CITY of BUFFALO New Americans Study

CITY OF BUFFALO New Americans Study

A strategic action plan to advance immigrant and refugee integration and success

February 2016

Building a city Byron W. Brown of opportunity Mayor NEW AMERICANS STUDY

City of Buffalo

Byron W. Brown, Mayor

Elizabeth A. Ball, Deputy Mayor

Jessica M. Lazarin, Director, Office of New Americans

Buffalo Urban Renewal Agency

Brendan R. Mehaffy, Vice Chairman

William Parke, Project Manager

Lewis Bondor, Research Assistant

Shen-Hao Chang, Research Assistant

Study Team

Josef Nathanson, Urban Information Associates

Diane R. Bessel, Daemen College

Aaron Krolikowski, United Way of Buffalo & Erie County

Sarah Zamiello, Graduate Assistant

Special Contributors

Oswaldo Mestre, Division of Citizen Services

Lt. Steven Nichols, Buffalo Police Department MAYOR’S MESSAGE

Buffalo has always benefited from the contributions of recent arrivals. Between 2006 and 2013, the foreign-born population in Buffalo increased by 95 percent, and the most recent American Community Survey reports that the city is home to over 22,000 foreign-born residents. The New Americans Study was undertaken to ensure that the city remains an attractive destination for immigrants and refugees.

The study reflects a fundamental commitment to our newest residents and sends a strong message: we value and understand the contributions, and will work with our immigrant and refugee communities to address the unique challenges they face.

This effort has been guided by a tal- ented and committed Steering Com- mittee consisting of representatives from Ethnic Community-Based Or- ganizations, resettlement agencies, service providers, and neighborhood groups.

A consultant team prepared the report, based on information shared via focus groups with key immigrant Mayor Brown is joined by leaders of the Karen Society of Buffalo, communities, interviews with over Burmese Community Services, and Burmese Community Support 60 stakeholders, and reviews of best Center at the Karen Wrist Tying Ceremony in August 2015. practices from dozens of places.

As Buffalo continues to experience a significant building boom, with over $5.5 bil- lion in new economic development spurring increased investment and employment growth, it’s imperative that we nurture new sources of job creation by tapping into the potential that immigrants bring to our city.

The strategies outlined in this study are designed to attract and retain the wealth of talent that is arriving from other countries, facilitate the creation and expansion of economic opportunities, and ensure that the city continues to support its newest residents.

So let’s continue to work together and move forward. With the benefit of this study, I am confident we have a roadmap that recognizes Buffalo’s newest arrivals as essential and valued partners in its future.

1 WE BUILT THIS CITY

Buffalo has experienced waves of immigration throughout its history, since the first settlers began arriving from New England. Completion of the Erie Canal and railroads led to trade and commerce that initially at- tracted German and Irish immigrants; and as the city grew into an industrial center, Poles, Italians, and others came seeking employment. Between World Wars I and II, African-Americans started migrating here from the South, closely followed by Puerto Ricans.

Today the city continues to serve as a destination. Buffalo’s foreign-born population has been rising steadily, mainly due to the 10,000 refugees who have been resettled here since 2001. New York State is the fourth largest recipient of refugees in the nation, and almost a third of these new arrivals settle in Erie County. Accord- ing to the federal Office of Refugee Resettlement, Buffalo is a “preferred community” that provides excellent opportunities for newcomers to achieve early employment and sustained economic independence. The region has also proven to be a magnet for international college students, ranking among the top 15 metro areas for students arriving with F-1 visas.

Changes are being felt in many ways. Buffalo Public Schools are now educating 4,300 English language learners, twice as many as they did just seven years ago. Refugees and immigrants are reshaping city neighborhoods, renovating houses, opening stores and restaurants, and adding new vitality. They offer the potential for positive growth and change, but face many challenges upon arrival – learning English, securing safe and affordable housing, and obtaining employment.

The city has a key role to play in assisting refugees and other immigrants with these challenges, and this study represents one of many initiatives being undertaken to address those needs.

THE RESETTLEMENT EXPERIENCE

New arrivals come from a variety of circumstances: immigrants come by choice, while refugees have been forced to leave their homelands, and secondary migrants arrive in Buffalo after having initially settled some- where else. Because the majority of newcomers are currently refugees, this study largely focuses on their unique needs; yet all of these groups will benefit from the strategies that are being proposed.

The U.S. Department of State has cooperative agreements with nine agencies to resettle refugees. These agreements outline the services that resettlement agencies must provide to each refugee. All together, these agencies place refugees in about 190 communities across the nation. Each uses local affiliates to monitor the resources that are provided, such as interpreters who speak various languages, the size and features of housing, the availability of schools with special services, medical care, English language classes, and employment services.

The cooperative agreement requires the resettlement agency to meet refugees upon arrival in the United States. New arrivals are taken to their apartment, which has been supplied with appliances, basic furnishings, appropriate clothing, and food typical of the refugee’s culture. After settling in, refugees are assisted with applying for a Social Security card, enrolling children in school, learning where and how to shop, arranging medical appointments, and obtaining necessary services.

The Department of State’s Reception and Placement program provides resettlement agencies with a stipend to assist with meeting expenses during a refugee’s first three months. Most of these funds go towards rent, furnishings, food, and clothing; in addition to assisting with staff salaries, office space, and other related ex-

2 penses that are not donated or provided by volunteers. After the initial three months, the Office of Refugee Resettlement in the Department of Health and Human Services works with the states and other nongovern- mental organizations to provide longer-term cash and medical assistance, as well as language, employment, and social services.

Refugees receive employment authorization upon arrival and are encouraged to obtain jobs as soon as possible. Based on years of experience, the refugee resettlement program has found that newcomers learn English and begin to function comfortably much faster if they start work soon after arrival. Most refugees begin in entry-level jobs, even if they have high-level skills or education; although with time most are able to move ahead professionally and find both success and satisfaction.

Local Resettlement Agencies

During the past decade, the growing stream of refugees has been assisted by four local affiliate agencies: Catholic Charities of Buffalo, International Institute of Buffalo, Jewish Family Service of Buffalo and Erie County, and Journey’s End Refugee Services. These agencies provide all of the basic services required by the Department of State, and have developed a number of other key programs in response to unmet needs. In these challenging circumstances, refugees have consistently reported their satisfaction with the support they receive from these agencies.

Catholic Charities has provided services to immigrant and refugee populations since 1923, with the scope of the program adapting to changes in immigration policy and the needs of new arrivals. In addition to basic services, Catholic Charities also houses the Hospitality and Tourism Training Institute, a computer and technology lab, babysitting room, and library for use by refugees.

International Institute has been active since 1918. They have been instrumental in helping refugees to become qualified interpreters and translators, currently assisting governmental agencies and health, human service, and legal providers in over 90 languages. They also sponsor a Domestic Violence Victim Services program, and host the International Visitor Leadership Program to connect professionals and foster relationships across borders.

Jewish Family Service took the lead in helping to resettle refugees from the former Soviet Union in the 1980s. Today they provide a broad range of assistance to new arrivals from Burma, Iraq, Su- dan, and other strife-torn areas of the world. They also manage the WNY Center for Survivors of Torture in partnership with Journey’s End and UB Family Medicine.

Journey’s End serves over 3,000 refugees and immigrants each year, providing them with the tools they need to become successful and contributing community members. Their expanded services include a clothing ministry, academic coaching for youth enrolled in Buffalo Public Schools, alternatives to high-school and ESL programs, an urban farm program, and a micro-enterprise in- home daycare program.

Other Contributors

A number of local organizations assist resettlement agencies with these efforts, often by providing specialized services in health care, education, housing and employment. And as refugee populations grow over time, these communities often self-organize and begin to offer volunteer services to newly arrived members.

3 Local governments generally have a limited role in assisting refugees, as most services are funded at the federal, state, and county levels. For example, the federal government determines how many refugees will be ad- mitted and where they will be resettled, and supports the resettlement agencies that provide initial services. New York State has an Office for New Americans to assist immigrants and refugees with developing job skills or starting businesses, and provides substantial resources to local school districts. And the county ad- ministers the majority of the social service benefits that many refugees rely upon until they can become self- sufficient. Yet there remains a clear role for the city to play in making sure that new arrivals feel welcome in Buffalo, and encouraging them to become long-term residents.

CHARTING A PATH

To ensure that Buffalo remains a destination of choice, the city engaged Urban Information Associates of Baltimore to prepare an assessment of the issues faced by immigrants and refugees. The study team included members from Daemen College and the United Way of Buffalo & Erie County, who helped to lend a local perspective to the process.

The goal was to identify needs and develop policies to ease the transition for immigrants and refugees, and increase the city’s attractiveness to these groups. A data collection process was designed to engage a wide variety of community stakeholders, including representatives from government, immigrant and refugee organizations, non-profit agencies, health and human service providers, businesses, and local residents. The process consisted of the following four steps:

Data Analysis

In order to gain a better understanding of who the city’s newest residents are, the study team analyzed census data on the foreign-born population, reports on refugee resettlements, and enrollment figures for higher education institutions. This data is summarized in a working paper.

Listening Sessions

The study team then conducted focus groups, called “listening sessions,” around seven clusters of nationalities: Burundians, Congolese, Rwandans, and Sierra Leoneans; Bhutanese; Burmese; Iraqis; Somali-Bantus; Yemeni; and Puerto Ricans and other Latinos. These sessions allowed over 185 participants in 11 sessions to express their concerns regarding their arrival and resettlement experiences, and offer suggestions for improvements. The feedback from the listening sessions is summarized in a working paper.

Stakeholder Interviews

After the listening sessions, the study team conducted a series of confidential interviews with key stakeholders representing organizations serving immigrant and refugee populations. These interviews focused on assessing needs, barriers, strengths, and opportunities. Over 60 interviews were conducted with representatives from 42 organizations, each lasting between 20 minutes and an hour. Interviews continued until the study team felt that few new perspectives or recommendations were being added to the discussion. The input from these interviews is summarized in a working paper.

4 Research Review

The study team also examined more than 15 local and national studies on several topics identified during the listening sessions and stakeholder interviews – including health, public safety, language access, and community engagement. Information on over 25 community indicators and nearly 100 national, state, and local best practices was collected and assessed, with several briefly described in this report.

As a result of this outreach and research, the study team was able to provide a comprehensive picture of the needs and challenges faced by refugees and immigrants, and offer appropriate strategies for addressing them. At the conclusion of each step, the study team’s work was reviewed by a steering committee, which offered important feedback and tips to guide the process and strengthen the recommendations.

While this document represents the final refinement of the study, it is important to note that the city has already been moving forward to advance Buffalo’s capacity to welcome new arrivals. A key component of these efforts has been establishing an Office of New Americans in the city’s Law Department.

Mayor Brown has also led several other key initiatives, which include joining Welcoming America; becoming a partner in the Building Welcoming Communities Campaign; signing on to Cities United for Immigra- tion Action; and participating in an Immigration Summit hosted by New York City Mayor Bill de Blasio.

STRATEGIES

The findings of this study underscore the need for community leadership and strategic direction in addressing the concerns of immigrants and refugees. Mayor Brown has acted on this need by requesting funding and – with the unanimous support of Common Council – opening the Office of New Americans.

The creation of this office demonstrates the priority that Buffalo places on welcoming new arrivals. The city is prepared to engage with Ethnic Community-Based Organizations, non-profit agencies, educational institutions, foundations, faith and community groups, local businesses, and other stakeholders to implement these strategies, which are organized into the following categories:

Welcoming focuses on improving the initial experiences of immigrants and refugees related to the resettlement experience, acculturation, and community organization

Settling In addresses issues of housing, neighborhoods, and public safety

Strengthening describes the importance of social services, healthcare, education, and employment to providing a solid foundation from which to prosper

Moving Forward outlines actions that the city can take to further the integration of immigrants and refugees, improve access to existing city services, and develop initiatives where the city is uniquely positioned to make a difference

5 Welcoming

1. Enhance post-resettlement services BEST PRACTICE The initial resettlement period is just 90 days. NYS Office for New Americans Refugees have expressed a clear need for addi- The “New Americans Hotline” offered by the New York State tional support beyond this period. This sup- Office for New Americans is now connected to Buffalo’s 311 port includes assistance reading official corre- system. When a caller has questions about immigration assis- spondence; help navigating the community tance, they are now transferred to the “New Americans Hotline,” and securing services and resources; and the where questions can be answered and referrals to local service provision of interpretation assistance when providers made in over 200 languages. attending appointments. Building relationships among resettlement agencies, Ethnic Community-Based Organizations, existing community centers, human service agencies, and academic institutions can enhance post- resettlement services.

The Office of New Americans can identify cross- collaboration opportunities, encourage the development and adoption of state-of-the-art programming in Buffalo, and implement strategic models of integration that have helped empower refugee and immigrant communities on a local and national level.

2. Improve language access

To promote effective communication among government agencies and Limited English Proficient individuals, both the federal and state governments have issued executive orders concerning language access planning and implementation. Executive Order 13166 applies to all federal programs, while New York Executive Order 26 directs state agencies providing direct public services to offer language assistance services to LEP individuals. Buffalo is committed to helping monolingual and LEP individuals increase access to city services, programs, and timely information in languages other than English.

The Office of New Americans can work to implement a Language Access Plan, identify hiring opportunities for bi- lingual individuals, and extend language access resources to city departments that provide services to residents.

