contractors. In addition, Congress authorized the Departments of 
Defense (DOD) and State to jointly establish and operate a program to 
offer temporary employment to Iraqi SIV holders in the United States 
as translators, interpreters, or cultural awareness instructors. 
[Footnote 2] 

GAO previously reported on U.S. and international efforts to protect 
and assist Iraqi refugees in neighboring countries.[Footnote 3] In 
this report, we (1) provide information on the status of resettled 
Iraqis in the United States and the initial challenges they face, (2) 
review the benefits afforded Iraqi refugees and SIV holders, and (3) 
review the challenges Iraqi refugees and SIV holders face in obtaining 
employment with the federal government. Due to broad congressional and 
national interest in the U.S. engagement in Iraq, this work was 
conducted under the Comptroller General's authority to conduct 
evaluations on his own initiative. The late Senator Edward Kennedy, 
former chairman of the Senate Committee on Health, Education, Labor, 
and Pensions, also requested that GAO conduct this work. 

To address our objectives, we collected and analyzed relevant laws, 
regulations, and agency policies on Iraqi refugees and SIV holders 
resettling in the United States and the benefits afforded them. We 
also interviewed officials from State's Bureaus of Population, 
Refugees, and Migration (PRM) and Consular Affairs; the Department of 
Homeland Security's (DHS) U.S. Citizenship and Immigration Services 
(USCIS) and Customs and Border Protection (CBP); and the Department of 
Health and Human Services' (HHS) Office of Refugee Resettlement (ORR). 
We also interviewed representatives from 10 resettlement agencies that 
work with PRM and ORR to provide benefits and services to refugees and 
SIV holders. In addition, we analyzed relevant laws, regulations, 
executive orders, and agency policies on U.S. government employment 
and personnel security requirements. We interviewed officials from the 
Office of Personnel Management (OPM) regarding requirements for U.S. 
government employment. We also interviewed program, human resource, 
and security officials from five key agencies--DOD, State, DHS, the 
Department of Justice (DOJ), and the U.S. Agency for International 
Development (USAID)--regarding their employment and personnel security 
requirements for positions in the United States. We chose these 
agencies because they have national security missions, ongoing 
programs in Iraq, and need for personnel with Arabic language skills. 
We focused on employment in the United States because generally Iraqi 
refugees and SIV holders who want to apply for U.S. citizenship must 
reside in the United States for a certain period of time. In addition, 
refugees' ability to apply for permanent resident status[Footnote 4] 
could be delayed if they travel overseas.[Footnote 5] We did not 
develop an inventory of the agencies' needs for Arabic language skills 
or Iraqi expertise. The majority of our audit work was completed prior 
to the December 2009 passage of the fiscal year 2010 Department of 
Defense Appropriations Act,[Footnote 6] which changed Iraqi SIV 
holders' eligibility for public benefits, and the fiscal year 2010 
Consolidated Appropriations Act,[Footnote 7] which made changes to a 
long standing restriction on the use of appropriated funds to employ 
noncitizens by the federal government in the United States. We updated 
our report to reflect these changes, as appropriate. A detailed 
description of our scope and methodology is included in appendix I. 

We conducted our work from July 2009 to March 2010 in accordance with 
all sections of GAO's Quality Assurance Framework that are relevant to 
our objectives. The framework requires that we plan and perform the 
engagement to obtain sufficient and appropriate evidence to meet our 
stated objectives and to discuss any limitations in our work. We 
believe that the information and data obtained, and the analysis 
conducted, provide a reasonable basis for any findings and conclusions. 

Background: 

According to the International Organization for Migration, the 
February 2006 bombing of the Al-Askari Mosque in Samara triggered 
sectarian violence, which increased the number of displaced Iraqis. 
Although military operations, crime, and general insecurity remained 
factors, sectarian violence became the primary driver for population 
displacement. Many Iraqis fled their country and immigrated to 
neighboring countries, particularly to Syria and Jordan. 

According to United Nations High Commissioner for Refugees (UNHCR), 
the 1951 United Nations Convention Relating to the Status of Refugees 
and its 1967 Protocol provide the foundation for modern refugee 
protection. According to the Convention, a refugee is someone who, 
"owing to a well-founded fear of being persecuted for reasons of race, 
religion, nationality, membership of a particular social group, or 
political opinion, is outside the country of his nationality, and is 
unable or, owing to such fear, is unwilling to avail himself of the 
protection of that country.…" UNHCR is mandated to find solutions to 
the plight of refugees. According to UNHCR, three solutions are 
available: 

* First, voluntary repatriation is the preferred solution for the 
majority of refugees. Most refugees prefer to return home as soon as 
circumstances permit (generally when a conflict has ended and a degree 
of stability has been restored). UNHCR promotes, supports, and 
facilitates voluntary repatriation as the best solution for displaced 
people, provided it is safe and reintegration is viable. 

* Second, UNHCR may help refugees integrate and settle in the 
"asylum," or host, country where they reside as refugees. Some 
refugees cannot or are unwilling to return because they would face 
persecution. According to UNHCR, relatively few host countries allow 
refugees to settle. 

* Third, UNHCR may assist refugees in permanently resettling in third 
countries. According to UNHCR, only a small number of nations take 
part in UNHCR resettlement programs worldwide and accept annual quotas 
of refugees. According to State, historically, less than 1 percent of 
registered refugees are resettled in third countries. Of the Iraqis 
resettling in third countries in 2009, UNHCR referred 75 percent 
(about 62,000) for resettlement in the United States.[Footnote 8] 

This report focuses on the third solution--those Iraqis resettled in 
the United States. When Iraqi refugees and SIV holders arrive in the 
United States, they have access to federal-and state-funded assistance 
[Footnote 9] to help them reach self-sufficiency in their new 
communities. State has primary responsibility for funding and 
administering initial reception and placement benefits for refugees 
and SIV holders upon their arrival in the United States. State's PRM 
has cooperative agreements with 10 resettlement agencies that 
coordinate with local affiliates across the country to make referrals 
and to administer resettlement services and other assistance. HHS's 
ORR administers cash and medical assistance, and employment and other 
social services through the states and resettlement agencies that 
coordinate services for refugees across the country. 

Regarding federal government employment, individuals are generally 
employed in the competitive, excepted, or Senior Executive Service. 
When hiring for competitive service positions, agencies use a 
competitive examination process set forth in Title 5 of the U.S. Code. 
Some agencies have excepted service positions for which they are not 
required to follow OPM's competitive examination process; instead, the 
agencies have the authority to establish their own hiring procedures. 
When agencies hire for career senior executive positions--top-level 
policy, supervisory, and managerial positions--the individual's 
executive and managerial qualifications must be reviewed and approved 
by an OPM-administered Senior Executive Service Qualifications Review 
Board. According to OPM data, the majority of civil service employees 
in the United States are in the competitive service. 

Iraqi Refugees and SIV Holders Arrive under Three Different U.S. 
Programs and Face Challenges upon Arrival in the United States: 

Between fiscal years 2006 and 2009, the United States has admitted 
34,470 Iraqi refugees under State's Refugee Admissions Program. Since 
fiscal year 2007, State has issued 4,634 SIVs to Iraqis.[Footnote 10] 
Resettlement agencies, working under cooperative agreements with 
State, have resettled Iraqis throughout the United States, but 
particularly in California and Michigan. These agencies have found 
that Iraqis arrive in the United States with high levels of trauma, 
injury, and illness, which contribute to the challenges they face in 
resettling in a new country. In addition, entry-level jobs normally 
available to refugees are scarce and more competitive in the current 
economic downturn. 

Iraqi Refugees and SIV Holders Arrive under One of Three Different 
U.S. Programs: 

State's PRM manages the U.S. Refugee Admissions Program (USRAP)--the 
U.S. government's program for accepting and processing refugee 
applications for resettlement in the United States. PRM's regional 
refugee coordinator accepts referrals from UNHCR, embassies, and 
certain nongovernmental organizations (NGO). Certain categories of 
Iraqis with U.S. affiliations do not need a referral and may apply 
directly for refugee consideration under a direct access program in 
Jordan, Egypt, and Iraq.[Footnote 11] Overseas processing entities 
(OPE), working under a cooperative agreement with State, prescreen the 
referrals and prepare application forms by collecting and verifying 
personal and family information, obtaining details of persecution or 
feared harm, and initiating security name checks. Once the OPE 
prescreens the case, it is provided to DHS's U.S. Citizenship and 
Immigration Services (USCIS), which makes periodic visits to the 
region to interview refugees and adjudicate their applications for 
resettlement in the United States. Once USCIS preliminarily approves 
cases, they are returned to the OPE, which continues processing 
medical screenings, sponsorship (i.e., the identification of the U.S.-
based resettlement agency that will provide initial resettlement 
benefits), travel arrangements, and cultural orientation, among other 
things. The cultural orientation, which is a voluntary course for all 
refugees over the age of 15, addresses essential topics related to 
processing, travel, and resettlement, such as the role of the 
resettlement agency, housing, employment, health, and money 
management. While the OPE coordinates outprocessing, PRM secures a 
sponsoring resettlement agency in the United States. From fiscal years 
2006 through 2009, the United States admitted 34,470 Iraqi refugees 
(see table 1). 

Table 1: Iraqi Refugee Admissions to the United States, Fiscal Years 
2006 through 2009: 

Fiscal year: 2006; 
Referred from UNHCR, embassies, and certain NGOs: 183; 
Applied through Direct Access Program: 0; 
Other: 19; 
Total: 202. 

Fiscal year: 2007; 
Referred from UNHCR, embassies, and certain NGOs: 1,592; 
Applied through Direct Access Program: 0; 
Other: 16; 
Total: 1,608. 

Fiscal year: 2008; 
Referred from UNHCR, embassies, and certain NGOs: 13,600; 
Applied through Direct Access Program: 187; 
Other: 35; 
Total: 13,822. 

Fiscal year: 2009; 
Referred from UNHCR, embassies, and certain NGOs: 15,758; 
Applied through Direct Access Program: 2,905; 
Other: 175; 
Total: 18,838. 

Fiscal year: Total; 
Referred from UNHCR, embassies, and certain NGOs: 31,133; 
Applied through Direct Access Program: 3,092; 
Other: 245; 
Total: 34,470. 

Source: State. 

Note: Other includes family members of persons lawfully admitted to 
the United States as refugees. 

[End of table] 

DHS and State's Bureau of Consular Affairs also have implemented two 
SIV programs, established by Congress, to further assist qualified 
Iraqis who worked for or on behalf of the U.S. government and who want 
to immigrate to the United States. Both programs cover the principal 
Iraqi applicants and their dependents. Iraqi SIV holders are admitted 
into the United States as lawful permanent residents. The first SIV 
program, established under section 1059 of the NDAA for fiscal year 
2006, targets Iraqi and Afghan translators and their dependents. 
[Footnote 12] The second SIV program, established under section 1244 
of the NDAA for fiscal year 2008, targets certain Iraqis who had been 
U.S. government employees, contractors, or subcontractors and their 
dependents. In January 2008, Congress authorized that up to 5,000 
Iraqis per year for the next 5 fiscal years, who had worked for or on 
behalf of the U.S. government in Iraq and had experienced or were 
experiencing an ongoing serious threat as a consequence, can receive 
SIVs.[Footnote 13] Some Iraqi refugees may also qualify for the SIV 
programs. 

To apply for special immigrant status, eligible Iraqis may file a 
petition, including a favorable recommendation from their U.S. 
civilian or military supervisor documenting their service. USCIS sends 
approved petitions to State's National Visa Center, which contacts 
applicants to set up an in-person interview at an embassy or a 
consulate. Consular officials interview applicants, review the 
submitted documents and security and medical clearances, and issue an 
immigrant visa if candidates satisfy all criteria. At the end of 
fiscal year 2009, State had issued 2,389 SIVs to principal Iraqi 
applicants out of a maximum authorized 11,050 principal-applicant 
visas. Under the two programs, the United States issued 4,634 Iraqi 
SIVs from fiscal years 2007 through 2009 (see table 2). It is unclear 
how many Iraqis with SIVs have entered the United States. USCIS 
provided us with data on the number of Iraqi and Afghan SIV holders 
who were admitted into the United States as permanent residents (or 
green card holders) between fiscal years 2007 and 2009. Iraqi and 
Afghan SIVs are issued based on an applicant's nationality. USCIS 
provided us these data by applicants' country of birth, but could not 
provide the data by nationality. Therefore, we report only Iraqi SIV 
issuance data. 

Table 2: Special Immigrant Visas Issued to Iraqis, Fiscal Years 2007 
through 2009: 

Section 1059[A]: [Empty]; 
Section 1059[A]: [Empty]. 

Fiscal year: 2007; 
Principal applicants: Number authorized: 500; 
Principal applicants: Number issued: Section 1059[A]: 429; 
Dependents: Number issued: 383; 
Total issued: 812. 

Fiscal year: 2008; 
Principal applicants: Number authorized: 500; 
Principal applicants: Number issued: Section 1059[A]: 357; 
Dependents: Number issued: 350; 
Total issued: 707. 

Fiscal year: 2009; 
Principal applicants: Number authorized: 50; 
Principal applicants: Number issued: Section 1059[A]: 28; 
Dependents: Number issued: 59; 
Total issued: 87. 

Fiscal year: Total; 
Principal applicants: Number authorized: 1,050; 
Principal applicants: Number issued: Section 1059[A]: 814; 
Dependents: Number issued: 792; 
Total issued: 1,606. 

Fiscal year: 2008; 
Principal applicants: Number authorized: 5,000; 
Principal applicants: Number issued: Section 1244: 169; 
Dependents: Number issued: 125; 
Total issued: 294. 

Fiscal year: 2009; 
Principal applicants: Number authorized: 5,000; 
Principal applicants: Number issued: Section 1244: 1,406; 
Dependents: Number issued: 1,328; 
Total issued: 2,734. 

Fiscal year: Total; 
Principal applicants: Number authorized: 10,000; 
Principal applicants: Number issued: Section 1244: 1,575; 
Dependents: Number issued: 1,453; 
Total issued: 3,028. 

Fiscal year: Total; 
Principal applicants: Number authorized: 11,050; 
Principal applicants: Number issued: Section 1059 and Section 1244: 
2,389; 
Dependents: Number issued: 2,245; 
Total issued: 4,634. 

Source: State. 

Note: Issuance data do not indicate number of SIV holders who have 
been admitted into the United States. 

[A] The Section 1059 program targets Iraqi and Afghan translators and 
their dependents. These data are only for Iraqi SIV holders and do not 
include Afghan SIV holders. 

[End of table] 

Iraqi Refugees and SIV Holders Have Resettled Across the United States: 

Since fiscal year 2006, Iraqi refugees and SIV holders have resettled 
in communities across the United States. Placement decisions consider 
the location of an individual's family members, potential medical 
needs, and municipal and sponsoring agency capacity to accept and 
provide for refugees and SIV holders. The largest populations of 
recently resettled Iraqis are in California, Michigan, Texas, Arizona, 
Illinois, and Virginia (see figure 1 and appendix II for more 
information). 

Figure 1: Initial Resettlement, by State, of Iraqi Refugees and 
Special Immigrant Visa Holders, Fiscal Years 2006 through 2009: 

[Refer to PDF for image: U.S. map and associated data] 

State: Alabama: 
Combined refugees and SIV holders: 211. 

State: Alaska: 
Combined refugees and SIV holders: 113. 

State: Arizona: 
Combined refugees and SIV holders: 2,598. 

State: Arkansas: 
Combined refugees and SIV holders: 11. 

State: California: 
Combined refugees and SIV holders: 8,468. 

State: Colorado: 
Combined refugees and SIV holders: 496. 

State: Connecticut: 
Combined refugees and SIV holders: 296. 

State: Delaware: 
Combined refugees and SIV holders: 5. 

State: District of Columbia: 
Combined refugees and SIV holders: 76. 

State: Florida: 
Combined refugees and SIV holders: 504. 

State: Georgia: 
Combined refugees and SIV holders: 884. 

State: Hawaii: 
Combined refugees and SIV holders: 0. 

State: Idaho: 
Combined refugees and SIV holders: 570. 

State: Illinois: 
Combined refugees and SIV holders: 2,329. 

State: Indiana: 
Combined refugees and SIV holders: 79. 

State: Iowa: 
Combined refugees and SIV holders: 268. 

State: Kansas: 
Combined refugees and SIV holders: 136. 

State: Kentucky: 
Combined refugees and SIV holders: 611. 

State: Louisiana: 
Combined refugees and SIV holders: 125. 