3. Promote information on essential services BEST PRACTICE Expanded Language Line Access Information on city services is transmitted by Buffalo’s 311 system offers “Language Line,” so callers can be resettlement agencies, websites, printed mate- served in their native language. This access has been extended rials, and word of mouth; but it generally has to the Traffic Violations Agency, and the city’s Office of New not been gathered and consolidated, and there Americans is working to expand it to other departments such as are no consistent guidelines regarding what Civil Service, Permit and Inspection Services, and the City Clerk. materials should be translated. As a result,

6 new arrivals face challenges in accessing key services, and are less likely to know if they BEST PRACTICE qualify for programs that could assist them Welcoming Center for New Pennsylvanians and their families. Philadelphia’s “Welcoming Center” offers a comprehensive range of services for immigrants, such as help with finding a job, The Office of New Americans can work with city starting a business, accessing legal advice, learning English, or departments, service providers, and Ethnic Commu- locating resources. The Center partners with the Office of Immi- nity-Based Organizations to create and promote an grants and Multicultural Affairs to focus on language access online portal that connects new arrivals with needed within city departments, including the use of “I SPEAK” lan- resources, translated into the most common foreign guage access cards. languages.

4. Facilitate cultural exchanges

Refugees report being harassed on the street and in public places, and perceive that they are often discriminated against in employment and other settings. Such challenges associated with acculturation can lead to increased family conflicts, and subsequent involvement with the law enforcement and court systems.

Cultural exchanges – where professionals such as child protection workers, police officers, and judges meet face-to-face with refugees to learn about their culture and explain American systems and expecta- tions – have proven effective at increasing understanding on both sides and addressing the challenges associated with adjusting to a new culture. Several local groups currently conduct training for health care, education, social work, and law enforcement professionals.

The Office of New Americans can support efforts to broaden cultural exchanges and develop a curricu- BEST PRACTICE lum to educate the general public about the benefits Family Court Collaborative of Buffalo’s growing diversity. These programs Erie County Family Court, the Universal School, the International could then be shared with local businesses, non- Institute of Buffalo, and the Muslim Public Affairs Council orga- profit and civic organizations, educational institu- nized the Family Court Collaborative to address issues of abuse tions, foundations, faith and community groups, and neglect cases among refugees and immigrants. It started at a local mosque with a training session in cultural competency and other stakeholders. for Child Protective Services case workers, social service agencies, and attorneys. Additional sessions have educated Iraqi and Somali leaders about the child protective service and public safety systems, increasing community awareness.

7 5. Encourage community engagement

Community engagement requires maintaining positive relationships with refugees and other newcomers throughout the year – whether celebrating with them on national holidays and ethnic festivals, acknowl- edging their triumphs, or providing comfort during times of grief and loss. Opportunities for residents to engage with refugees and other newcomers in meaningful ways should be promoted. This could include World Refugee Day in June, where the experiences and contributions of refugee groups are acknowl- edged; or an International Day at a school, where students are able to share their unique cultures through the arts, performance, and food.

The Office of New Americans can post a schedule of both local and national ethnic festivals and celebrations for Buffa- lo’s communities on its web site; and provide official proclamations and private communications noting special achievements within the city’s diverse communities.

6. Promote civic participation

Participation in civic institutions is an excellent way for refugees to interact with a broad range of residents, learn about local government, and successfully integrate into the larger community. Refugees are generally underrepresented in civic organizations: first-generation immigrants are only half as likely to participate as are second-generation immigrants. New arrivals can work with seniors, join parent-teacher organizations, and volunteer at a range of non -profits. By increasing their involvement, they BEST PRACTICE will build deeper ties to local communities Citizens’ Participation Academy and strengthen institutions, while these organizations gain a deeper appreciation of the Started in September 2006 by Mayor Brown, this program provides an interactive public forum for residents on the structure unique interests and concerns of immigrants and management of city government. Participants are joined by and refugees. elected and appointed officials to learn about economic development, community services, and public safety through a series The Office of New Americans can promote civic of 10 presentations, case studies, and site tours. Upon comple- participation by connecting government, block tion, graduates are encouraged to continue their community clubs, non-profits, schools, and other civic-minded involvement though a variety of volunteer opportunities. organizations to refugees, immigrants, and resettlement agencies.

Settling In

7. Expand resettlement into new neighborhoods

As the West Side housing market becomes increasingly saturated, there is a need to identify alternative locations for new arrivals. There has been growing interest among refugees in East Side neighborhoods, where rents are more affordable. Groups such as the Fillmore Corridor Neighborhood Coalition have already developed plans to incorporate refugees and immigrants into the community. These efforts offer the opportunity to approach resettlement in a more strategic manner, and to encourage both existing and new residents to become more invested in their neighborhoods through peer-to-peer engagement.

The Buffalo Urban Renewal Agency can provide technical support in developing neighborhood plans that address the needs of refugees and other new arrivals, and integrate these into broader community strategies.

8 8. Ensure adequate housing

Although resettlement agencies initially screen BEST PRACTICE and approve properties, many new arrivals Green and Healthy Homes Initiative subsequently move out, only to face other Aging and deteriorated housing, coupled with high poverty and challenges when they enter the housing mar- unemployment, can force families to live in homes that are un- ket. In most cases, refugees do not understand healthy, unsafe, and energy inefficient. GHHI is a public-private partnership that provides cost savings, develops career path- their rights and are more likely to be taken ways to green jobs, and produces stable neighborhoods by advantage of by landlords. They also may not increasing the quality of housing stock. GHHI coordinates fund- know where to turn for assistance with these ing sources and programs for weatherization, lead hazard abate- issues, or lack transportation or an interpreter ment, asthma control, and other health and safety interventions. to access this help. Landlords also face chal- Heart of the City Neighborhoods, the Community Foundation for Greater Buffalo, and Jericho Road Community Health Center lenges, as some tenants may need to be edu- lead a coalition of service providers that has provided compre- cated on issues such as food storage, trash and hensive services to almost 400 families to date. In recent years, waste disposal, weatherization, and fire safety. the program has expanded to include community health workers Keeping refugees in adequate housing – while with the language and cultural skills needed to reach out to the ensuring that the property is properly main- Burmese and Nepali communities. tained by the tenants –provides benefits to all.

The Buffalo Urban Renewal Agency can coordinate efforts among housing inspectors, non-profit providers, resettlement agencies, Ethnic Community-Based Organizations, and landlords to ensure that all are aware of property standards and how to work together to avoid landlord-tenant conflicts.

9. Promote business districts BEST PRACTICE Immigrant- and refugee-owned businesses Westminster Economic Development Initiative often create distinct commercial districts. The city has experienced this on Grant Street, WEDI helps immigrants and refugees develop and operate businesses by assisting with mentoring, micro-loans, and after- where large numbers of new arrivals have set- school education. In 2011, WEDI opened the West Side Bazaar tled. Yet these businesses typically draw cus- in a small Grant Street storefront, offering incubator space to six tomers from a very limited range. A marketing entrepreneurs from Indonesia, Peru, Rwanda, and South Sudan. strategy has helped the West Side Bazaar at- WEDI later acquired a larger building in the heart of the Grant- tract outsiders to sample ethnic cuisine and Ferry District, and expanded the Bazaar to accommodate 21 purchase goods from a variety of vendors. businesses. Over 15 of these have since graduated to their own spaces, but replacements have allowed the incubator to remain Similar efforts to draw customers to commer- a destination where shoppers can find handcrafted gifts, cloth- cial corridors featuring immigrant, African- ing, jewelry, and ethnic cuisines from around the world. American, and Latino businesses can help to stabilize these districts while strengthening the overall economy.

The Buffalo Urban Renewal Agency can provide technical assistance and marketing support to immigrant business owners and commercial districts, including enterprises owned by local African- Americans and Latinos; and help to identify additional sources of support and funding.

9 10. Encourage participation in recreational programs

The city and its non-profit partners operate recreational facilities in many neighborhoods, which are open to all residents. Efforts to develop programming that will attract refugees and other new arrivals should be pursued, to provide youth with healthy alternatives after school and during the summer. Programs such as Soccer Without Borders offer youth an opportunity to play a sport while also receiving training and tutoring in English, and promote civic engagement and interactions with other young people from various cultural groups. All of these recreational programs help to decrease risky behavior and provide a productive outlet for young refugees.

The Division of Parks & Recreation can work to increase participation in recreational programs among immigrant and refugee youth, and attempt to bring programs such as Soccer Without Borders to Buffalo.

11. Establish a community space

A consistent request from refugees is to devel- BEST PRACTICE op a multi-purpose space to house services for Westside Art Strategy Happenings their community. Representatives from Eth- The WASH Project at Westside Value Laundromat is a place nic Community-Based Organizations have where people can come to play music, practice art, read books, indicated that they would be able to assume learn languages, mingle with persons from other cultures, learn greater responsibility for providing assistance about a wide range of community services and cultural opportu- within their communities if such a facility nities, and wash clothing. were available.

The Office of New Americans can bring Ethnic Community-Based Organizations together with existing community center operators to explore opportunities to provide greater access to these facilities.

12. Engage with the Police Department

Increased trust between refugee communities and public safety officials is essential to building safe neighborhoods. Ensuring that police officers understand the needs and concerns of new arrivals will lead to stronger relationships and safer neighborhoods. Refugees are often hesitant to report crimes or help with investigations because they do not believe they will get the assistance they require. Some may have had bad experiences with corrupt officials in their native countries, and assume that all police are not trustworthy. Language barriers and a lack of understanding of police duties also limit meaningful engagement with police officers.

The Police Department, in coordination with the Office of New Americans, can implement a Language Access Plan and continue to facilitate regular interaction and joint initiatives among Ethnic Community-Based Organizations and police officials; and form partnerships that include community policing efforts. These should be coordinated with the cultural sensitivity training proposed in the Welcoming section.

10 Strengthening

13. Increase language access for health and human service providers

Despite federal and state laws requiring access to interpretation services and translated mate- BEST PRACTICE rials, not all health and human service provid- Jericho Road Community Health Center ers offer language assistance when rendering Jericho Road provides culturally-sensitive care for refugees and care, and few have written materials translat- immigrants, as well as a range of community services. Medical ed into high-demand languages. Providers care includes maternity and child health, adult care (including often cite the expense and difficulty securing diabetes care, mammograms, and programming for persons language services as the primary reason for with chronic needs), and behavioral health care. Interpreters are this. Identifying opportunities to increase the available to assist with all visits and staff are specifically trained in cultural competency. availability of interpreters and translation services would enable these organizations to provide higher quality care to refugees.

The Office of New Americans can engage Ethnic Community-Based Organizations, resettlement agencies, and educational institutions to identify potential volunteers; work to secure funding; and partner with successful efforts to improve health care outcomes.

14. Provide specialized training for school personnel

Students need caring, knowledgeable, and involved teachers and administrators to succeed. The Buffalo Public Schools provide a wide range of supports to all students, but relatively few are specifically tailored to refugees. These students face many challenges – including the use of language immersion; age-based placement; harassment and bullying from classmates; and the stress and anxiety associated with testing – and school staff must be made aware of the best ways to offer support. Teachers, counse- lors, and school administrators can all benefit BEST PRACTICE from learning more about these challenges, Hope Refugee Drop-In Center and the specific resources available to assist Deaf refugees are highly marginalized due to the lack of Ameri- refugees and their families. can Sign Language training classes. Without ASL, deaf refugees are unable to utilize ASL interpreters in school, medical settings, The Office of New Americans can broker partner- or court. A pilot class has been developed at the Hope Refugee ships among the Buffalo Public Schools, the Depart- Drop-In Center, with a volunteer ASL teacher who is a deaf immi- ment of Multilingual Education, and Ethnic Com- grant from Jamaica. Funding is being sought to hire an ASL teacher to provide language instruction equal to that of the munity-Based Organizations to support collabora- Buffalo Public Schools, and a mentor to help integrate deaf tive teaching models and provide appropriate train- refugees into the community. ing for school personnel.

11 15. Pursue opportunities for parental involvement

Schools strive to engage all parents, but many refugees need prompting to understand the role they are expected to play with regard to their child’s education. Parents may avoid engaging with teachers and administrators because they lack experience with formal education systems, have different cultural ex- pectations regarding the role of educators, or face language barriers. By increasing existing collaborations with resettlement agencies and Ethnic Community-Based Organizations, schools can expand opportunities to engage refugee parents, and bridge the language and trust gaps that often prevent them from reaching these families. Participating in these programs can also help parents serve as ambassadors within these communities, reaching out to provide important information and resources to other new arrivals.

The Office of New Americans can take on the role of mediator for school officials, the Department of Multilingual Education, and Ethnic Community-Based Organizations to discuss these issues and set up effective collaborations for immigrant, African-American, and Latino families.

16. Encourage participation in enrichment programs

Programs that provide educational experiences for younger students and build job skills for BEST PRACTICE older ones help to counter the disruption in Mayor’s Summer Youth Internship Program learning that occurs during summer and win- This program provides six weeks of employment and work- ter breaks. Students who do not participate in readiness training for at-risk youth between the ages of 14 and meaningful summer learning activities can 21. According to Mayor Brown, “It is critically important to en- lose over two months of grade level equivalen- sure that our young people have productive options for summer cy in math by fall, a loss that is typically much activities that prepare them for the jobs of the future.” Fifty openings were added in 2015, bringing the total number of greater for foreign-born students. Enrichment internships to 1,450. The program has provided over 20,000 programs improve educational outcomes, aid employment opportunities since 2006. in the development of language and cultural awareness, and reduce the likelihood that students will engage in risky behaviors.

The Office of New Americans can work to make the Mayor’s Summer Youth Internship Program more accessible to refugee youth and foster expansion of positive enrichment opportunities in the city for immigrant, African-American, and Latino youth.

17. Improve access to adult education

Over 20 percent of the city’s foreign-born adults have not obtained a high school diploma, which is more than double that of the native-born population. The Buffalo Public Schools Adult Education Division offers English as a Second Language and High School Equivalency programs to assist refugees with developing language skills and obtaining the educational credentials needed to secure stable employment. Access and awareness of both programs could be improved by partnering with Ethnic Community-Based Organizations that offer native language literacy classes to their members.

12 The Office of New Americans can assist the Buffalo Public Schools to research and secure support for measures that can improve outcomes of adult education programs; and also partner with the Adult Education Division to facilitate awareness of new and available adult education programs.