State: Maine: 
Combined refugees and SIV holders: 54. 

State: Maryland: 
Combined refugees and SIV holders: 401. 

State: Massachusetts: 
Combined refugees and SIV holders: 954. 

State: Michigan: 
Combined refugees and SIV holders: 5,546. 

State: Minnesota: 
Combined refugees and SIV holders: 157. 

State: Mississippi: 
Combined refugees and SIV holders: 12. 

State: Missouri: 
Combined refugees and SIV holders: 618. 

State: Montana: 
Combined refugees and SIV holders: 7. 

State: Nebraska: 
Combined refugees and SIV holders: 123. 

State: Nevada: 
Combined refugees and SIV holders: 219. 

State: New Hampshire: 
Combined refugees and SIV holders: 149. 

State: New Jersey: 
Combined refugees and SIV holders: 238. 

State: New Mexico: 
Combined refugees and SIV holders: 143. 

State: New York: 
Combined refugees and SIV holders: 909. 

State: North Carolina: 
Combined refugees and SIV holders: 543. 

State: North Dakota: 
Combined refugees and SIV holders: 259. 

State: Ohio: 
Combined refugees and SIV holders: 615. 

State: Oklahoma: 
Combined refugees and SIV holders: 72. 

State: Oregon: 
Combined refugees and SIV holders: 220. 

State: Pennsylvania: 
Combined refugees and SIV holders: 778. 

State: Rhode Island: 
Combined refugees and SIV holders: 73. 

State: South Carolina: 
Combined refugees and SIV holders: 93. 

State: South Dakota: 
Combined refugees and SIV holders: 113. 

State: Tennessee: 
Combined refugees and SIV holders: 697. 

State: Texas: 
Combined refugees and SIV holders: 2,977. 

State: Utah: 
Combined refugees and SIV holders: 491. 

State: Vermont: 
Combined refugees and SIV holders: 88. 

State: Virginia: 
Combined refugees and SIV holders: 1,319. 

State: Washington: 
Combined refugees and SIV holders: 626. 

State: West Virginia: 
Combined refugees and SIV holders: 16. 

State: Wisconsin: 
Combined refugees and SIV holders: 175. 

State: Wyoming: 
Combined refugees and SIV holders: 0. 

States with Highest Volume of Refugee and SIV Holder Arrivals: 
Virginia: 1,319; 
Illinois: 2,329; 
Arizona: 2,598; 
Texas: 2,977; 
Michigan: 5,546; 
California: 8,468. 

Source: GAO analysis of State PRM data. 

Note: Iraqi SIV data include only those 1,995 SIV holders (out of 
4,634 total issued visas) who signed up to receive PRM-funded 
resettlement and placement benefits. Arrival data are only for the 
state in which Iraqis were resettled as of their 30th day in the 
United States. 

[End of figure] 

Iraqi Refugees and SIV Holders Face Challenges Resettling in the 
United States: 

According to NGOs and resettlement agencies, the U.S. refugee 
resettlement program has been strained by a growing number of Iraqi 
and Afghan refugees and the economic downturn in the United States. In 
June 2009, the International Rescue Committee reported that the high 
levels of trauma, injury, and illness among Iraqi refugees contribute 
to the precarious nature of their resettlement.[Footnote 14] Moreover, 
unemployment and homelessness threaten Iraqi refugees and other 
populations recently resettled in the United States, according to NGOs 
and resettlement agencies. In October 2009, the Georgetown Law School 
reported that a Michigan resettlement office received funding in 2008 
for 300 refugees, but served more than 1,200. Caseworkers, dealing 
with an average of 120 cases at a time--up from 30 the year before--
could not provide what they considered sufficient employment services. 
[Footnote 15] According to the International Rescue Committee report 
and resettlement agency officials we interviewed, some Iraqi refugees 
face eviction because they cannot pay their rent. 

The present economic downturn has made jobs normally available to 
refugees, such as entry-level jobs with limited English proficiency, 
scarce and more competitive. An ORR official stated that, before the 
current economic recession, refugees could regularly secure such jobs, 
but since the recession these positions are generally not available. 
Most of the resettlement agencies stated that it is taking longer than 
usual--often as long as 6 months, and in some cases, 9 to 10 months-- 
for incoming refugees to find employment. U.S. officials and 
resettlement agencies stated that without jobs, some refugees are 
unable to get by on the levels of assistance afforded them by the U.S. 
refugee resettlement program. 

Iraqi refugees, in particular, have faced difficulties finding work 
despite their relatively high levels of education, according to PRM, 
ORR, and USCIS officials, and representatives from the resettlement 
agencies. According to an ORR official and resettlement agency 
officials, the U.S. resettlement program does not take into account 
refugees' prior work experience and education in job placements. 
Rather, the focus of the program is on securing early employment for 
refugees. PRM data indicate that many Iraqi refugees who were 
resettled in the United States in fiscal years 2007 through 2009 
reported having some secondary education[Footnote 16]. PRM, ORR, and 
the resettlement agencies reported that educated Iraqis are struggling 
to find entry-level employment in the United States, much less 
employment in their professional field of work. For example, we 
interviewed three Iraqi refugees about their experience searching for 
employment in the United States. Two had worked for the U.S. 
government in Iraq, and one was unable to find an entry-level position 
requiring no formal education. This individual estimated that he had 
applied for more than 30 low-skill jobs, such as for a busboy and 
cleaner, before his former U.S. supervisor in Iraq helped him find a 
job. 

As of December 2009, Iraqi SIV Holders Are Eligible for Resettlement 
Assistance and Public Benefits to the Same Extent as Refugees: 

Iraqi refugees and SIV holders are eligible for PRM-funded basic needs 
support and services upon arrival in the United States. In addition, 
qualified Iraqi refugees and--as a result of December 2009 
legislation--qualified Iraqi SIV holders can receive certain 
assistance generally for up to 7 years through public benefits 
programs. Prior to December 19, 2009, Iraqi SIV holders' eligibility 
for public benefits generally ceased after 8 months. Both groups can 
receive up to 8 months of ORR-funded cash and medical assistance. 

According to PRM, its assistance typically lasts for 30 days; however, 
support may continue for up to 90 days if basic needs have not been 
met. All refugees automatically receive this assistance, which 
includes travel arrangements to their assigned resettlement location, 
basic housing, food allowances, school enrollments, and referrals for 
medical needs, through the resettlement agencies. As of January 1, 
2010, PRM provides the resettlement agencies $1,800 per refugee to 
cover the direct and administrative costs of the assistance. Prior to 
January 1, 2010, PRM provided resettlement agencies $900 per refugee. 
Iraqi SIV holders do not automatically receive these benefits; they 
must sign up to receive them within 10 days of receiving their visas. 
SIV holders who do not accept PRM benefits make their own travel 
arrangements and may resettle anywhere in the United States. According 
to PRM data, 1,995 SIV holders (out of 4,634 total issued visas for 
these years) have participated in the PRM program since 2007, when 
Iraqi SIV holders were first authorized to access these benefits. 

Qualified Iraqi refugees and, as of December 19, 2009, qualified Iraqi 
SIV holders may be eligible for federal public benefit programs, 
including Temporary Assistance for Needy Families (TANF), Medicaid and 
State Children's Health Insurance Program (SCHIP), Supplemental 
Security Income (SSI), and Supplemental Nutrition Assistance Program 
(SNAP, formerly the Food Stamp Program),[Footnote 17] for generally up 
to 7 years, depending on the program and the state.[Footnote 18] 
Permanent residents (such as Iraqi SIV holders) are generally barred 
from receiving certain public benefits for their first 5 years in the 
United States.[Footnote 19] However, in 2007, Congress passed 
legislation establishing that Iraqi SIV holders could receive public 
benefits for up to 6 months.[Footnote 20] In 2008, Congress extended 
their allowance to 8 months.[Footnote 21] The DOD Appropriations Act 
for fiscal year 2010 included a provision which allows Iraqi SIV 
holders to be eligible for public benefits to the same extent, and for 
the same period of time, as refugees. Relevant agencies are in the 
process of issuing guidance to further define the application of this 
provision to Iraqi SIV holders. 

In addition, ORR funds social services, for which Iraqi refugees and 
SIV holders may be eligible, for up to 5 years. ORR social services, 
which include job preparation, English language classes, and 
assistance with job interviews, do not have income requirements and 
are designed to find refugees employment within 1 year of enrollment. 
Figure 2 provides information on the types of resettlement assistance 
available to qualified Iraqi refugees and SIV holders, and the impact 
of the December 19, 2009, legislation on the duration of time for 
which they may be eligible for this assistance. 