18. Develop effective vocational training

Refugees possessing a wide range of skills re- BEST PRACTICE quire a variety of services to successfully se- Placing Individuals in Vital Opportunity Training cure employment. Vocational training programs can provide pathways from English as a The PIVOT Program, operated by the Erie County Department of Second Language and High School Equiva- Social Services, assists Temporary Assistance to Needy Families recipients to secure employment by paying the full-time wages lency courses into jobs. Resettlement agencies of participants for six months during training. According to a and community colleges can work with em- report, approximately 400 TANF recipients had participated in ployers to increase access to training and im- PIVOT, and 85 percent were able to transition into a permanent prove programs for working adults – including job with their employer. refugees, African-Americans, and Latinos.

The Office of New Americans should help to link employers, working adults, and existing vocational training opportunities; and recommend new ones where gaps exist.

19. Expand employment programs

Subsidized employment programs such as the Placing Individuals in Vital Opportunity BEST PRACTICE Training Program can cover full-time wages Journey’s End Refugee Services for six months while the participant receives Journey’s End recently completed an innovative two-year project on-the-job training. Health and human service to help refugee mothers transition from being home-bound and providers and Ethnic Community-Based Or- dependent on government aid by offering culturally sensitive, ganizations can then work with employers to state-certified daycare programs in Arabic, Burmese, French, provide a range of on-site services to refugee Karen, Nepali, and Swahili. Journey’s End collaborated with the Erie County Department of Social Services to link recipients of employees, including assistance in navigating public benefits to daycare; and the Childcare Resource Network the transportation and service systems, and provided technical support to the program. help with official correspondence.

The Office of New Americans can promote awareness of and recruitment of eligible newcomers with service providers and Ethnic Community-Based Organizations.

20. Increase entrepreneurial efforts

Entrepreneurial refugees play an important role by creating jobs and contributing to the local economy. There are a number of success stories, yet resources to expand these efforts are limited – especially with respect to production activities.

13 The Office of New Americans can work with economic development officials to raise awareness of the untapped potential of entrepreneurial refugees.

21. Facilitate professional careers

Many refugees who worked as doctors, nurses, engineers, or other professionals in their home countries are now employed in jobs that do not utilize these skills. The pool of highly-skilled workers critical to the region’s economic growth can be expanded by facilitating the transition of refugees into professional careers.

The Office of New Americans can assist local colleges and universities to develop plans to help professionals prepare for certification exams and pursue necessary licenses.

22. Expand workforce opportunities

Organizations providing training and employment-related assistance do not currently have direct access to refugees; and issues with family care , language barriers and transportation must be addressed before refugees can take advantage of these opportunities. As a result, refugees lack connections to both high demand positions and training programs. Ex- panding the reach of workforce training and support programs are clearly needed for refu- BEST PRACTICE gees, as well as African-Americans and Lati- BAK USA nos. In the case of refugees, this can be BAK USA came to Buffalo via Start-Up NY, a program that reduc- achieved by expanding collaboration with es taxes for qualifying companies partnered with a participating resettlement agencies and Ethnic Community- college or university. The company opened its world headquar- Based Organizations. ters this year with 20 employees from Buffalo and a dozen other countries, kicking off its mission to bring affordable computer The Office of New Americans can support the devel- tablets and cellphones to developing nations in Africa. opment of services that bridge gaps between organizations that provide training and refugees experiencing issues that affect their ability to take advantage of assistance.

The Office of Strategic Planning can assist by study- ing current transportation options, with an empha- sis on reverse commuters and workers with non- standard hours; and identify improvements that will lead to better employment access for immigrants and other city residents without cars.

14 Moving Forward

23. Pass a welcoming city ordinance

The city should prepare and pass an ordinance affirming and expanding basic protections to BEST PRACTICE ensure that all refugees and immigrants are Welcoming America welcomed and provided access to city ser- The city has joined Welcoming America, a nationwide network of vices. Once approved, city employees will organizations and partners that works to promote an atmos- require training to understand and uphold the phere in which foreign- and native-born residents can find common ground and shared prosperity. Welcoming America also new rules. offers training and technical assistance designed to foster more The Office of New Americans can communicate positive local climates for refugees and other newcomers. these requirements to all employees, while those with significant interactions with refugees and other newcomers are given additional training to help them uphold the ordinance. ONA can also work with outside partners to develop training programs for police, fire, emergency responders, 311 call center personnel, and other city staff.

24. Provide cultural sensitivity training

To build a welcoming environment, the city must ensure that employees are equipped to interact with refugees and other newcomers, where cultural misunderstandings often make it difficult to communicate effectively. Cultural sensitivity training will help front-line staff understand how to welcome and assist persons from diverse back- BEST PRACTICE grounds, and in turn make refugees and other Buffalo Police Department newcomers more willing to engage with ser- The BPD has held regular community workshops with the Bhu- vice providers. tanese-Nepali, Karen, and Burmese populations to address issues surrounding emergency calls to 9-1-1, share safety tips, The Office of New Americans can identify depart- and more. Events have also been held at schools to educate ments and services for which cultural sensitivity students on how policing in the U.S. may differ from policing in training will have the greatest impact, enlist part- their home countries. BPD officers have also received training to ners to help develop the curriculum, and create a help them learn how to engage populations with varying degrees of English language proficiency, and to improve outreach coordi- schedule. Training should cover immigration status, nation. nationality, race, ethnicity, and religion, as well as the impacts of trauma, domestic violence, and child abuse.

25. Expand Office of New Americans capacity

The Office of New Americans is in a unique position, having been established at a time of great interest, need, and energy towards effecting positive change in the lives of refugees and other new arrivals. To realize its full potential, ONA will have to form multiple partnerships that will allow it to expand its capacity.

15 The Office of New Americans can continue to use the city’s Urban Fellows Internship Program, which provides college students with hands-on experience in public service; and seek other partnership opportunities that allow it to expand its capacity.

26. Establish a New Americans Advisory Council

The Office of New Americans would benefit from the ongoing advice and counsel of a group such as the New Americans Study Steering Committee, which helped to guide this effort. It is recommended that the mayor establish a New Americans Advisory Council to assist the ONA in meeting its objectives and identifying new opportunities and directions.

27. Apply best practices

Buffalo is not alone in receiving increasing numbers of refugees, or in recognizing their potential to con- tribute to its future prosperity. The city should continue to stay abreast of national and local efforts, as others bring forward valuable programming and practices that can be used to improve the experience of refugees in Buffalo.

16 Steering Committee

Flor Aber Hispanic Heritage Council Denise Beehag International Institute Ann Brittain Catholic Charities Tulsi Dhimal Bhutanese Community Group Maggie Gibbons Rediscover Riverside Paul Harris South Fillmore Block Club / Fillmore Corridor Neighborhood Coalition Eva Hassett International Institute Anna Ireland Jericho Road Community Health Center Benoit Kabayiza African Community Team Ali Kadhum Iraqi American Society / Buffalo Immigrant and Refugee Empowerment Coalition Ba Zan Lin Burmese Community Support Group Joshua Mansaray Sierra Leone Cultural Alliance Meghann Perry Journey’s End Refugee Services Khalid Qazi Muslim Public Affairs Council Saraphine Sargent African Community Team Marlene Schillinger Jewish Family Service Allan Sesay Sierra Leone Cultural Alliance Saladi Shebule Somali Bantu Community Organization Marcus Stanfill HEAL International

CITY OF BUFFALO New Americans Study

WORKING PAPER 1:

Demographic Profile

February 2016

Building a city Byron W. Brown of opportunity Mayor DEMOGRAPHIC PROFILE

Who are Buffalo’s New Americans? Where are they coming from? Where do they live? What are they like?

This Demographic Profile working paper draws on census data from the 2009/13 American Community Survey (ACS) to provide a comprehensive picture of the foreign-born population living in the city and its surrounding suburbs. It should be noted that "foreign-born" refers to anyone who was not a U.S. citizen at birth, and excludes persons who were born abroad to Ameri- can parents, or in Puerto Rico and other U.S. territories.

1 ORIGINS

Immigrants, refugees, and international students have always made important contributions to the city. But recent data indicates that these groups are having a significant impact on reversing the region’s long-term population decline. Buffalo has been losing population since peaking at 580,000 in 1950. The 2013 ACS counted 260,568 residents, down 11 percent from 2000. Yet during this same period, the city’s foreign-born population has grown by 70 percent, rising in absolute terms by almost 9,000.

Buffalo Population Change by Region of Birth

2000 2013 Change

Total population 292,648 260,568 (32,080) -11%

Native-born 279,792 238,753 (41,039) -15%

Foreign-born 12,856 21,815 8,959 70%

Asia 3,833 8,867 5,034 131%

Latin America 2,121 4,256 2,135 101%

Europe 4,554 3,873 (681) -15%

Africa 1,300 3,747 2,447 188%

Other 1,048 1,072 24 2%

These new arrivals come from all over the world – Asia, the Middle East, Africa, and the Caribbean – and are playing a critical role in reshaping and redefining the city and its neighborhoods. They offer the promise of long-term growth and vitality, if important challenges can be met.

In 2000, the greatest number of foreign-born Buffalonians had origins in Europe. By 2013, Asians made up the largest share, with a population that had more than doubled in size. Immigrants and refugees from Africa almost tripled in number, and Latin Americans doubled as well.

Buffalo Foreign-Born Population by Year Entered U.S.

Total Before 1990 1990 to 1999 2000 or later

All foreign-born 21,815 4,997 23% 4,129 19% 12,689 58%

Asia 8,867 926 10% 1,471 17% 6,470 73%

Latin America 4,256 1,700 40% 1,157 27% 1,399 33%

Europe 3,873 1,654 43% 932 24% 1,287 33%

Other 4,819 717 15% 569 12% 3,533 73%

2 Data indicates that almost 60 percent of the city’s foreign-born residents entered the country since 2000, but this varies significantly by region of birth. For Europeans and Latin Americans, a substantial number arrived before 1990. The pattern reverses for those coming from Asia and Africa (which is included in “Other”), where just under three-quarters of the residents have arrived since 2000.

Many recent arrivals come to Buffalo from countries torn by war and civil strife; from regimes that have been characterized by political, religious, or ethnic repression; and from areas that have faced natural disasters and economic disruptions. The largest group of foreign-born residents is from Burma; with significant numbers from Yemen, Bangladesh, and Russia. There are also over 1,100 persons from “Other East Africa,” which includes Burundi, Rwanda, and Somalia; and more than 500 from “Other South Central Asia,” which includes Bhutan.

Buffalo Foreign-Born Population by Nation of Origin

Asians comprise the largest group of foreign-born Buffalonians, and almost a quarter of all Asian residents are Burmese. While just over a third of all Asians live in the city, these shares vary widely among countries of origin. The city is home to over 75 percent of the newcomers from Burma, Thailand, and Bangladesh; but less than a quarter of those from India and China.

3 Erie County Asian Foreign-Born Population by Location

Buffalo Suburbs City share

Total 8,867 14,832 37%

Burma 2,057 79 96%

India 967 3,706 21%

Thailand 729 110 87%

Yemen 659 1,173 36%

China 654 2,496 21%

Bangladesh 570 185 75%

Iraq 342 257 57%

All other nations 2,889 6,826 30%

East African nations such as Burundi, Rwanda, and Somalia have been the main contributors to the city’s growth in immigrants and refugees. Among all foreign-born Africans, three-quarters live in Buffalo, including almost all of those arriving from East African nations such as Sudan, Kenya, and Eritrea. The lowest shares – which still exceed 50 percent – are among newcomers from Nigeria and the balance of African nations.

Erie County African Foreign-Born Population by Location

Buffalo Suburbs City share

Total 3,795 1,210 76%

East Africa 1,104 168 87%

Liberia 350 135 72%

Kenya 277 27 91%

Ethiopia 247 124 67%

Eritrea 238 29 89%

Sudan 233 0 100%

Nigeria 184 132 58%

All other nations 1,162 595 66%

Latin American immigrants come from Central America, South America, and the Caribbean; but the majority of newcomers in Buffalo are from Caribbean nations. Some, from Cuba and Haiti, arrive as refugees, but

4 most are immigrants looking for better circumstances or seeking to reunite with family members. Guyana, in South America, has sent a significant number of newcomers to Buffalo. Most Guyanese originally settled in Queens, and then undertook secondary migrations to upstate areas, including Buffalo. Just over half of all Latin Americans live in the city, although this share is higher among Caribbean natives, and lower for those from Central and South America.

Erie County Latin American Foreign-Born Population by Location

Buffalo Suburbs City share

Total 4,256 3,881 52%

Jamaica 789 651 55%

Guyana 679 216 76%

Haiti 415 166 71%

Dominican Republic 392 270 59%

Trinidad and Tobago 343 147 70%

Cuba 325 132 71%

Mexico 216 508 30%

All other nations 1,097 1,791 38%

Puerto Ricans are absent from the Latin American list, since they are American citizens by birth. Yet many who come to Buffalo face the same challenges as foreign-born immigrants. The city continues to be the primary location for Puerto Ricans, but its share dropped from 80 to 70 percent between 2000 and 2013. The number of Puerto Ricans living in the suburbs has doubled since 2000, growing in absolute terms by over 4,300 persons, compared to the city’s increase of 3,000.

Erie County Puerto Rican Population by Location

2000 2013 Change

Total 21,575 28,987 34%

Buffalo 17,250 20,284 18%

Suburbs 4,325 8,703 101%

5 REFUGEES

Much of the growth in the foreign-born population can be attributed to the city’s increasing role as a resettlement community. America has long been a haven for refugees, yet until the past few years, Buffalo was not a significant resettlement location. As recently as 10 years ago, Erie County (the level at which data is reported, although most resettlements occur in the city) was not even among the top 30 metropolitan areas in the nation with respect to the number of annual resettlements.