Figure 2: Highlights of Resettlement Assistance Available to Iraqi 
Refugees and Special Immigrant Visa Holders in the United States: 

[Refer to PDF for image: illustrated table] 

Immediate Needs: 

Program: PRM reception and placement services; 
Description: Reception at airport; Transportation to resettlement 
destination; 
Benefits eligibility timeline (from date of arrival, in years): As of 
December 19, 2009: Iraqi refugees and SIV holders: Upon arrival; 
Benefits eligibility timeline (from date of arrival, in years): Prior 
to December 19, 2009: Iraqi SIV holders: Up to 3 months. 

Program: PRM reception and placement services; 
Description: Initial food, housing, and necessary clothing; Referrals 
to medical, training, and other social service programs; 
Benefits eligibility timeline (from date of arrival, in years): As of 
December 19, 2009: Iraqi refugees and SIV holders: Upon arrival; 
Benefits eligibility timeline (from date of arrival, in years): Prior 
to December 19, 2009: Iraqi SIV holders: Up to 3 months. 

Cash and medical assistance: 

Either: 
Program: TANF; 
Description: Time-limited cash assistance and other support services 
for qualifying low-income individuals with dependent children; 
Benefits eligibility timeline (from date of arrival, in years): As of 
December 19, 2009: Iraqi refugees and SIV holders: Up to 5 years; 
Benefits eligibility timeline (from date of arrival, in years): Prior 
to December 19, 2009: Iraqi SIV holders: Up to 8 months[A,B]. 

Or: 
Program: Refugee Cash Assistance (RCA); 
Description: Program similar to TANF for refugees and Iraqi SIV 
holders who do not qualify for TANF; 
Benefits eligibility timeline (from date of arrival, in years): As of 
December 19, 2009: Iraqi refugees and SIV holders: Up to 8 months; 
Benefits eligibility timeline (from date of arrival, in years): Prior 
to December 19, 2009: Iraqi SIV holders: Up to 8 months. 

Program: SSI; 
Description: Cash assistance to low-income individuals who are aged, 
blind, or disabled; 
Benefits eligibility timeline (from date of arrival, in years): As of 
December 19, 2009: Iraqi refugees and SIV holders: Up to 7 years[C]; 
Benefits eligibility timeline (from date of arrival, in years): Prior 
to December 19, 2009: Iraqi SIV holders: Up to 8 months[A,D]. 

Either: 
Program: Medicaid/SCHIP[E]; 
Description: Health care coverage for qualifying low-income 
individuals; 
Benefits eligibility timeline (from date of arrival, in years): As of 
December 19, 2009: Iraqi refugees and SIV holders: Up to 7 years; 
Benefits eligibility timeline (from date of arrival, in years): Prior 
to December 19, 2009: Iraqi SIV holders: Up to 8 months[A,B]. 

Or: 
Program: Refugee Medical Assistance (RMA); 
Description: Program similar to Medicaid for refugees and Iraqi SIV 
holders who do not qualify for Medicaid; 
Benefits eligibility timeline (from date of arrival, in years): As of 
December 19, 2009: Iraqi refugees and SIV holders: Up to 8 months; 
Benefits eligibility timeline (from date of arrival, in years): Prior 
to December 19, 2009: Iraqi SIV holders: Up to 8 months. 

Social and employment services: 

Program: ORR social services; 
Description: Emphasis on getting refugees early employment, including 
employment preparation and job placement and retention services; 
Benefits eligibility timeline (from date of arrival, in years): As of 
December 19, 2009: Iraqi refugees and SIV holders: Up to 5 years[F]; 
Benefits eligibility timeline (from date of arrival, in years): Prior 
to December 19, 2009: Iraqi SIV holders: Up to 8 months. 

Other benefits: 

Program: SNAP, formerly Food Stamp Program; 
Description: Food assistance for qualifying low-income individuals; 
Benefits eligibility timeline (from date of arrival, in years): As of 
December 19, 2009: Iraqi refugees and SIV holders: Eligible 
indefinitely; 
Benefits eligibility timeline (from date of arrival, in years): Prior 
to December 19, 2009: Iraqi SIV holders: Up to 8 months[A,G,H]. 

Source: GAO. 

Notes: 

Section 8120(a) of the DOD Appropriations Act for fiscal year 2010 
changed Iraqi SIV holders' eligibility, as of December 19, 2009. 
Relevant agencies are in the process of issuing guidance to further 
define the application of this provision to Iraqi SIV holders. 

This figure does not include all exceptions to the general eligibility 
time frames for refugees and SIV holders to receive federal programs. 
Rather, we included those exceptions most relevant to the Iraqi SIV 
holders and refugees who have entered the United States since the 
start of the Iraq war. 

In general, to receive benefits, Iraqi refugees and SIV holders must 
meet all financial and nonfinancial eligibility criteria of each 
program. However, PRM's reception and placement benefits and ORR's 
social services benefits are not subject to financial eligibility 
criteria. In addition, once refugees or permanent residents obtain 
citizenship, their eligibility for SSI, TANF, Medicaid, SCHIP, or SNAP 
is the same as the eligibility for any U.S. citizen. Their eligibility 
for ORR Social Services ends when they obtain citizenship. 

[A] Iraqi SIV holders in the United States who were veterans of, or on 
active duty in, the United States Military, or their spouse, unmarried 
dependent child, or unremarried surviving spouse, continued to be 
eligible beyond 8 months. 

[B] Iraqi SIV holders generally would have been re-eligible after 5 
years, though states are authorized to provide or deny Medicaid or 
TANF to most permanent residents after they completed the 5-year 
waiting period. 

[C] The SSI Extension for Elderly and Disabled Refugees Act (Pub. Law 
No. 110-328) provides additional benefits for up to 2 years, and in 
certain cases 3 years, for qualifying immigrant SSI recipients who 
meet certain requirements. This extension is effective from October 1, 
2008, until September 30, 2011, after which time noncitizens' 
eligibility reverts to 7 years. 

[D] Iraqi SIV holders would have needed to be in the United States for 
5 years and have been credited with 40 work quarters to be re-eligible 
for SSI benefits. 

[E] Both refugees and SIV holders are eligible for emergency Medicaid 
from the date of their arrival in the United States, if they otherwise 
meet the eligibility requirements for their state's Medicaid program. 

[F] ORR social services include citizenship and naturalization 
preparation services and referral and interpretation services, which 
may be offered beyond 5 years. 

[G] Children under the age of 18 continue to be eligible for this 
program beyond these time limits. 

[H] Iraqi SIV holders would have been re-eligible for this program 
after 5 years in the United States. 

[End of figure] 

As figure 2 also shows, Iraqi refugees and SIV holders who are not 
eligible for TANF or Medicaid may be eligible for ORR-funded Refugee 
Cash Assistance (RCA)[Footnote 22] and Refugee Medical Assistance 
(RMA) for up to 8 months.[Footnote 23] According to ORR, most Iraqi 
refugees and SIV holders who do not qualify for TANF or Medicaid are 
eligible for RCA and RMA. Refugee resettlement assistance programs, 
such as cash assistance, ensure that refugees become self-sufficient 
as quickly as possible after they arrive in the United States. To 
participate in RCA, qualifying refugees and SIV holders must register 
for employment services and generally accept the first job offered, 
unless they can show good cause for not accepting the position. 

Iraqi Refugees and SIV Holders Face Challenges in Obtaining U.S. 
Government Employment: 

Current requirements make it difficult for qualified Iraqi refugees 
and SIV holders to obtain U.S. government employment. Specifically, 
most federal jobs in the United States require U.S. citizenship and 
background investigations, and Arabic language positions often require 
security clearances, which noncitizens cannot obtain. Over the course 
of our work, we identified two institutes at DOD and State that have 
some flexibility in hiring noncitizens for U.S. positions. Finally, 
DOD and State have not implemented a program intended to employ SIV 
holders under authority granted in 2009 legislation. 

Most Federal Positions in the United States Require U.S. Citizenship 
and Background Investigations; Most Arabic Positions Also Require a 
Security Clearance: 

U.S. government hiring requirements limit the extent to which 
noncitizens--including Iraqi refugees and SIV holders--can be employed 
in federal government positions in the United States. Iraqi refugees 
and SIV holders seeking federal government employment also face 
challenges posed by requirements for background investigations, and, 
for certain positions, security clearances. 