That has changed in the last decade, as a growing stream of refugees has been resettled by four officially designated agencies: Catholic Charities, International Institute, Jewish Family Service, and Journey’s End. Worldwide Refugee Admissions Processing System (WRAPS) data from New York State’s Bureau of Refu- gee and Immigrant Assistance shows a notable rise in the number of refugees. In the five-year period between 2004 and 2008, Erie County averaged 685 resettlements annually, and never exceeded 880. In 2009, resettlements peaked at 1,400, and have averaged 1,250 over the last five years for which data are available.

Erie County Resettlements by Year

The greatest stream of new arrivals has been from the resettlement of Burmese refugees, followed by Somalia, Bhutan, and Iraq. These four account for 75 percent of all refugee resettlements during the reporting period. Smaller numbers have come from various East African countries that have experienced conflicts, including Sudan, Eritrea, Burundi, and Rwanda. Additional groups have come from Democratic Republic of the Con- go, Liberia, and Ethiopia.

It should be noted that once individuals are resettled, they do not necessarily become permanent city residents. Some stay, but others may undertake secondary migration to other parts of the US to reconnect with family members. Still others relocate outside the city but within the metropolitan area.

6 INTERNATIONAL STUDENTS

Another group of foreign-born residents who make up a significant portion of Buffalo’s population are international students enrolled in area colleges and universities. The University at Buffalo accounts for 80 percent of this population, hosting almost 5,000 international students.

Schools do not provide information on where students live, but by using ACS data on college enrollment, it can be estimated that roughly 3,400 international students are city residents. As with refugees, this number is ultimately dependent on the number of student visas that the federal government is willing to approve.

International Student Enrollment in 2013/14

Students International Share Countries

Total 56,464 6,062 11%

University at Buffalo 29,850 4,863 16% 79

Niagara University 4,177 585 14% 27

Erie Community College 3,281 197 6% 9

D'Youville College 2,023 142 7% 57

Canisius College 3,084 123 4% 26

Buffalo State College 9,355 94 1% 46

Medaille College 1,728 35 2% 4

Daemen College 2,966 24 1% 9

NEIGHBORHOOD IMPACTS

As immigrants, refugees, and international students find homes in Buffalo, they begin to change the city’s neighborhoods. Vacant houses become occupied residences, ethnic restaurants and retail shops begin to pop up, and new languages are heard in classrooms and playgrounds. Clustering is important for newcomers, as they seek out familiar foods, customs and traditions, and news of their homelands.

Nearly 22,000 persons, or just over 8 percent of all city residents are foreign-born, and most areas reflect this distribution. But certain neighborhoods have large numbers of foreign-born residents, including the West Side, where refugee resettlements have been concentrated; the area around the University at Buffalo, where many international students reside; and a section between MLK Park and Broadway-Fillmore, where Mus- lims from Bangladesh have been establishing a community. Growing numbers of foreign-born residents are also migrating from the West Side into the Lower West Side, Grant-Amherst, Black Rock, Riverside, and North Buffalo; south from University Heights towards Kensington-Bailey; and to Hamlin Park near Canisius College.

7 Location of the Foreign-Born Population

8 REGIONAL CONTEXT

It is also important to understand the differences between foreign-born populations who reside in the city and those who live in the suburbs. Among the city’s 20 largest foreign-born communities, many have substantial numbers living in the suburbs. The city appears to attract a higher share of Asian refugees, Africans, and Lat- in Americans; while the suburbs appeal to Canadians, Europeans, Yemenis who are clustered in Lacka- wanna, and Koreans, Chinese, and Indians who may be near the University at Buffalo’s Amherst Campus.

City Share of the Foreign-Born Population

Buffalo Suburbs City share

Total 21,815 36,993 37%

Bhutan 518 0 100%

Burma 2,057 79 96%

Thailand 729 110 87%

Eastern Africa 1,866 348 84%

Guyana 679 216 76%

Bangladesh 570 185 75%

Liberia 350 135 72%

Haiti 415 166 71%

Dominican Republic 392 270 59%

Iraq 342 257 57%

Jamaica 789 651 55%

Vietnam 452 616 42%

Yemen 659 1,173 36%

Russia 511 919 36%

Italy 470 1,749 21%

Korea 363 1,373 21%

China 654 2,496 21%

India 967 3,706 21%

Canada 977 4,336 18%

Germany 362 1,690 18%

9 Selected Demographic Characteristics

Buffalo Buffalo Suburbs Suburbs

Native-born Foreign-born Native-born Foreign-born

Age

Under 18 years 24% 15% 22% 6%

18 to 64 years 64% 74% 61% 69%

65 years and over 12% 11% 17% 25%

Race

White 52% 29% 93% 58%

Black or African American 38% 28% 3% 5%

Asian 1% 34% 1% 30%

Hispanic / Latino (any race) 10% 9% 2% 7%

Language spoken at home

Other than English 10% 77% 4% 66%

Speak English less than "very well" 2% 47% 1% 28%

Educational attainment

Less than high school 16% 31% 7% 16%

Bachelors or higher 24% 28% 33% 43%

Employment and income

Labor force participation 60% 57% 66% 56%

Unemployment 14.0% 10.3% 6.8% 8.1%

Persons below poverty 30% 42% 8% 14%

Housing

Owner 43% 37% 76% 61%

No vehicles available 30% 29% 7% 11%

CITY OF BUFFALO New Americans Study

WORKING PAPER 2:

Listening to the Community

February 2016

Building a city Byron W. Brown of opportunity Mayor LISTENING TO THE COMMUNITY

Imagine entering a country where you may not speak the language, are unsure where to find traditional foods, and don’t know anyone beyond your immediate family. What challenges would you face? What services would you need? Where would you turn for assistance?

This has been the experience for thousands of refugees who have arrived in Buffalo over the past 15 years. Fortunately, the four resettlement agencies working in Western New York, along with their many partners, have been able to provide an effective means of welcoming these new arrivals. As a result, refugees report being generally satisfied with the initial support they receive upon settlement. Basic needs are met; housing, food, and health services are provided; children and youth are enrolled in school; and some are able to secure entry-level jobs.

Not everything goes smoothly, however, especially when the initial resettlement services provided to refugees run out. The demands associated with becoming self-sufficient, such as securing and maintaining affordable housing, employment, transportation, and health care, can often be overwhelming.

To learn more about these needs and how they are being met, the study team conducted focus groups around seven clusters of nationalities. These 11 “listening sessions” allowed over 185 participants to express their concerns regarding their arrival and resettlement experiences, and offer suggestions for improvements.

The feedback from these sessions is summarized in this working paper. It should be noted that the comments of participants were recorded and are transmitted as provided. These statements represent the impressions of the persons being interviewed, and as such have not been checked for accuracy, verified, or edited other than for length.

Focus Groups

Bhutanese Burmese Central and West Africans (Burundians, Congolese, Rwandans, Sierra Leoneans) Iraqis Latinos Somali-Bantus Yemenis

1 BHUTANESE

The Kingdom of Bhutan is a small, mountainous nation sandwiched between China to the north and India to the south. It has a population of just 750,000; with about 90 percent living in rural areas. A Nepalese minori- ty comprises about 15 percent of the population, and is concentrated in the southwestern region of Bhutan.

Most Bhutanese refugees are of Nepalese ancestry, whose families migrated to Bhutan in an earlier period. In the early 1990s, Bhutan instituted a law denying citizenship and civil rights to anyone who could not claim Bhutanese ancestry. After being forced out of their homes in Bhutan, about 100,000 refugees arrived in camps in southwestern Nepal, under the supervision of the United Nations. Unsuccessful attempts to repatri- ate these refugees to either Bhutan or Nepal led the UN to begin resettling them in other countries, including Australia, New Zealand, Canada, and the United States.

Welcoming

Listening session participants reported being in the United States for about four or five years. Most came from families with a rural background, and many had grandparents who originally migrated from Nepal to Bhutan. A number were born in refugee camps, or came as children, and stayed for 10 to 20 years. Those who grew up in camps had very limited education and little exposure to English.

The initial resettlement experience was described as very challenging. Many participants felt isolated in their neighborhoods – not knowing anyone who spoke their language, where to locate customary foods, or how to get around. They also expressed fear and anxiety about being robbed, harmed, or taken away – likely related to experiences back home. As a result, community members have clustered together to increase their sense of safety and social connection.

The community has become extremely tight-knit, especially among older adults who do not speak English. Many older adults do not connect with the larger community and rely on youth/young adults to negotiate the "public" space. This has created an opportunity for young adults who are fluent in English to take on leadership responsibilities and play an important role in assisting others to navigate the community and secure needed resources.

Youth are gaining fluency much more quickly than their elders, and often take on the “adult” role when dealing with outsiders. Children typically serve as interpreters for older family members, and are responsible for reviewing official documents and other correspondence. Given this increased responsibility, youth often feel entitled to engage in behaviors and activities more aligned with their American peers. This role reversal is a source of great stress, and may be an underlying cause of depression among some Bhutanese adults. Parents and elders are also increasingly concerned about the loss of Bhutanese customs, belief systems, and traditional language.

Participants described real concerns about the outside community’s acceptance of them, and shared stories about being harassed on the street, discriminated against at work, or scrutinized by staff at community organizations. Several stated that they did not feel welcome in Buffalo.

The community is in an early stage of organizing. A group of young adults have recently come together to discuss development of a Bhutanese-led organization. They have already organized a soccer team to provide recreational and socialization activities for youth, and are interested in offering a variety of services such as

2 afterschool programming, tutoring, adult literacy, youth leadership, women’s empowerment, and classes on language and culture.

In addition, the Bhutanese-Nepali Hindu Community of Buffalo was established in 2014 to engage local institutions including the Buffalo Public Schools, Buffalo Police, and Federal Bureau of Investigation, as well as to provide community education and support cultural events. Participants also highlighted the need for a facility where community members could engage in sports, cultural activities, socialize, and address community concerns.

Settling In

Participants highlighted problems with the housing and neighborhoods they were resettled into and/or found on their own, many times after case management assistance had ended; difficulties included engaging with landlords, problems with other tenants, health hazards such as lead paint and pests; and general disrepair. Calls to landlords to address these issues often went unreturned or were responded to months later.

Community members also expressed concerns about the neighborhoods in which they were resettled. Some described challenges with understanding street layouts and finding locations, while others cited criminal activity, littering, and disrepair. Several individuals shared stories of community members being mugged, beaten, robbed, or burglarized.

As a result, participants do not feel safe – particularly at night. They felt that the police were often unresponsive to calls for help or specific community needs. Instead, community members were often told to settle things for themselves. Most participants expressed a strong desire to move out of the city because of safety concerns, and the migration of Bhutanese families to the suburbs has already started.

Strengthening

Given the challenges faced by refugees, many community members depend on government assistance and support from health and human service organizations to meet basic needs. This is particularly true among older individuals who are unable to speak English and cannot secure employment.

Due to difficulties obtaining stable employment and a lack of understanding about how to access low-cost health care, the majority of community members typically go without seeing a physician. Those who obtain Medicaid are able to access doctors and dentists, but many expressed concerns regarding the written translation of medical information and professional interpretation in health care settings.

Mental health challenges are also an issue – especially given the trauma associated with forced removal from their native land and the difficulties adjusting to their new homes. According to the Office of Refugee Reset- tlement, the depression rate among Bhutanese refugees nationally is 21 percent, which is nearly triple that for the nation as a whole; and the suicide rate is 70 percent higher than the general population.

Bhutanese youth expressed concerns about the quality of education. While students typically had a strong work ethic and performed very well in the classroom, they felt they were not engaging the creative and critical thinking skills necessary for college. Students also expressed frustration with the lack of focused, intensive language instruction, suggesting that the use of “language immersion” makes it more difficult for them to learn the language along with the material upon which they will be tested.

3 Disliked because of their work ethic and isolated by language barriers, students indicated that they are often targeted for bullying by classmates; with several stating that they were afraid for their safety. Students expressed concerns about the level of control teachers had in the classroom, and the fact that American students were often disrespectful – disrupting lessons, taking control of the classroom, and even bringing weapons to school.

Adult education – particularly English as Second Language – is also described by members of this community as being problematic. Individuals reported participating in ESL classes for months or years without reaching proficiency ; this was particularly true among older adults who had no formal education in their home country. Lack of language development restricts employment opportunities and is connected to greater de- pendency on government and human service supports.

Participants suggested that job opportunities are increasing for community members – particularly young adults. This was likely related to the fact that others had successfully secured and maintained positions with specific employers who were now interested in hiring others. Several participants noted the importance of networks and personal connections when seeking employment.

While there is increasing employer demand for Bhutanese workers - particularly in hospitality industries and factory work - many Bhutanese are employed in entry-level positions that are part-time, without benefits, and with limited opportunities for advancement. As a result, it often takes two or three years to secure steady employment with benefits. This lack of job security makes it difficult to increase the standard of living.

BURMESE

Burma (officially known as Myanmar) is located in Southeast Asia, and is bordered by Bangladesh, India, China, Laos, and Thailand. It has a population of 51 million, consisting of many different ethnic groups. Bamans account for about two-thirds of the population, with Shan, Karen, and Chin representing significant minorities.

The nation gained independence from Great Britain in 1948, but suffered a military coup in 1962. Since that time, democratic protests have periodically been suppressed by the ruling dictatorship. Free elections were held in 1990, but the military junta refused to cede power. Protests and demonstrations in 2007 led to a brutal crackdown that caused many to seek safety in refugee camps outside the country, but also precipitated democratic reforms and general elections in 2010.

While there has been a nominal return to civilian rule since 2011, progress has not been consistent. Many who experienced the trauma of earlier government crackdowns and civil war still languish in refugee camps in Thailand and Malaysia.