First, U.S. government agencies are restricted from employing 
noncitizens in competitive service positions.[Footnote 24] For 
example, USCIS reported that it may employ only U.S. citizens and 
nationals as Arabic language specialists because the positions are in 
the competitive service. Under a provision passed in the fiscal year 
2010 Consolidated Appropriations Act, agencies can use appropriated 
funds to employ qualifying permanent residents and refugees seeking 
U.S. citizenship in the excepted service or the Senior Executive 
Service.[Footnote 25] Second, a particular agency may have specific 
legislation that prohibits that agency from employing noncitizens in 
certain positions. For example, State may employ only U.S. citizens in 
the Foreign Service,[Footnote 26] including its overseas positions 
that require Arabic.[Footnote 27] Similarly, DHS's Transportation 
Security Administration may only employ U.S. citizens as 
Transportation Security Officers.[Footnote 28] 

According to OPM officials, it is difficult to complete background 
investigations, which are required for all U.S. government 
employees,[Footnote 29] on Iraqi refugees and SIV holders. For 
example, it is difficult to obtain the information necessary to verify 
Iraqi refugees' or SIV holders' employment history and other 
information required for the investigation.[Footnote 30] In addition, 
OPM officials stated that the background checks used to hire Iraqis as 
part of the U.S. mission in Iraq are not sufficient to substitute for 
the background investigation required for civil service employment in 
the United States. 

In addition, some U.S. government positions may also require security 
clearances to ensure that national security information is entrusted 
only to those who have proven reliability and loyalty to the nation; 
however, noncitizens cannot obtain security clearances.[Footnote 31] 
Four of the five agencies we reviewed reported that security 
clearances are required for most or all of their positions that 
require or prefer knowledge of Arabic or Iraq; USAID requires security 
clearances for all direct-hire positions. For example, DOD, DHS, and 
DOJ have intelligence positions that may require Arabic, but all such 
positions require a security clearance. Similarly, USAID officials 
said that, while they have a preference for persons who speak Arabic 
or have knowledge of Iraq, all civil service and all Foreign Service 
positions at USAID require security clearances. In addition, officials 
in the Human Rights Violators and War Crimes Unit in DHS's 
Immigrations and Customs Enforcement reported that, as of September 
2009, there were 20 open investigations that would benefit from Arabic 
language skills. However, all staff in the unit must have security 
clearances. 

DOD and State Have Some Flexibility to Hire Noncitizens for Positions 
in the United States: 

Certain federal positions in the United States at DOD and State are 
open to noncitizens, including Iraqi refugees and SIV holders. 
Specifically, as of November 6, 2009, DOD's Defense Language Institute 
(DLI) reported having 501 Arabic positions--including 32 open 
positions; all were available to noncitizens. Similarly, all 21 Arabic 
positions at State's Foreign Service Institute (FSI) are available to 
noncitizens, according to FSI (see table 3). Both DLI and FSI reported 
that they had previously hired foreign nationals to fill these types 
of positions. 

Table 3: Arabic Language Positions in the United States at DOD and 
State for Eligible Noncitizens, as of November 6, 2009: 

U.S. citizens: 
DLI Arabic positions: 275; 
FSI Arabic positions: 14. 

Noncitizens: 
DLI Arabic positions: 194; 
FSI Arabic positions: 7. 

Open positions: 
DLI Arabic positions: 32; 
FSI Arabic positions: 0. 

Total: 
DLI Arabic positions: 501; 
FSI Arabic positions: 21. 

Sources: DOD and State. 

Note: DOD data on the number of Arabic positions are based on the 
needs of the services and may be higher because they include 
supervisory staff who speak Arabic. Under DLI's Faculty Personnel 
System, supervisory staff may be moved into teaching positions. DLI 
and FSI determined the number of noncitizens by examining personnel 
records. 

[End of table] 

DLI and FSI can hire noncitizens, including Iraqi refugees and SIV 
holders, because language instructor positions at DLI and FSI are in 
the excepted service.[Footnote 32] Neither DLI nor FSI require 
security clearances because Arabic instructors do not require access 
to classified information, according to personnel officials at each 
institute. However, the positions do require background 
investigations. The positions may also require degrees or other 
educational backgrounds. 

DOD and State Have Not Used Their Statutory Authority to Employ Iraqi 
SIV Holders: 

In fiscal year 2009, the NDAA[Footnote 33] authorized DOD and State to 
jointly establish a temporary program to employ Iraqi SIV holders who 
have resettled in the United States as translators, interpreters, and 
cultural awareness instructors, but the agencies have not done so. 
According to OPM officials, DOD and State are authorized to hire Iraqi 
SIV holders as (1) temporary employees in excepted service positions, 
[Footnote 34] or (2) as personal services contractors, in which case 
they are not federal employees. In the committee report for the fiscal 
year 2010 NDAA,[Footnote 35] the House Armed Services Committee noted 
that Iraqi SIV holders' fluency in Arabic and knowledge of Iraq could 
be useful to the U.S. government. The committee also noted that many 
of the SIV holders worked on behalf of the United States and coalition 
forces for years, often at great risk to themselves or their families. 
Although DOD and State have needs for Arabic speakers, such as 
language instructors at DLI and FSI, DOD policy officials and State 
human resource officials stated that the agencies do not plan to 
establish this program to employ qualified Iraqi SIV holders to fill 
any unmet needs.[Footnote 36] A senior DOD policy official stated that 
DOD's human resources divisions did not have a need for additional 
Arabic speakers. Moreover, DOD and State officials stated that the 
departments did not receive any funding for the program. 

Agency Comments and Our Evaluation: 

DOD provided written comments on a draft of this report (see appendix 
III). State, DHS, and HHS provided technical comments, which we 
incorporated, as appropriate. We also sent a draft of this report to 
DOJ, USAID, and OPM, but they did not provide comments. 

DOD noted that it is meeting its need for translators, interpreters, 
and cultural awareness instructors with knowledge of Arabic or Iraq 
through existing hiring authorities. Therefore, as we state in our 
report, DOD has not identified a need to establish the temporary 
employment program for Iraqi SIV holders pursuant to the NDAA for 
fiscal year 2009. 

We are sending copies of this report to interested congressional 
committees and the Secretaries of State, Defense, Health and Human 
Services, and Homeland Security, as well as the Attorney General, the 
Administrator of USAID, and the Director of OPM. This report will also 
be available at no charge on the GAO Web site at [hyperlink, 
http://www.gao.gov]. If you or your staff have any questions about 
this report, please contact me at (202) 512-8979 or 
christoffj@gao.gov. Contact points for our Offices of Congressional 
Relations and Public Affairs may be found on the last page of this 
report. Key contributors to this report are listed in appendix IV. 

Signed by: 

Joseph A. Christoff: 
Director International Affairs and Trade: 

List of Committees: 

The Honorable Carl Levin: 
Chairman: 
The Honorable John McCain: 
Ranking Member: 
Committee on the Armed Services: 
United States Senate: 

The Honorable John F. Kerry: 
Chairman: 
The Honorable Richard G. Lugar: 
Ranking Member: 
Committee on Foreign Relations: 
United States Senate: 

The Honorable Joseph I. Lieberman: 
Chairman: 
The Honorable Susan M. Collins: 
Ranking Member: 
Committee on Homeland Security and Governmental Affairs: 
United States Senate: 

The Honorable John Cornyn: 
Ranking Member: 
Subcommittee on Immigration, Refugees, and Border Security: 
Committee on the Judiciary: 
United States Senate: 

The Honorable Ike Skelton: 
Chairman: 
The Honorable Howard McKeon: 
Ranking Member: 
Committee on Armed Services: 
House of Representatives: 

The Honorable Howard L. Berman: 
Chairman: 
The Honorable Ileana Ros-Lehtinen: 
Ranking Member: 
Committee on Foreign Affairs: 
House of Representatives: 

The Honorable Edolphus Towns: 
Chairman: 
The Honorable Darrell E. Issa: 
Ranking Member: 
Committee on Oversight and Government Reform: 
House of Representatives: 

The Honorable Zoe Lofgren: 
Chair: 
The Honorable Steve King: 
Ranking Member: 
Subcommittee on Immigration, Citizenship, Refugees, Border Security, 
and International Law: 
Committee on the Judiciary: 
House of Representatives: 

The Honorable John F. Tierney: 
Chairman: 
The Honorable Jeffrey Lane Flake: 
Ranking Member: 
Subcommittee on National Security and Foreign Affairs: 
Committee on Oversight and Government Reform: 
House of Representatives: 

[End of section] 

Appendix I: Objectives, Scope, and Methodology: 

In this report, we (1) provide information on the status of resettled 
Iraqis in the United States and the initial challenges they face, (2) 
review the benefits afforded to Iraqi refugees and special immigrant 
visa (SIV) holders, and (3) review the challenges faced by Iraqi 
refugees and SIV holders in obtaining employment with the federal 
government. 

To provide information on the number and location of resettled Iraqis 
and the initial challenges they face, we collected and analyzed 
documentation and interviewed officials from the Department of State's 
(State) Bureau of Population, Refugees, and Migration (PRM) and 
Consular Affairs; the Department of Health and Human Services' (HHS) 
Office of Refugee Resettlement (ORR); and the Department of Homeland 
Security's (DHS) U.S. Citizenship and Immigration Services (USCIS). In 
addition, we interviewed representatives from 10 resettlement agencies 
that work with PRM and ORR to provide benefits and services to Iraqi 
refugees and SIV holders: Church World Service; Episcopal Migration 
Ministries; Ethiopian Community Development Council; Hebrew Immigrant 
Aid Society; Iowa Department of Human Services, Bureau of Refugee 
Services; International Rescue Committee; Lutheran Immigration and 
Refugee Service; U.S. Committee for Refugees and Immigrants; U.S. 
Conference of Catholic Bishops; and World Relief. We also interviewed 
two nongovernmental organizations (NGO) that work with PRM and ORR to 
provide technical assistance to resettlement agencies on refugee 
employment and cultural adjustment issues. We reviewed reports issued 
by NGOs on the status of Iraqi refugees in the United States and the 
challenges they face in resettling in this country. We interviewed 
several Iraqi refugees about their resettlement experiences; their 
views or experiences may not be representative of other refugees or 
SIV holders. 

To determine the reliability of Consular Affairs data on Iraqi SIV 
issuances, we interviewed the Consular Affairs official who maintains 
this data. We determined that the data were sufficiently reliable to 
report on the number of Iraqi SIVs issued between fiscal years 2007 
and 2009. USCIS provided us with data on the number of Iraqi and 
Afghan SIV holders who were admitted into the United States as 
permanent residents (or green card holders) between fiscal years 2007 
and 2009. Iraqi and Afghan SIVs are issued based on an applicant's 
nationality. USCIS provided us these data by applicants' country of 
birth, but could not provide the data by nationality. As a result, we 
determined that these data were not sufficiently reliable to indicate 
how many Iraqi SIV holders were admitted into the United States during 
this time period. Therefore, we report only Iraqi SIV issuance data. 
To determine the reliability of PRM data on resettled Iraqi refugees 
and SIV holders, we interviewed the PRM officials who monitor and use 
these data. We determined that the data were sufficiently reliable to 
report on the number, locations, and reported general education levels 
of resettled Iraqis between fiscal years 2006 and 2009. 

To review the benefits afforded Iraqi refugees and SIV holders, we 
collected and analyzed relevant laws, regulations, and agency policies 
regarding federally and state-funded and administered refugee 
resettlement programs. We interviewed officials from PRM and ORR to 
determine the types of benefits available and their eligibility 
requirements. The majority of our audit work was completed prior to 
the December 2009 passage of the fiscal year 2010 Department of 
Defense (DOD) Appropriations Act, which changed Iraqi SIV holders' 
eligibility for public benefits. 

To review the challenges Iraqi refugees and SIV holders face in 
obtaining employment with the federal government, we analyzed relevant 
laws, regulations, executive orders, and agency policies on U.S. 
government employment and personnel security requirements. The 
majority of our audit work was completed prior to the December 2009 
passage of the fiscal year 2010 Consolidated Appropriations Act, which 
made changes to a long standing restriction on the use of appropriated 
funds to employ noncitizens by the federal government in the United 
States. We interviewed officials from the Office of Personnel 
Management (OPM) regarding requirements for U.S. government 
employment. We also interviewed program, human resource, and security 
officials from five key agencies--DOD (specifically, the Army), State, 
DHS, the Department of Justice, and the U.S. Agency for International 
Development (USAID)--regarding their employment and personnel security 
requirements positions in the United States. We chose these agencies 
because they have national security missions, ongoing programs in 
Iraq, and needs for personnel with Arabic language skills; we did not 
include the intelligence community. We focused on employment in the 
United States because generally Iraqi refugees and SIV holders who 
want to apply for U.S. citizenship must reside in the United States 
for a certain period of time. In addition, refugees' ability to apply 
for permanent resident status could be delayed if they travel 
overseas.[Footnote 37] We did not develop an inventory of the 
agencies' needs for Arabic language skills or Iraqi expertise. We also 
interviewed policy officials at DOD and State regarding the temporary 
program authorized by the fiscal year 2009 Duncan Hunter National 
Defense Authorization Act to employ Iraqi SIV holders who have 
resettled in the United States as translators, interpreters, and 
cultural awareness instructors at DOD and State. 

To assess the reliability of data on Arabic positions at DOD's Defense 
Language Institute (DLI) and State's Foreign Service Institute (FSI), 
we interviewed human resource officials at DLI, DOD's U.S. Army 
Training and Doctrine Command, and FSI. We determined that the data 
were sufficiently reliable to report on the number of Arabic positions 
at DLI and FSI. 

[End of section] 

Appendix II: Initial Resettlement, by State, of Iraqi Refugees and 
Special Immigrant Visa Holders, Fiscal Years 2006 through 2009: 

Table 4 provides data on the numbers of Iraqi refugees and special 
immigrant visa (SIV) holders who were resettled in the United States 
from fiscal years 2006 through 2009. The six states with the highest 
numbers in each category are noted with an asterisk. 

Table 4: Initial Resettlement, by State, of Iraqi Refugees and Special 
Immigrant Visa Holders, Fiscal Years 2006 through 2009: 

State: Alabama; 
Iraqi refugees: 204; 
Iraqi special immigrant visa holders: 7; 
Total: 211. 

State: Alaska; 
Iraqi refugees: 2; 
Iraqi special immigrant visa holders: 111*; 
Total: 113. 

State: Arizona; 
Iraqi refugees: 2,590*; 
Iraqi special immigrant visa holders: 8; 
Total: 2,598*. 

State: Arkansas; 
Iraqi refugees: 11; 
Iraqi special immigrant visa holders: 0; 
Total: 11. 

State: California; 
Iraqi refugees: 8,215*; 
Iraqi special immigrant visa holders: 253*; 
Total: 8,468*. 

State: Colorado; 
Iraqi refugees: 422; 
Iraqi special immigrant visa holders: 74; 
Total: 496. 

State: Connecticut; 
Iraqi refugees: 262; 
Iraqi special immigrant visa holders: 34; 
Total: 296. 

State: Delaware; 
Iraqi refugees: 5; 
Iraqi special immigrant visa holders: 0; 
Total: 5. 

State: District of Columbia; 
Iraqi refugees: 72; 
Iraqi special immigrant visa holders: 4; 
Total: 76. 

State: Florida; 
Iraqi refugees: 462; 
Iraqi special immigrant visa holders: 42; 
Total: 504. 

State: Georgia; 
Iraqi refugees: 856; 
Iraqi special immigrant visa holders: 28; 
Total: 884. 

State: Hawaii; 
Iraqi refugees: 0; 
Iraqi special immigrant visa holders: 0; 
Total: 0. 

State: Idaho; 
Iraqi refugees: 544; 
Iraqi special immigrant visa holders: 26; 
Total: 570. 

State: Illinois; 
Iraqi refugees: 2,244*; 
Iraqi special immigrant visa holders: 85; 
Total: 2,329*. 

State: Indiana; 
Iraqi refugees: 78; 
Iraqi special immigrant visa holders: 1; 
Total: 79. 

State: Iowa; 
Iraqi refugees: 255; 
Iraqi special immigrant visa holders: 13; 
Total: 268. 

State: Kansas; 
Iraqi refugees: 134; 
Iraqi special immigrant visa holders: 2; 
Total: 136. 

State: Kentucky; 
Iraqi refugees: 585; 
Iraqi special immigrant visa holders: 26; 
Total: 611. 