Welcoming

Listening session participants reported being in the United States from between three and 15 years. Data from the Office of Refugee Resettlement indicates that Burmese have been settled in the Buffalo area since 2004, with Karen and Chin representing the largest ethnic groups. The majority are from rural communities where agricultural work was the primary form of employment. Most previously lived in Thai or Malaysian refugee camps, where they spent an average of 12 years. A number of children were born in these camps and

4 spent their entire lives there prior to coming to the states. English language training was not available in most camps, so the ability to speak, read, and write in English is limited among refugees.

Many Burmese arrived at a time when there were no Burmese support organizations to assist them in navigating the health and human service system after the initial resettlement period. This made it difficult for them to help their children navigate school, secure health care, access public transportation, and review important documents. Community members were initially reliant on resettlement agencies until new programs were developed through the Jericho Road Drop-In Center and the Burmese Community Support Center.

Participants provided many examples of difficulties related to language access, and notable among them were: health care professionals mixed up Karen and Korean and called for the wrong interpreter; and families were provided official correspondence from their children’s school in Spanish, because it was the only language available.

Participants suggested that the use of simple tools. One idea is to use language cards (used to determine the language spoken by the person making the request for service.) Another is for appropriate documentation in their native language, which would be beneficial for navigating the community and meeting basic needs; while this is being done by organizations like resettlement agencies, Jericho Road, Neighborhood Legal Ser- vices, National Grid and others to great success, it needs to be expanded.

Community members indicated that raising children here is very stressful. Parents are often unable to assist their children because of their inability to speak, read, or write English. Youth become responsible for helping their parents or other adults with interpretation or translation of official correspondence. Youth may also become the primary income source for the family once they are able to secure employment. Burmese youth are becoming “Americanized” through contacts in school and with peers, and parents are concerned that children will lose their language and culture.

The community is in an early to moderate stage of organization, with new supports being developed to address growing community needs. The Burmese Community Support Center and other emerging non-profit organizations try to promote an understanding of American culture, while fostering self-sufficiency and public awareness of the various issues faced by refugees. Along with the Jericho Road Drop-In Center, these efforts have improved the post-resettlement situation by offering help with appointments, reviewing correspondence, and assisting with service navigation.

Settling In

Participants reported various problems with housing, including difficulties getting repairs done; pests such as rodents, cockroaches, and bed bugs; and other health and environmental hazards. They indicated that landlords were often unreachable, unavailable, or unresponsive to their needs or concerns.

Community members also expressed concerns about the neighborhoods in which they were resettled and currently live. They stated that it was not uncommon for muggings, robberies, drug dealing, and shootings to occur; and expressed concern about the number of Burmese youth becoming involved in gang activities.

Participants described problems regarding interactions with local law enforcement, including poor responses to 911 calls, delays in arriving, heavy reliance on community members for language assistance, and failure to follow up on incidents or complete paperwork. Respondents also suggested that police officers often called upon members of the community to resolve situations by themselves instead of rendering assistance.

5 Strengthening

Language barriers and challenges associated with employment have made it difficult for many families to make ends meet. In some cases, particularly for families with older and disabled members, as well as those with very limited English skills, the family seeks assistance through government programs – including Sup- plemental Nutrition Assistance Program, Temporary Assistance for Needy Families, Medicaid, and Supple- mental Security Insurance. To receive these benefits, adults are required to participate in educational and workfare programming. Participants expressed concerns about limitations placed on this assistance, such as the requirement that refugees complete the pathway towards citizenship within six years to remain eligible for SSI. Without the development of appropriate language skills, most felt that this would be impossible.

Access to health care is also critically important for refugees. Most participants received their initial health assessments through the Jericho Road Community Health Center, and continue to utilize this service. Access to mental health care is of special concern to the community, given the time that many spent in refugee camps and the various traumas they faced.

Several parents expressed concerns about the nature of their children’s educational experience. Children were frequent targets of bullying, with limited intervention from teachers or administrators. Parents also noted that disruptive behavior by other students in the classroom was especially problematic for their children, since they are placed in language immersion classrooms where they must focus on learning English as well as core subject matter at the same time.

Adults also experience challenges related to language skill development. The quality of language instruction varied widely among participants. Some indicated that they had been attending daily classes for several years, while others attended twice a week to accommodate work schedules. Most were mandated to attend by the Erie County Department of Social Services as a condition of assistance. Few indicated that the program was effective in helping them acquire language skills. Participants suggested that instruction should be provided in different formats based on individual needs, including the use of native speakers as instructors, along with in- home and intensive language training sessions.

Given the challenges with acquiring language skills, some adults faced great difficulty securing and maintaining employment. Those who are able to learn English typically find lower-wage jobs in hospitality or assembly and production. Unfortunately, these workers experience frequent lay-offs, and continue to have difficulties maintaining employment due to language barriers.

CENTRAL AND WEST AFRICANS

A number of Central and West African nations, including Burundi, Democratic Republic of the Congo, Rwanda, and Sierra Leone, have recently generated large refugee populations. While each has a distinct history and culture, all have years of drought, famine, and conflict in common.

Violence is a tragic legacy in Burundi (population: 10.6 million) and Rwanda (population: 11.7 million), which culminated in an ethnic war between the Hutu and Tutsi tribes in 1994. International relief operations began in Rwanda immediately after the cessation of fighting, and Burundi is also recovering from years of warfare.

The Democratic Republic of the Congo (population: 73.6 million) has also gone through a very difficult period. Following years of economic and political decline, a war between 1998 and 2002 led to extreme violence

6 and massive population displacement. Despite several formal peace agreements, violence continues in eastern Congo, causing loss of life and uprooting families.

Sierra Leone (population: 6.5 million) is a former British colony that gained independence in 1961. The 1980s witnessed the rise of an internal rebel force and led to civil war and displacement over the next two decades. The final UN peacekeeping troops left Sierra Leone in 2005, but the civil war has resulted in another group of refugees from the African continent.

Welcoming

Listening session participants reported being in the U.S. for periods ranging from seven to nine years, with most spending all of that time in Buffalo. Some migrated to different countries before arriving in the states, with stays in refugee camps of up to 15 years. They come from a mix of rural and urban backgrounds.

Refugees from Central African nations generally speak French, with limited English proficiency. English is the official language in Sierra Leone but it is used by few citizens. As a result, language acquisition is a primary concern. Participants stated that language remains a barrier to employment and self-sufficiency. Com- munity members rely heavily on those who know English to read official correspondence, locate information, and navigate various systems.

Upon arriving in Buffalo, participants stated that there was little time for them to make sense of what was happening as they were taken to an apartment, the Department of Social Services, health care appointments, and schools to register their children. According to focus group participants, caseworkers seemed rushed, resulting in important details being lost in translation, and there was no community-based safety net to assist them when caseworkers were unavailable.

While participants appreciated the community-based efforts of the resettlement agencies, they expressed concerns about the limited time (90 days) this assistance is available based on federal and state mandates, and the difficulties that families encountered when it ends. Of particular concern was an inability to obtain healthcare and social services, and challenges securing help from police or the court system. To address these concerns, the use of volunteer community navigators and the development of community-led organizations who could assist community members beyond the initial resettlement period was suggested. There is a strong desire for refugees to support their own communities and help each other rather than relying on professionals.

Members of the Sierra Leone Cultural Alliance of WNY and participants in the Rwanda, Burundi, and Dem- ocratic Republic of Congo focus groups advocated for a community center where newcomers can secure assistance from appropriate agencies, network with one another, engage in recreational and cultural events, and support individuals and families as they integrate into the larger community.

Participants expressed a lack of familiarity with American culture and ways of life, which further complicated their resettlement experience. From encounters with the police, to bullying and harassment of children at school, to involvement in the courts or juvenile system, community members believed that their lack of understanding led to negative experiences.

They were also concerned about the loss of their home culture, values, beliefs, and traditions; and the impact of this on youth. Participants indicated that youth are inundated with new educational, peer group, language, culture, media, and religious experiences. As a result, they are susceptible to dangerous influences including gangs, drugs, and other risky behaviors.

7 Participants stressed the importance of cultural awareness in the larger community, and the need for people from different backgrounds to interact with one another. It was also suggested that police, public safety, health care, and human service providers need training to be aware of important community resources.

The community is in an early stage of organizing. The Sierra Leone Cultural Alliance of WNY was formed to benefit refugees following the death of a community member. It has engaged in a variety of socialization activities and sponsored new arrivals, providing them with household items and support. Members assist newcomers with reading official correspondence, completing applications, and providing transportation.

Settling In

Newcomers face challenges with housing disrepair, pest control, and overcrowding. Several expressed concern about the lack of efforts to make quality of life improvements in their neighborhoods through housing revitalization, business development, and entrepreneurship opportunities. There was also frustration with the absence of a plan to assist refugees with integrating into the larger community.

While resettlement agencies are responsible for providing the initial assistance in locating apartments, many community members move out after the resettlement period in an effort to save money, feel safer, or live near friends. Unfortunately, individuals often found themselves in even more challenging situations as landlords are unresponsive or take a long time to provide assistance. Community members have recently been organizing to help families move into better neighborhoods, often in first-ring suburbs.

Several focus group participants felt that they were being resettled into high-crime areas, and recounted stories of community members being harassed, robbed, and beaten. They are concerned about the ability or will- ingness of police to understand the community and provide appropriate services. While this lack of trust may be rooted in negative encounters in their homelands, participants also stressed that police and public safety officials lacked the cultural awareness necessary to provide appropriate assistance.

Several focus group participants indicated that police were unresponsive or suggested that community members simply handle issues on their own. This is a significant concern, as tensions are often rooted in inter- ethnic conflicts and strife. Participants stressed that they did not feel safe or protected, and therefore felt un- welcome in the city.

Strengthening

Participants reported difficulties in navigating the health care and social service systems. Many newcomers go without medical assistance due to challenges in finding appropriate services and high costs. This can be partially attributed to long-term unemployment, as well as a lack of understanding of how to access coverage.

Several parents expressed concerns about the nature and quality of the educational experience. They questioned placing children in classrooms based on age rather than educational experience or current skills, and voiced concerns about children’s ability to learn subject matter while simultaneously learning English via language immersion. Parents felt that their children were in a particularly precarious position as they had limited educational opportunities in their homelands, but were now expected to fully participate in a system that includes standardized tests and Regents diploma requirements.

8 Parents also expressed deep concern about the safety of their children (especially young girls) while in school, stating that they were frequent targets of bullying and harassment by other students. As a result, many families have sought to relocate to suburbs where education was perceived to be stronger.

Educational issues also exist among adults, specifically challenges associated with English as Second Lan- guage training. Participants noted that language is the primary barrier to employment and self-sufficiency, but that ESL instruction forces adults into a “one size fits all” curriculum, which does not consider unique educational needs.

Employment opportunities were also a concern. Participants stressed their desire to work, as well as the challenges they faced in securing employment, such as a lack of jobs that paid enough to support a family; high levels of competition; an absence of relationships and networking opportunities; and the difficulty of securing professional credentials despite having degrees and experience in their homelands. Participants called for more entry-level, semi-skilled jobs to ensure that individuals developed necessary skills and experience; but also described the importance of supportive employers who are willing to help them develop skills.

IRAQIS

The Republic of Iraq is based on lines drawn by the British and French after World War I, and has a population of 36 million. It is bounded by Kuwait, Saudi Arabia, Jordan, Syria, Turkey, and Iran. In recent decades, Iraq has been the location of wars, occupation, and sectarian strife.

The Iran-Iraq War lasted from 1980 to 1988, and was followed by Iraq’s seizure of Kuwait in 1990. Iraq was quickly turned back by the United States and its allies, who initiated a second Gulf War by invading in 2003. Years of counter-insurgency and internal divisions followed, with the U.S. ending combat operations in 2011.

Each period of turmoil has resulted in enormous displacement of Iraqis, both internally and to neighboring countries. There are currently an estimated two million displaced Iraqis, many of whom are seeking asylum to the U.S. or other countries.

Welcoming

Listening session participants reported being in the U.S. for periods ranging from three months to six years, with most being in Buffalo for four or five years. Some came directly from Iraq; while others came by way of Syria, Egypt, or Jordan. Most spent little or no time in refugee camps. They arrived with a mix of skills, including some with professional degrees from Iraqi universities; others who had worked in trades; and those who had been farmers.

Participants described their early days in Buffalo as overwhelming. While they received a brief orientation to American culture prior to arriving, few knew what to expect. Families stated that they were frightened by every knock at the door, expecting that it was the police. They heard gunshots late at night, and were told by other community members to stay inside for fear of being attacked, robbed, or mugged.

Participants noted that it was difficult to get help when needed beyond the initial resettlement period. Case managers were often addressing the needs of other newcomer families, and were limited in their ability to provide day to day assistance. Correspondence from schools, health care providers, courts, and non-profits

9 was seldom translated into Arabic; and it was rare to have access to a professional interpreter when receiving assistance. Instead, newcomers must rely on friends and family to assist in these circumstances.

Participants stressed the importance of having someone who spoke Arabic available to them during the first week or two after arrival to ease the transition and ensure that they understood what was going on. They also suggested having someone who could serve as a broker after the resettlement period would be beneficial; if people have difficulty accessing interpreters, brokers can help them navigate the community.

Parents indicated that youth are not aware of American life and culture and are easily targeted for harassment. They also felt that youth were becoming “Americanized” through schools and peers, and are concerned that children will lose their native language and sense of culture. Because of their immersion in school and the community, youth often acculturate faster than adults. This alters the traditional parent-child relationship and can lead to problematic behavior on both sides as parents seek to control their children and children begin to question traditional roles. It is critical that parents be educated about what they can and cannot do to address these concerns, in order to avoid law enforcement or child welfare involvement in family life.

Participants reported experiencing heightened prejudice and stereotyping. Several sensed that they were being monitored in public settings, and were frequently harassed or subject to negative and disrespectful comments. They also felt that they face discrimination in employment settings, particularly among practicing Muslims who wear traditional clothing.