State: Louisiana; 
Iraqi refugees: 121; 
Iraqi special immigrant visa holders: 4; 
Total: 125. 

State: Maine; 
Iraqi refugees: 54; 
Iraqi special immigrant visa holders: 0; 
Total: 54. 

State: Maryland; 
Iraqi refugees: 362; 
Iraqi special immigrant visa holders: 39; 
Total: 401. 

State: Massachusetts; 
Iraqi refugees: 937; 
Iraqi special immigrant visa holders: 17; 
Total: 954. 

State: Michigan; 
Iraqi refugees: 5,416*; 
Iraqi special immigrant visa holders: 130*; 
Total: 5,546*. 

State: Minnesota; 
Iraqi refugees: 152; 
Iraqi special immigrant visa holders: 5; 
Total: 157. 

State: Mississippi; 
Iraqi refugees: 11; 
Iraqi special immigrant visa holders: 1; 
Total: 12. 

State: Missouri; 
Iraqi refugees: 560; 
Iraqi special immigrant visa holders: 58; 
Total: 618. 

State: Montana; 
Iraqi refugees: 7; 
Iraqi special immigrant visa holders: 0; 
Total: 7. 

State: Nebraska; 
Iraqi refugees: 91; 
Iraqi special immigrant visa holders: 32; 
Total: 123. 

State: Nevada; 
Iraqi refugees: 218; 
Iraqi special immigrant visa holders: 1; 
Total: 219. 

State: New Hampshire; 
Iraqi refugees: 149; 
Iraqi special immigrant visa holders: 0; 
Total: 149. 

State: New Jersey; 
Iraqi refugees: 229; 
Iraqi special immigrant visa holders: 9; 
Total: 238. 

State: New Mexico; 
Iraqi refugees: 139; 
Iraqi special immigrant visa holders: 4; 
Total: 143. 

State: New York; 
Iraqi refugees: 863; 
Iraqi special immigrant visa holders: 46; 
Total: 909. 

State: North Carolina; 
Iraqi refugees: 465; 
Iraqi special immigrant visa holders: 78; 
Total: 543. 

State: North Dakota; 
Iraqi refugees: 257; 
Iraqi special immigrant visa holders: 2; 
Total: 259. 

State: Ohio; 
Iraqi refugees: 579; 
Iraqi special immigrant visa holders: 36; 
Total: 615. 

State: Oklahoma; 
Iraqi refugees: 57; 
Iraqi special immigrant visa holders: 15; 
Total: 72. 

State: Oregon; 
Iraqi refugees: 215; 
Iraqi special immigrant visa holders: 5; 
Total: 220. 

State: Pennsylvania; 
Iraqi refugees: 725; 
Iraqi special immigrant visa holders: 53; 
Total: 778. 

State: Rhode Island; 
Iraqi refugees: 69; 
Iraqi special immigrant visa holders: 4; 
Total: 73. 

State: South Carolina; 
Iraqi refugees: 74; 
Iraqi special immigrant visa holders: 19; 
Total: 93. 

State: South Dakota; 
Iraqi refugees: 109; 
Iraqi special immigrant visa holders: 4; 
Total: 113. 

State: Tennessee; 
Iraqi refugees: 577; 
Iraqi special immigrant visa holders: 120*; 
Total: 697. 

State: Texas; 
Iraqi refugees: 2,595*; 
Iraqi special immigrant visa holders: 382*; 
Total: 2,977*. 

State: Utah; 
Iraqi refugees: 469; 
Iraqi special immigrant visa holders: 22; 
Total: 491. 

State: Vermont; 
Iraqi refugees: 86; 
Iraqi special immigrant visa holders: 2; 
Total: 88. 

State: Virginia; 
Iraqi refugees: 1,178*; 
Iraqi special immigrant visa holders: 141*; 
Total: 1,319*. 

State: Washington; 
Iraqi refugees: 581; 
Iraqi special immigrant visa holders: 45; 
Total: 626. 

State: West Virginia; 
Iraqi refugees: 14; 
Iraqi special immigrant visa holders: 2; 
Total: 16. 

State: Wisconsin; 
Iraqi refugees: 170; 
Iraqi special immigrant visa holders: 5; 
Total: 175. 

State: Wyoming; 
Iraqi refugees: 0; 
Iraqi special immigrant visa holders: 0; 
Total: 0. 

State: Total; 
Iraqi refugees: 34,470; 
Iraqi special immigrant visa holders: 1,995; 
Total: 36,465. 

Source: State. 

Note: SIV data include only those applicants who elected to receive 
Bureau of Population, Refugees, and Migration-funded resettlement and 
placement benefits. Arrival data are only for the state in which 
Iraqis were resettled as of their 30th day in the United States. 

[End of table] 

[End of section] 

Appendix III: Comments from the Department of Defense: 

Office Of The Under Secretary Of Defense: 
4000 Defense Pentagon: 
Washington, DC 20301-4000 

February 24, 2010: 

Mr. Joseph A. Christoff: 
Director, International Affairs and Trade: 
U.S. Government Accountability Office: 
441 G St., NW: 
Washington, D.C. 20548: 

Dear Mr. Christoff, 

This is the Department of Defense (DoD) response to the GAO Draft 
Report, GAO 10-274, 'Iraq: Iraqi Refugees and Special Immigrant Visa 
Holders Face Challenges Resettling in the United States and Obtaining 
U.S. Government Employment,' dated January 22, 2010 (GAO Code 320694). 
DoD recognizes the importance of resettling displaced Iraqis and 
supports efforts to integrate Iraqis with Arabic language skills into 
DoD positions for which they are eligible. The Department is currently 
meeting its needs for translators, interpreters, and cultural 
awareness instructors with knowledge of Arabic and or Iraqi culture 
through existing hiring authorities, and it has the ability to obtain 
support from Iraqi Special Immigrant Visa (SIV) holders through the 
use of temporary excepted service positions and personal services 
contracts. 

Therefore, the Department has not identified a need to develop a 
temporary employment program for Iraqi SIV holders pursuant to Section 
1235 of the National Defense Authorization Act for fiscal year 2009. 
If in the future the Department determines that such a program is 
needed, we will work with the State Department to determine how best 
to implement the authority granted in Section 1235. 

Sincerely, 

Signed by: 

Marilee Fitzgerald: 
Acting Deputy Under Secretary of Defense: 
Civilian Personnel Policy: 

[End of section] 

Appendix IV: GAO Contact and Staff Acknowledgments: 

GAO Contact: 

Joseph A. Christoff, (202) 512-8979, christoffj@gao.gov: 

Staff Acknowledgments: 

In addition to the contact named above, Tetsuo Miyabara, Assistant 
Director; Kathryn H. Bernet; Muriel Brown; Lynn Cothern; Martin de 
Alteriis; Etana Finkler; Corissa Kiyan; Mary Moutsos; Steven Putansu; 
and Lindsay Read made key contributions to this report. 

[End of section] 

Footnotes: 

[1] Under these programs, Iraqi nationals who worked for the U.S. 
government, as defined in each program's authorizing legislation, and 
met other conditions are eligible to receive special immigrant visas. 
See National Defense Authorization Act for Fiscal Year 2006, Pub. Law 
No. 109-163, Section 1059 and National Defense Authorization Act for 
Fiscal Year 2008, Pub. Law No. 110-181, Section 1244. 

[2] Pub. Law No. 110-417, Sec. 1235, Oct. 14, 2008. 

[3] GAO, Iraqi Refugee Assistance: Improvements Needed in Measuring 
Progress, Assessing Needs, Tracking Funds, and Developing an 
International Strategic Plan, [hyperlink, 
http://www.gao.gov/products/GAO-09-120] (Washington, D.C.: Apr. 21, 
2009). 

[4] Permanent residents are foreign nationals who are legally 
permitted to live permanently in the United States. They differ from 
other legal noncitizens, such as students, who are admitted into the 
country for a specific purpose and temporary period of time. 

[5] By law, refugees must apply for permanent resident status 1 year 
after entry into the United States. In addition, according to USCIS 
officials, if an Iraqi refugee returned to Iraq, it could raise issues 
during the inspection process when attempting to return to the United 
States, or as part of any application to adjust his/her immigration 
status or obtain U.S. citizenship, as it could signal that the 
individual's initial refugee claim may be fraudulent. 

[6] See Department of Defense Appropriations Act, 2010, Pub. Law No. 
111-118, Section 8120(a), Dec. 19, 2009. 

[7] See Consolidated Appropriations Act, 2010, Pub. Law No. 111-117, 
Division C, Title VII, Section 704, Dec. 16, 2009. 

[8] The number of UNHCR referrals is greater than the number of Iraqi 
refugees admitted to the United States in fiscal year 2009 because not 
all individuals referred by UNHCR are admitted to the United States, 
and because individuals referred in 2009 may be admitted in subsequent 
years. 

[9] Refugee and SIV families may be eligible for certain state-funded 
assistance programs, depending on their state's eligibility standards. 

[10] Issuance data do not indicate the number of Iraqi SIV holders who 
were admitted into the United States. 

[11] With the passage of a provision in the National Defense 
Authorization Act (NDAA) for Fiscal Year 2008, Pub. Law No. 110-181, 
certain refugees of special humanitarian concern could apply directly 
to USRAP. Such refugees include Iraqis who worked for the U.S. 
government, for a media organization or NGO headquartered in the 
United States, or for U.S. contractors, and their family members. 

[12] In January 2006, Congress authorized that up to 50 Iraqi or 
Afghan translators who worked directly with U.S. armed forces and met 
other conditions outlined in the law could receive SIVs during any 
fiscal year. Spouses and children of principal applicants are also 
eligible to receive SIVs, although these are not counted against the 
authorized cap. See NDAA for Fiscal Year 2006, Pub. Law No. 109-163, 
Section 1059. In June 2007, Congress amended the program, authorizing 
an increase in the limit to 500 SIVs each for fiscal years 2007 and 
2008 and expanding it to cover both translators and interpreters who 
worked directly for the U.S. armed forces and those who worked under 
chief of mission authority. In fiscal year 2009, the authorized number 
of SIVs for this program reverted to 50 annually. See An Act to 
Increase the Number of Iraqi and Afghani Translators and Interpreters 
Who May Be Admitted to the United States as Special Immigrants, and 
for Other Purposes, Pub. Law No. 110-36, June 15, 2007. 

[13] The applicants must meet other conditions outlined in the law. 
The law allows that, if the 5,000 ceiling is not met in any given 
year, the unused authorized amounts can be carried over to the 
following year. Spouses and children of principal applicants are also 
eligible to receive SIVs, although these are not counted against the 
5,000 cap. See NDAA for Fiscal Year 2008, Pub. Law No. 110-181, 
Section 1244. 

[14] International Rescue Committee, Iraqi Refugees in the United 
States: In Dire Straits (June 2009). 

[15] Georgetown Law School, Refugee Crisis in America: Iraqis and 
Their Resettlement Experience (October 2009). 

[16] Data are from October 1, 2006, through November 18, 2009. 

[17] HHS oversees TANF, Medicaid, and SCHIP. The Social Security 
Administration oversees SSI, and the U.S. Department of Agriculture 
oversees SNAP. 

[18] While TANF, Medicaid, SNAP, and SSI all serve low-income people, 
the financial eligibility thresholds, or income limits, for these 
benefits differ. Specifically, TANF's income limit varies by state. 
Medicaid income limits can also vary by state, as well as type of 
recipient. For example, the Medicaid income limits for children 
generally range from 100 to 185 percent of the federal poverty 
guidelines. The SNAP income limit is generally set at 130 percent of 
the federal poverty guidelines. In contrast, SSI's income limit is set 
at a fixed dollar amount. 

[19] See the Personal Responsibility and Work Opportunity 
Reconciliation Act of 1996, Pub. Law No. 104-193, Aug. 22, 1996. 

[20] Consolidated Appropriations Act, 2008, Pub. Law No. 110-161, Dec. 
26, 2007. 

[21] NDAA for Fiscal Year 2008, Pub. Law No. 110-181, Jan. 28, 2008. 

[22] According to ORR officials, adults without dependent children are 
the most frequent cases of individuals who do not qualify for TANF, 
but who do qualify for RCA. 

[23] RCA and RMA has decreased over time, according to ORR. As of 
April 1, 1981, refugees were eligible for 36 months of RCA and RMA 
benefits. Since October 1, 1991, refugees are limited to 8 months. 

[24] Under Executive Order No. 11935, only U.S. citizens and nationals 
may be employed in competitive service positions. 41 Fed. Reg. 37,301 
(1976). See also 5 C.F.R. sec. 7.3 and sec. 338.101. In rare cases, 
agencies can employ noncitizens in competitive service positions, when 
necessary, to promote the efficiency of the service--such as if the 
agency is unable to find qualified U.S. citizens to fill these 
positions. However, the agency must also be in compliance with other 
laws on federal hiring of noncitizens. 

[25] For many years, Congress has passed an annual ban on the use of 
appropriated funds for compensating federal employees working in the 
United States who are not U.S. citizens or nationals unless they met 
one of several exceptions. Under the Consolidated Appropriations Act, 
2010, Pub. Law No. 111-117, Division C, Title VII, Section 704, Dec. 
16, 2009, this general prohibition still applies, though there were 
changes in several of the exemptions. Under the 2010 provision, 
certain groups are now exempt, including: persons who are lawfully 
admitted for permanent residence and are seeking citizenship as 
outlined in 8 U.S.C. 1324b(a)(3)(B); and persons who are admitted as 
refugees under 8 U.S.C. 1157 or granted asylum under 8 U.S.C. 1158 and 
who have filed a declaration of intention to become lawful permanent 
residents and then citizens, when eligible. 

[26] 22 U.S.C. sec. 3941. 

[27] In 2008, 43 percent of Foreign Service officers in Arabic 
language-designated positions did not meet the language requirements 
of their positions (107 officers in 248 filled positions). See GAO, 
Department of State: Comprehensive Plan Needed to Address Persistent 
Foreign Language Shortfalls, [hyperlink, 
http://www.gao.gov/products/GAO-09-955] (Washington, D.C.: Sept. 17, 
2009). 

[28] 49 U.S.C. sec. 44935(e)(2)(A)(ii). 

[29] Executive Order No. 10450. 18 Fed. Reg. 2489 (1953). 

[30] The investigation must include a national agency check, including 
a check of the FBI's fingerprint files and written inquiries to 
appropriate local law enforcement agencies, former employers, 
references, and schools attended, according to the Executive Order. 

[31] Executive Order No. 12968. 60 Fed. Reg. 40,245 (1995). The 
Executive Order also lays out the provisions for Limited Access 
Authorizations, which are not security clearances, but which allow 
noncitizens limited and controlled access to specific classified 
information required by their position. An agency can grant a Limited 
Access Authorization only if the past 10 years of the individual's 
life can be investigated; additional investigative procedures can also 
be undertaken. 

[32] In addition, all DOD positions and State's language instructors, 
linguists, and other academic and training specialists are exempt from 
the ban against using appropriated funds to compensate noncitizens in 
federal government positions in the United States. See 10 U.S.C. sec. 
1584 and 22 U.S.C. sec. 4024(a)(4)(B). 

[33] Duncan Hunter National Defense Authorization Act for Fiscal Year 
2009, Pub. Law No. 110-417, Oct. 14, 2008, Sec. 1235. 

[34] According to State officials, State derives its authority to hire 
non-U.S. citizens from the Foreign Service Act. 

[35] Report of the Committee on Armed Services, House of 
Representatives, H.R. Rep. No. 111-166 (2009). 

[36] GAO has reported about foreign language needs at DOD and State. 
See GAO, Military Training: DOD Needs a Strategic Plan and Better 
Inventory and Requirements Data to Guide Development of Language 
Skills and Regional Proficiency, [hyperlink, 
http://www.gao.gov/products/GAO-09-568] (Washington, D.C.: June 19, 
2009); and [hyperlink, http://www.gao.gov/products/GAO-09-955]. In 
addition, GAO plans to issue reports in 2010 on DHS's foreign language 
requirements and on the supply, demand, capacity, and future need of 
foreign language expertise in the federal government. 

[37] By law, refugees must apply for permanent resident status 1 year 
after entry into the United States. In addition, according to USCIS 
officials, if an Iraqi refugee returned to Iraq, it could raise issues 
during the inspection process when attempting to return to the United 
States, or as part of any applications to adjust his/her immigration 
status or obtain U.S. citizenship, as it could signal that the 
individual's initial refugee claim may be fraudulent. 

[End of section] 

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