Participants stated that the community needs to become more welcoming to newcomers – including business owners, service providers, government workers, and the general public. All came here in search of a better life – education, work opportunities, and safety – and simply wish to be treated like everyone else.

The community is in an early to moderate stage of organization. The Iraqi American Society is a non-profit that promotes culture through educational activities, events, and Arabic language classes; while helping members with community navigation, assistance with official correspondence, and service coordination. Ira- qis also participate in the Buffalo Immigrants and Refugee Empowerment Coalition, a grassroots organization that strives to unite, educate, and empower newcomers. BIREC provides monthly speakers who focus on education, housing, health, immigration, employment, and community safety.

Settling In

Participants identified several housing problems, including disrepair, pest control, and general safety. They also expressed concerns about the use of scattered apartments – especially among newcomers who do not speak English, have few resources, and feel isolated. They suggested the use of a government- or agency-run apartment building for temporary housing until refugee families could locate and rent their own.

Participants were also concerned about the neighborhoods where they were resettled and where many continue to live. Most were warned early on by other community members about safety, and advised to stay in- doors, especially at night. Participants knew of robberies, drug dealing, muggings, and shootings nearby, and were initially afraid of every knock at their door.

Several indicated that they had negative encounters with police and government officials in Iraq which con- tribute to feelings of mistrust. Community leaders have taken steps to improve this situation by hosting meetings with police, social service workers, and judges; but members still express concern about the perceived lack of cultural awareness among these organizations and their representatives. Participants believe there is a

10 general lack of understanding among the larger community, leading to harassment on the street and in public spaces; and that no mechanisms are in place to voice complaints about this perceived mistreatment.

Strengthening

Participants identified difficulties interacting with social services, including disrespect, inflexibility, misunder- standing, prejudice, and discrimination. Many were afraid of the Department of Social Services, and concerned that they would lose benefits or be pushed off the system for speaking out.

There were also challenges associated with securing health care, such as high costs, lack of insurance or knowledge of how to secure coverage, Medicaid limitations, and out-of-pocket expenses. Going to the doc- tor, dentist, or hospitals also presents a challenge because interpretation services are limited. Many bring a family member or friend to their appointments to secure needed information. Likewise, it is difficult to access medical information in Arabic.

Participants also felt that resettlement and social service agencies do not fully appreciate the traumatic effects of war and dislocation. Some newcomers have mental health needs based on their experiences, yet access to mental health services is extremely limited. Community members stressed the importance of having someone to talk to in order to move beyond their trauma and toward a better future.

Parents expressed concerns about the nature and quality of their children’s education. Some felt that the public education system was poor and did not prepare children for college or a vocation. They described problems with classroom behavior. As a result, many families have considered relocation to the suburbs, where educational quality and classroom interaction are perceived as stronger.

Parents also raised concerns about using children as interpreters for other students in language immersion classrooms. Large numbers of refugee students in one school or classroom make it difficult for other children to learn, and it is a lost educational opportunity. Iraqi children were frequent targets of bullying by other students because of their focus on education, and became segregated from others while in school.

Educational challenges also exist among adults. While most professionals arrived with at least some English fluency, older Iraqis (many of whom were farmers or unskilled laborers back home) face barriers related to language acquisition, and must rely on family members and friends for assistance.

It was also common to hear of adult learners who participated in daily language instruction for months or years, but were still unable to read, write, or speak English sufficiently. Many participants attributed this to the style of instruction (language immersion; large class size; and lack of personalized, one-on-one attention).

Securing employment was a central concern, with numerous challenges such as language barriers; the short- age of well-paying jobs; and a lack of relationships with employers. In many cases, individuals take multiple part-time or “off the books” jobs – without insurance, sick or personal time, or other protections – in lieu of full-time employment.

Community members with professional degrees were often unable to return to their careers because the process for acquiring necessary credentials is both daunting and expensive. Additional coursework or certification examinations can cost in excess of $15,000 – a hefty sum for persons with limited financial resources. As a result, professionals are forced to take positions below their level of specialization. Several participants described difficulties securing interviews or advancing in the hiring process due to perceived prejudice or discrimination, based on names, accents, and traditional attire.

11 LATINOS

The Latino presence in Buffalo is not wholly a story of immigration, since about 80 percent of the community is Puerto Rican, who are already U.S. citizens when they arrive. Western New York’s Puerto Rican population expanded significantly following World War II, with many coming after brief stays in New York City, Chicago, or Boston. The earliest arrivals worked as laborers harvesting apples, grapes, and vegetables on rural farms. Over time, as positions in steel plants and other manufacturing facilities opened up in Buffalo and Lackawanna, they began to obtain employment and move to these urban areas.

The Latino community has more recently become a blend of people and cultures from countries including Mexico, Cuba, the Dominican Republic, and other locations throughout Latin America. Few are refugees, and many continue to arrive in Buffalo as secondary migrants from other locations.

Welcoming

The majority of listening session participants had been in Buffalo for just a couple of years; although a small number had lived here for over two decades. Latinos historically arrived from rural environments in search of better paying jobs, but more recently have come to unite with family and friends. Many feel that Buffalo is similar to their homelands, in terms of living conditions and neighborhoods. Most are quite comfortable here, and indicated that they could easily locate familiar foods and people who shared their culture.

Despite this familiarity, language was consistently mentioned as a barrier to successful integration into the larger community. While most Latino children studied English in their homeland, few are functionally bi- lingual upon arrival. Most adults come with only basic speaking skills, and few enter the country able to read or write in English.

Given the long history of Latinos living in Buffalo, newcomers were surprised by the lack of language access. Participants noted that it was common to receive correspondence from schools, health care providers, courts, and non-profits only in English; and rare to have ready access to a professional interpreter when receiving assistance. As a result, most newcomers required an English-speaking individual to accompany them to appointments or read official documents. The lack of language access made it difficult to navigate the community on their own, and caused them to feel more isolated in the community. But since many stay with family or friends, and live in neighborhoods where their native language is regularly spoken, they do not feel an ur- gency to learn English.

Participants report that youth are often called upon to act as interpreters and communicators for family members, creating an imbalance in the family structure. This can be disconcerting to parents and other adults who fear losing status as well as their home culture.

Given their increased responsibilities, youth often feel less obligated to listen to parents or guardians. As a result, there has been an increase in risky behavior which has contributed to low graduation rates, teen preg- nancy, gang recruitment, drug abuse, and involvement with the child welfare and juvenile justice systems.

Participants also stated that it was common to experience racism and discrimination, particularly when applying for jobs, looking for apartments, or purchasing cars. Some have been harassed on the street, or subject- ed to comments about citizenship or immigration status. This has caused many newcomers to feel that they should remain within their neighborhood and not venture into different parts of the city.

12 The community has been organized for a long time. The Hispanic Heritage Center is focused on employment and career opportunities, as well as arts and cultural programming. Hispanics United of Buffalo provides a range of services, including job readiness and employment, adult education, GED/ESL, domestic violence, housing, senior and youth services, and HIV/AIDS education and prevention. The Belle Center has significant Latino participation in its youth and wellness programs.

Settling In

Perspectives on housing were quite mixed among participants. Recent immigrants and refugees moving to the West Side are seen as competing for housing previously occupied by the Latino community. The quality of this housing is often substandard when offered by absentee or neglectful landlords. For those in subsidized units, the situation is relatively good – with well-maintained housing and a higher degree of order, given the fact that landlords are held accountable by sponsoring organizations.

While some Latinos have moved to the suburbs, most are still concentrated on the city’s West Side, where gangs within various ethnic groups remain a problem. These gangs typically form due to a need for protection, and involvement appears to be increasing among both boys and girls. With this comes an increase of criminal activity, drugs, and guns. The community has made efforts to curtail these activities by working with the FBI and local police. These activities have been helpful, and participants noted that police are providing more culturally-aware responses than in the past.

Despite efforts to address criminal activity, gangs, and drugs, participants indicated that police were more connected to the community in the past. They noted that officers and other first responders were once well- known within the community, and that cutbacks in resources and staffing have made community policing more difficult. Participants also suggested that there is a need for more cultural awareness within the police force and among public safety workers, which should include more Latino officers.

Strengthening

Given the challenges with language acquisition, education, and employment, Latino newcomers are increasingly dependent on government support, including Supplemental Nutrition Assistance Program, Medicaid, and Temporary Assistance for Needy Families. To receive assistance, community members are required to participate in educational (typically ESL) and workfare programming for at least 35 hours a week.

There is also a heavy reliance on low-cost community-based health care. There are several centers that offer health services to Latinos living on the West Side, including Urban Family Practice and the Mattina Neigh- borhood Health Center. However, a principal complaint about some facilities is the lack of bi-lingual medical staff or interpreter services.

Participants expressed concern regarding the limited bi-lingual education in the public schools. Although not completely eliminated, bi-lingual classes have been severely reduced in favor of moving Latino children and youth into language immersion classrooms. According to participants, most teachers are not trained to deal with the challenges of a language immersion environment, and have difficulty responding to student needs, particularly as they relate to standardized testing.

13 When coupled with the challenges already present in the schools – including disruptive behavior, large class sizes, and lack of resources – language barriers can make it extremely difficult for youth to succeed academi- cally. Participants also suggested that children feel excluded from the curriculum because Latino culture is not adequately addressed within it, and there is a lack of diversity among teachers and administrators. As a result, a large number of youth have dropped out of school, with few bothering to complete high school equivalency programming.

Similar concerns are also expressed for adult learners – particularly those seeking English language instruction. Some feel that the “one size fits all” approach to education is a major barrier to successful language acquisition; while others believe that individuals should be better tested for learning difficulties that may limit their ability to develop language skills. Regardless, participants suggested that failure to learn English severely restricts employment opportunities.

In earlier decades, individuals found themselves in well-paying positions in farming, food preparation factories, automobile assembly, and steel plants. As these operations closed, they left behind an employment vacu- um – particularly in terms of unskilled and semi-skilled positions that paid a reasonable wage to non-English speakers. As a result, unemployment is extremely high among Latinos – especially for men. Difficulties with transportation, language access, perceived prejudice and discrimination, and the lack of available and affordable childcare hinders others from securing meaningful employment.

SOMALI BANTUS

Located in the Horn of Africa, Somalia has been embroiled in a civil war with no effective government since 1991. Ethnic Somalis make up 85 percent of the population, while the remainder includes a number of mi- nority groups. The largest of these are the Bantu, who are descendants of people captured from other parts of sub-Saharan Africa and brought to Somalia as part of the slave trade.

Somali Bantus initially fled to refugee camps in Kenya. In 1999, the U.S. designated Somali Bantu refugees as "persecuted." The process of immigrating to the states has been slow, due in part to violence and the lack of security at Kenyan refugee camps. But communities of Somali Bantu have now been resettled in a number of American cities, including Denver, Salt Lake City, San Antonio, Tucson, and Buffalo. There are also pockets of Bantu in cities that have high concentrations of ethnic Somalis, such as Atlanta, Boston, Minneap- olis, San Diego, and Seattle.

Welcoming

Data from the Office of Refugee Resettlement indicates that Somali Bantu refugees have been settling in Buf- falo since the early 2000s. Listening session participants reported coming from rural communities where agricultural work was the primary form of employment. Many arrived from Kenyan refugee camps, where they spent up to 15 years. A number of children were born in these camps and spent their entire lives there prior to resettlement. Many received English language instruction in the camps – a source of great pride for Somali Bantu adults.

Participants brought attention to the fact that Buffalo also attracts a large number of secondary migrants from this refugee group, who come for the low cost of living, comparative safety, and services provided by two

14 refugee-run organizations – the Somali Bantu Community Organization and HEAL International (Helping Everyone Achieve Livelihood).

Still, many participants indicated that they lacked clear direction and did not have anyone to guide them. Most adult refugees did not speak English very well, and had difficulty navigating the community – especially public transportation. As a result, adults became reliant on their children to assist in negotiating business transactions, securing health care, and meeting other family needs. Having had English language instruction in refugee camps, Somali Bantu children acclimated to American culture with greater ease.

As children provided help with interpretation, translation, and community navigation, the traditional parent- child relationship was altered. This has led to problematic behavior on both sides as parents seek to control their children, while children begin to question and break out of traditional roles.

Participants expressed concerns about youth, who face new experiences related to education, peer pressure, language, culture, media, and religion. They are particularly susceptible to outside influences including gangs, drugs, and other risky behaviors. Several participants suggested that parents also needed to learn what they can and cannot do to control their children, in order to avoid law enforcement or child welfare involvement.

Participants indicated that they were pleased to locate to Buffalo, and that the community has many things to offer refugees. However, the city must make an effort to serve their needs in order for them to stay here. Community members also note that it is important to be treated well by service providers – especially police, fire, and public safety officials. There are a number of improvements that need to be made, starting with a greater understanding of the refugee community among those who are tasked with serving and protecting them.

The Somali Bantu community is in a moderate stage of organization. Two organizations (Somali Bantu Community Organization and HEAL International) have already secured non-profit status. They rely on volunteers to provide assistance with reviewing official documents, transporting newcomers to appointments, assisting with interpretation, providing referrals, and offering educational and recreational programs for youth. The community would like to expand these resources by developing a neighborhood center.

Settling In

Community members face a number of challenges with housing. Much of the stock they occupy is very old and in disrepair – with cracks in ceilings, poor insulation, broken windows, lead paint, and other problems. Landlords are often not responsive or take a long time to provide assistance. In many cases, pests including roaches and bed bugs overrun apartments. The lack of affordable housing has led to overcrowding, so participants advocated for new affordable housing to be built.

Most refugees were initially resettled on the West Side. They indicated that they experienced relative safety compared to other cities, because many Somali Bantu were located in the same neighborhood. These are still high-crime areas, however, with drug dealers and paraphernalia on the sidewalks, drive-by shootings, and strangers soliciting them. Youth are of particular concern as gangs often target them for recruitment. There is a strong desire to ensure that young people stay off the streets and engage in productive activities – especially afterschool and during breaks.

15 Participants also expressed concerns regarding the police. They indicated that officers arrive late to calls, and rarely provide language assistance through either LanguageLine or a professional interpreter. It is not uncommon for family or community members to assist with interpretation, which can be a problem when related to family or domestic violence calls, and situations of abuse and neglect.

Given these concerns, community leaders have attempted to engage with law enforcement and the legal community to improve communications. Yet it is still quite common for newcomers – especially youth – to be pulled over, questioned, and even arrested. Participants stressed the need for well-trained interpreters and community-based police officers who can be engaged quickly when the need arises.

Strengthening

Participants in the discussion indicated that refugees use government assistance as an important source of income, particularly during times of transition. There are real challenges accessing healthcare due to language barriers. Interpreters are often not available on site (even with appointments), or may speak a different language or dialect, forcing individuals to cancel appointments and reschedule.

Several participants indicated that access to services is slow because many people are trying to utilize the same limited resources over and over again. This causes some to decide not to pursue needed assistance and care. Unfortunately, refugees do not have access to the wider range of community resources - particularly as they relate to employment - because of challenges with language, transportation, awareness, and cultural understanding.

Despite the availability of English language instruction in refugee camps, many children arrived here without any formal education, never having held a pen, seen the alphabet, or learned to read or write in their native language – let alone English. According to participants in the discussion, in schools children are typically placed in classrooms based on age, rather than the amount of formal education they have received. Students are also taught in language immersion classrooms where only English is spoken. As a result, many participants felt that students were poorly equipped to fully participate in classroom-based experiences.

Many youth turn to their peers when they do not understand what is happening in the classroom. Teachers can view this as a sign of disobedience, and pursue disciplinary action. As a result, a number of students face detention or suspension for failing to attend to classroom activities. The lack of preparation and loss of learning time compounds the difficulties students face, and leaves many frustrated and willing to drop out.

The ability to speak, read, and write in English is limited for most adults. Most had only limited reading and writing skills in Arabic before coming here. Subsequently, many experience problems with English as a Sec- ond Language courses. It is not uncommon for adults to receive daily language instruction for several months, yet remain unable to proficiently read, write, or speak English.

Given these language and educational barriers, many individuals face challenges with employment and are unable to utilize traditional workforce development programs. Somali Bantu-run organizations fill this gap by helping members complete resumes and applications, access employer webpages, and engage in job searches. Unfortunately, even most unskilled and semi-skilled jobs require a high school diploma, specific math skills, and rudimentary English language skills, making it difficult for many to secure and maintain employment. Professionals also face barriers when attempting to secure credentials in the U.S.

16 Participants stressed the importance of jobs for youth and adults, as well as opportunities for entrepreneurship. They want to be part of the economy and take care of their families, but need access to employment and connections to agencies that are responsible for hiring.

YEMENIS

Yemen is in the southwestern corner of the Arabian Peninsula, and is bordered by Saudi Arabia and Oman. It has a population of almost 24 million. During the 1960s and 1970s, the country experienced various internal struggles. In an effort to escape the continuing conflict and its economic repercussions, Yemeni men began immigrating to the United States. They initially came to places with Arabic-speaking communities, such as New York City; and later found their way to industrial centers including Detroit and Buffalo.

When they first began arriving, jobs in steel mills and automotive factories were plentiful. A significant community was established in Lackawanna, just south of Buffalo. Subsequent growth came via chain-migration, where family members in the U.S. would secure visas for relatives in Yemen. Travel between the two countries is still fairly common, and it is typical for individuals to marry in Yemen and then bring their spouse and in-laws to live here as extended families. As factory jobs disappeared, some Yemenis began operating small shops and grocery stores, while others secured service sector positions.

Welcoming

Yemeni immigrants share many of the same needs and challenges as refugees. They come from a mix of rural and urban backgrounds, and listening session participants reported that there is little English language training in their homeland. Learning English is often difficult for older adults, particularly if they live with extended family or in neighborhoods where most people speak Arabic, and so don’t feel the need to use English.

Participants stated that language is the primary barrier to education, employment, and self-sufficiency. Given limited English-language skills, it is important to be able to access information in Arabic. Non-English speakers are reliant on bi-lingual community members to read official correspondence, find information, and navigate various systems.

Parents indicated that younger children may lack confidence compared with their American peers, and are easily preyed upon or bullied. These children may also face difficulties attempting to fit in with American children, particularly at school. These stressors can cause youth to act out and shift attitudes over time regarding their home culture, school, and community. Participants also suggested that youth are more susceptible to risky behaviors and may become attractive to gangs.

Parents are typically strict in regulating their children’s behavior, due to strong family, ethnic, and religious values and beliefs. Some of these practices may not align with contemporary parenting standards, so parents need to be educated as to what they can and cannot do to discipline their children in order to avoid law enforcement or child welfare involvement.

Participants also stressed the importance of greater cultural awareness in the larger community, particularly as it relates to anti-Arab and anti-Muslim sentiments. Some described being harassed on the street, demeaned in public settings, or otherwise made to feel unsafe because of their culture, appearance, or language.

17 The community has established a non-profit organization, the Arab American Community Center for Eco- nomic and Social Service of Western New York (ACCESS) based in Lackawanna. It has operated for several years, and provides a variety of services including immigration assistance, citizenship preparation and filing, social service assistance, financial literacy, Electronic Benefit Transfer filing, appointment assistance, linkage and referrals, family advocacy and case management, translation and interpretation, cultural arts programming, afterschool and summer youth programming, and Arabic and English literacy. More recently, leaders have expressed a need for a community center where members can feel safe, engage in recreational activities, read, hold community events, and provide educational opportunities. The goal is to place all of the needed resources for the community in one location.

Settling In

Participants noted that family, ethnic, and religious ties are very strong. Although younger generations have opportunities to move away, many choose to stay connected to their families, religion, and culture by living in neighborhoods with other Arabs. There is a strong preference for marrying partners who are both Arab and Muslim, and the mosque is the center of activity in the community.

Newcomers often live in larger rental properties that can accommodate extended families. For the most part, participants described the community as a good place to live, with inexpensive housing available to rent. Nevertheless, members must still deal with absentee or inattentive landlords, and some remain concerned for their safety. Participants reported that they often experience harassment in public places, at work, or walking the streets. Particular concerns relate to occasions when anti-Arab or anti-Muslim attitudes are expressed.

The community has developed stronger relationships with a number of civic leaders – including the police and the FBI, particularly after the 2003 arrest and conviction of six Yemeni-Americans for providing material support to Al Qaeda. The community has also sought to increase cultural awareness and understanding of Muslim and Arabic culture since that event.

Strengthening

Participants noted language and cultural barriers to receiving healthcare. It is not uncommon for members to be turned away from an appointment because no interpreter is available, or to be asked to bring an interpreter. Written materials are often translated using programs such as Google Translate, which can result in errors. Fortunately, ACCESS of WNY provides free interpretation assistance and will accompany community members on visits to health care providers, schools, and other appointments.

Parents expressed a number of concerns about the quality of education their children are receiving. Language instruction is a particular concern, as parents recognize that their children will not be able to secure employment if they are unable to speak, write, and read in English. Nevertheless, children continue to face challenges, as opportunities for bi-lingual education are severely limited in both Lackawanna and Buffalo public schools. Both districts use language immersion, where only English is spoken in the classroom. This can be extremely difficult for students, who must also develop subject matter expertise in order to pass exams.

An increasing number of youth are now dropping out of school, due in part to challenges they experience adapting to the culture and trying to learn a new language. Efforts are underway to improve the educational

18 experience in both Lackawanna and Buffalo, and social service organizations are offering youth leadership development training to foster connection and confidence. ACCESS of WNY has been providing family- centered parenting workshops to help parents better understand their obligations, and is working with the courts on issues of domestic violence and child welfare. Special programming for mothers is also being offered, since the highest rate of female illiteracy in the world is among Yemeni women.

There is a wide variation in the educational achievement of adults. Many Yemeni immigrants who are part of the first generation living in the United States have completed a standard education and are employed in occupations at various skill levels. In recent years, others have come to study in American universities and gone on to careers in academia. Nevertheless, a large number of community members have neither secured basic language skills nor graduated from high school.

With the closing of factories, the availability of well-paying jobs for unskilled and semi-skilled laborers is severely limited. According to community leaders, only about a quarter of Yemeni adults have full-time jobs. Many members are seeking employment, with an initial focus on minimum wage positions. Among those who do secure work, the majority remain in low-paying, entry-level positions for some time, with limited sick days, personal time, or health care benefits.

Participants note that community members have demonstrated strong entrepreneurial skills, resulting in the opening of a number of neighborhood-based convenience stores and other retail markets, particularly on Buf- falo’s East Side. Opportunities for expanded entrepreneurialism are needed, particularly in support of production- and manufacturing-based employment.

Economic self-sufficiency remains a concern, particularly as entry-level positions become difficult to secure. Many middle aged and older adults have become dependent on government assistance or help from their family and social service organizations. ACCESS of WNY has been offering financial literacy courses to assist community members with money management, and to address fears related to banking and the use of credit.

MOVING FORWARD

Although these concerns were expressed by members of seven discrete refugee or immigrant communities, the main points were consistent enough that they can generally be applied to all newcomers. To learn more about how service providers are working to address these concerns, where shortcomings exist, and where additional resources are needed, the study team next met with representatives of agencies that work with newcomers in a variety of capacities. The results of these meetings are described in Working Paper 3.

CITY OF BUFFALO New Americans Study

WORKING PAPER 3:

Learning from Providers

February 2016

Building a city Byron W. Brown of opportunity Mayor LEARNING FROM PROVIDERS

The study team conducted a series of confidential interviews with key stakeholders representing organizations serving refugee and immigrant populations. These interviews focused on assessing needs, barriers, strengths, and opportunities. Over 60 interviews were conducted with representatives from 42 organizations, each lasting between 20 minutes and an hour. Interviews continued until the study team felt that few new perspectives or recommendations were being added to the discussion.

The input from these interviews is summarized in this working paper. It should be noted that the comments of participants were recorded and are transmitted as provided. These statements represent the impressions of the persons being interviewed, and as such have not been checked for accuracy, verified, or edited other than for length.

Stakeholder Interviews

ACCESS of WNY StaJewish Family Service

Belle Center Johns Hopkins University Belmont Housing Services Journey’s End Refugee Services Bhutanese Community Kaleida Health Buffalo Immigrant and Refugee Empowerment Lafayette High School Coalition Matt Urban Center Buffalo Niagara Partnership Muslim Public Affairs Council Buffalo Public Schools National Grid Buffalo State College New York State Department of Labor Burmese Community Olmsted Parks Conservancy Catholic Charities PUSH Buffalo City of Buffalo Rediscover Riverside Daeman College Somali Bantu Community Ethiopian Community South Fillmore Block Club Erie County Department of Social Services Sun Restaurant Erie County Family Court Vive la Casa Fillmore Corridor Neighborhood Coalition Westminster Economic Development Initiative HEAL International Western New York Center for Survivors of Hispanic Heritage Council Trauma and Torture Housing Opportunities Made Equal Western New York Service Learning International Institute Collaborative Iraqi American Society Workforce Development Consortium Jericho Road Community Health Center

1 WELCOMING Resettlement Experience

While immigrants to the United States are largely responsible for addressing their own needs, refugees are assigned to a non-governmental organization that will assist them upon arrival. Western New York has four refugee resettlement agencies – Catholic Charities, International Institute, Jewish Family Services, and Jour- ney’s End – that are contracted to provide these services.

Resettlement agencies have little lead time to prepare for the arrival of an individual or family – typically about two weeks, but sometimes as short as 24 hours. Agencies are responsible for picking up refugees upon arrival; securing housing from a contact list of certified landlords; shopping for groceries, household supplies, and furniture; and locating appropriate clothing.

Staff and volunteers also assist refugees to orient them culturally; develop financial literacy; learn about public transportation; set up initial health screenings and medical appointments; register children for school; determine the need for language instruction and other forms of assistance; and secure income supports through the Erie County Department of Social Services.

Federal assistance to refugees is generally not enough to fully support a family, so newcomers are encouraged to secure employment as soon as possible. Resettlement agencies also play a prominent role assisting refugees to create resumes, conduct job searches, and prepare for interviews.

Staff from resettlement agencies stressed the challenges associated with providing assistance to refugees in a relatively short period of time. Once an individual or family has arrived, the agency can provide core services such as housing, food, clothing, job searches, and medical care for up to 90 days with funding from the U.S. Department of State. In many respects, their work becomes a race against the clock to ensure that resources are secured before time and money run out.

Refugees apply for Temporary Assistance for Needy Families and Medicaid as part of their federal resettlement protocol; those who are determined to be ineligible can apply for Refugee Cash Assistance and Refugee Medical Assistance for periods of up to eight months. These programs are administered by the county De- partment of Social Services.

Resettlement agencies and their employment programs often try to supplement federal resources with internal funding, grants, and contracts so they can provide additional post-resettlement assistance. Unfortunately, engaging new funding sources can also introduce complications, as each has its own requirements regarding performance and documentation.

Providers report that improved language access is critically important to removing barriers to assistance. The creation and implementation of language access plans by government and service providers is needed to ensure that all residents receive meaningful access to services. Despite federal and state laws that require access to language interpretation services and translated materials, many health and human service organizations do not provide interpreters on site when rendering care, and very few offer written resources translated into high- demand languages. Providers typically cite the costs and relative difficulty of securing language services as the primary reason for avoiding these services.

However, any agency that receives federal funding is obligated to provide language access. Title VI of the Civil Rights Act of 1964, and Executive Order 13166, issued in 2000, are both intended to ensure that per-

2 sons with limited English skills have access to federal programs. In New York State, Governor Cuomo issued Executive Order No. 26 in October 2011, requiring state agencies that provide direct services to develop language access plans, provide interpretation services, and translate vital documents into the six most common non-English languages in the state. Local plans would need to address the top languages in Buffalo and Erie County.

Acculturation

Acculturation is the process of adopting the cultural traits or social patterns of another group, and often includes the gradual loss of ties to native culture, traditions, and customs. It is a constant concern for immigrant and refugee groups.

Providers report that one of the most difficult adjustments for newcomers is the shift in culture, especially as it relates to traditional family roles. In most instances, children learn English and adapt more quickly than their parents. As a result, they become the primary resources for the family – serving as interpreters, assisting in business transactions, and securing income with after-school jobs. Meanwhile, adults experience great stress related to the perceived loss of their parental role, as well as their culture, language, and traditions.

The process of adjusting to these changes is different for each person, and can cause significant stress to individuals and families. This often leads to problem behavior among youth, as well as the use of inappropriate parenting practices among adults in an effort to regain control.

According to child welfare and juvenile justice system workers, there has been a rise in the number of Persons in Need of Supervision cases; as well as increased reports of child abuse, neglect, and family violence cases immigrants and refugees. There has also been a strong reaction on the part of newcomers who do not understand the Family Court and Child Welfare systems, and were angry, terrified, and confused when children were taken from them.

Cultural competency – the ability to effectively interact with people of different cultures and experiences with a positive attitude – is necessary to assist newcomers in assimilating. As immigrants and refugees adjust to a new culture, government and service providers can make this process easier by learning more about the city’s growing diversity and the beliefs, traditions, and customs of newcomers, as well as on appropriate ways to engage these groups. Health and social service providers, police, building inspectors, 311 call center operators, and educators could all benefit from cultural competency training, as could the community-at-large. New- comers want to feel included and embraced in their communities, yet often face fear and discrimination from their neighbors. Bridging these gaps in understanding will benefit both newcomers and their neighbors.

Organization

As immigrant and refugee populations increase, these communities often begin to self-organize to offer services to new arrivals. A number of grassroots organizations – including the Arab American Community Cen- ter for Economic and Social Service of Western New York, BIREC (Buffalo Immigrant Refugee Empower- ment Coalition), Burmese Community Support Center, HEAL International, Iraqi American Society, Sierra Leone Cultural Alliance of WNY, and Somali-Bantu Community Organization – provide valuable services to community members with limited financial resources and volunteers. They review official correspondence, assist with navigating the community, engage with outside officials, offer programs for youth, and provide

3 language, interpretation, and translation assistance. Leaders suggest that there are opportunities to expand these impacts with additional resources, including a multi-purpose community center that would house the offices of these organizations.

SETTLING IN Housing

Newcomers have traditionally been resettled into rental housing on the city’s West Side, as it has been able to meet basic needs at a relatively affordable price. According to the resettlement agencies, however, it is becoming difficult to secure safe, adequate, and affordable housing in these neighborhoods. They suggest that the West Side is reaching saturation, resulting in higher rents as well as more limited selection.

Some participants in the listening sessions have also begun to report poor housing conditions on the West Side, whether due to the age of structures and their mechanical systems; problems with pests such as bed bugs, roaches, and rodents; or environmental hazards such as mold and lead-based paint.

Resettlement agencies are responsible for reviewing apartments before placing refugees, and it is important to acknowledge that they cannot house refugees in area housing if it does not meet the standards required by the federal and state governments. They are also not responsible for continuously monitoring living conditions. Housing issues can arise from the fact that an apartment may need responsiveness on the part of landlords to be kept up.

It is a common occurrence that newcomers may not be aware of how to use certain devices or products to keep their home clean, or may have guests who bring pests with them. Resettlement agency staff and volunteers meet with clients in their homes to educate them about these issues, but again landlords are ultimately responsible for property maintenance.

Unfortunately, housing advocates report that landlords are often unresponsive to complaints, whether due to language barriers or the high costs of required maintenance. There are also a large number of absentee landlords who may be difficult to contact. The city requires non-owner occupied rental housing to be registered annually, but the subsequent inspection process is complaint driven.

In order to have a property inspected, a request must be made through the city’s 311 Call Center. While the Call Center uses LanguageLine to assist non-English speakers, program administrators note that relatively few take advantage of this service. And unless they are informed of a complaint, housing inspectors are pri- marily focused on exterior conditions.

Providers also indicate that there is little understanding of tenant rights among newcomers. Housing Oppor- tunities Made Equal responds to fair housing issues, but reports that only five percent of its current clients are immigrants or refugees.

Finally, there is growing interest among newcomers in housing on the city’s East Side. Groups like the Fillmore Corridor Neighborhood Coalition and the South Fillmore Block Club Refugee and Immigrant Committee have developed plans to incorporate newcomers as part of a holistic community. The movement of immigrants and refugees into this part of the city can be complemented by strategic planning.

4 Public Safety

Opportunities to increase a sense of community connection are critical, especially given the concerns expressed by newcomers related to public safety and police responsiveness. Police officers provided their own perspective about the ability to adequately serve immigrant and refugee groups. They noted that officers spend more time patrolling high-yield crime areas marked by violent crime, gang activity, and property de- struction; and less time in low-yield areas. As a result, fears of crimes that newcomers are concerned about – such as robberies, muggings, and drug dealing – may fester.

This focus on high-yield crime areas also makes it difficult for police officers to be present in all neighborhoods on a regular basis. As a result, few officers have relationships with newcomers or connections to their neighborhoods. Officers indicated that when they are in neighborhoods where they don’t have strong relationships, the ability to address crime is greatly reduced. Community policing may help to improve this by fostering stronger relationships between police and the communities they serve. This approach calls for more engagement, with the aim of building trust and rapport while developing mutual respect.

Calls to 911 are handled by Erie County Central Police Services. How calls from persons speaking a foreign language are handled, whether they are coded as “unknown” and placed at the bottom of response sheets if dispatchers are unable to obtain sufficient information to assess the situation, and if in some cases dispatchers may hang up if they cannot understand the person making the call are issues that are of concern. Problems stemming from the response to 911 calls can create hostility between police and community members, who may be angry about the lack of a timely response and mistakenly assume that patrol officers are responsible.

Language and cultural differences can also heighten tensions. Use of LanguageLine, language cards, or interpretation services is limited, and newcomers often distrust police and government officials because of past experiences in their homelands. Likewise, officers may not have enough interaction with specific groups to understand their culture, mannerisms, and engagement styles. If the community member and the police cannot understand each other, frustrations are likely to increase.

Police officers reported feeling burnt out and apathetic because they do not feel supported or respected by community members. Newcomers, in turn, had stated that they do not feel safe and cared for by police – creating a vicious cycle. In simple terms, the two groups don’t sufficiently know or understand each other. There is currently little pressure to address this situation. Patrol officers and district leaders indicate that they do not have the power to make changes in policy, training protocols, or procedures. Similarly, advocates indicated that the immigrant and refugee community is viewed as too fragmented and insufficiently organized to force these changes.

STRENGTHENING Social Services

Poor language skills, limited training opportunities, and unemployment and underemployment impact the financial resources of newcomers. Yet while some rely on government assistance as a primary source of income (6 percent receive public assistance and 19 percent food stamps), use is only slightly higher than among the general population (where 3 percent receive public assistance and 15 percent food stamps).

5 Erie County Department of Social Services officials estimate that immigrant and refugee communities account for no more than 10 percent of the current caseload, with secondary migrants comprising the largest portion. Newcomers do encounter a wide range of challenges when attempting to secure government income supports, particularly language access.

Despite efforts to improve language access through the use of LanguageLine, the institution of language days, and efforts to increase staff diversity, DSS indicates that its ability to effectively communicate with immigrants and refugees is limited. Officials suggested a county-wide commitment to prioritize the five most widely-spoken foreign languages, and ensure that materials were available in those languages.

Advocates also note that applications for Supplemental Nutrition Assistance Program, Temporary Assistance for Needy Families, and Home Energy Assistance Program are difficult to complete in any language, as terms are unfamiliar and associated documentation hard to provide. Many newcomers are initially denied support because of incomplete or erroneous paperwork, and must wait weeks or months to secure assistance.

DSS officials suggested that the SNAP application be fully accessible to most language groups. They also proposed more training to assist newcomers in completing applications. Such assistance is offered by immigrant- and refugee-run organizations, resettlement agencies, and legal service providers, but given the com- plexity of the applications, the situation remains challenging.

Another concern is related to the fact that government support is lost once employment is secured. Advocates suggest that this penalizes newcomers for working because they may lose child care allowances, transportation subsidies, and food stamps. They recommend that immigrants and refugees receive additional time after securing a job to account for the difficult transition that they face. In addition, newcomers often get a job, only to lose it if their language skills or training do not met their employer’s needs. This requires the individual to restart the process of applying to DSS.

Health Care

Providers identified a number of health concerns among newcomers, including diabetes, hypertension, ane- mia, tuberculosis, and hepatitis B. In many cases, individuals have never seen a dentist and may have cavi- ties, abscesses, or gum disease. Given violence or injuries that occurred in their homeland, some may have scarring or broken bones that have repaired without medical attention.

Many are also dealing with significant trauma, which can impede their ability to perform various tasks and function in their daily lives. Local clinicians indicate that a large number of refugees suffer from Post- Traumatic Stress Disorder, which affects progress towards acculturation and is linked to neglect and abuse. The need for mental health support services far exceeds the supply, despite the fact that new programming is available.

Language access is perhaps the most critical challenge impacting health care. Problems at hospitals (especially emergency departments), health clinics, urgent care facilities, and local physician and dentist offices can lead to errors in the delivery of care. Health care professionals related experiences where persons were incorrectly diagnosed, provided improper medications, or treated for the wrong condition because of inade- quate interpretation. Many providers employ LanguageLine, which can be cumbersome and make it difficult to truly engage with the patient in some circumstances; while others prefer to have a family member or friend interpret.

6 A number of practitioners also described difficulties newcomers experience in accessing primary health care. Free or low-cost health care facilities are not available in many neighborhoods where newcomers live, and some may not accept Medicaid coverage that many newcomers have. As a result, individuals and families may be more likely to utilize hospital emergency rooms and community health clinics as primary care centers. Few local dentists take Medicaid, forcing individuals to travel to one of the free or low-cost dental clinics. As a result, there is a lack of regular dental care among newcomers.

Access to insurance was also mentioned as a significant concern among newcomers. While refugees are eligible for at least eight months of Medicaid, many lose this assistance once they secure employment. Yet given the unstable nature of their employment, refugees may be underinsured or uninsured for significant periods. Many providers are also unsure where to direct newcomers as they attempt to navigate the various health care coverage models and exchanges to locate affordable insurance.

Finally, concerns around proper nutrition and food access also surfaced. Many newcomers live in areas with limited access to fresh food, which makes them dependent on high-calorie, low-nutrition convenience foods. Nearly 20 percent of West Side households are located more than a half-mile from a supermarket, and do not have access to a car. As a result, many newcomers identify other food sources – including fishing in local rivers and creeks, where fish tend to be high in mercury and unsafe for anything but occasional consumption.

Education

Administrators note that the number of LEP/ELL (Limited English Proficiency/English Language Learners) in the Buffalo public schools increased by over 40 percent between the 2004/05 and 2013/14 school years. This was accompanied by a sizeable growth in the number of languages spoken – from 46 to 63 – as well as a dramatic shift in variety. It is unclear how this situation will change over the next decade.

LEP/ELL students in Buffalo public schools

7 The rapid rise in LEP/ELL students presents many challenges. Current regulations mandate that if there are 20 or more students in the same grade and school who speak a specific language, the district is required to provide bilingual instruction. This is currently limited to Spanish-speaking students at just two schools, since the district has distributed LEP/ELL students into different classrooms and schools to compensate for the lack of teachers able to provide bilingual instruction in high-demand languages.

Change in BPS High Demand Languages

2004/05 2013/14

TOTAL 2,539 4,307

Arabic 230 497

Bengali 0 135 Burmese 0 386

French 29 81

Karen 0 692

Kirundi 0 68

Nepali 0 396

Somali 107 469

Spanish 1,742 2,102

Swahili 0 91

In the absence of bilingual instruction, students are placed in language immersion classrooms. Here teachers provide instruction on a specific subject (math, science, history), while also attempting to manage a wide variety of linguistic needs. In such classes, it is not uncommon to see immigrant and refugee students interpret- ing for each another according to their teachers. Unfortunately, these actions call attention to the “differences” and “educational focus” of newcomers, and can cause them to be subjects of harassment, ridi- cule, and bullying by their classmates.

Teachers have also expressed concerns regarding the practice of placing students into classes based on their age, rather than on their English language skills, educational abilities, or experience. In many cases, newcomers have had limited exposure to formal education, and have difficulty fully participating in classroom activities. Some have never held a pen or sat at a desk before. At times, these students can be disruptive to others – leading to the need for disciplinary actions. In most cases, however, teachers expressed great concern for the well-being of these students.

The challenges associated with language immersion classrooms and age-based placements are exacerbated when students are also required to perform on Regents examinations and other standardized testing. Several teachers and administrators denounced this practice, based on the fact that LEP/ELL students are being tested without being given the time and tools needed to develop their language skills and acclimate to the educational system.

8 Administrators indicated that they have employed a variety of successful pilot programs to assist with language challenges, including the use of ESL coaches, freestanding ESL programs, and Teachers of English for Speakers of Other Languages training. Unfortunately, most of these efforts had limited, grant-based funding and were not implemented district-wide. Administrators and teachers agreed that a full implementation of an initiative to address language instruction is needed, and that it will require a long-term commitment from the district.

Unfortunately, advocacy for such an initiative is limited especially as the parents of immigrant and refugee students are often not engaged in these matters, due to a variety of reasons. First, many parents have never had a formal education and are unclear about the issues. Second, parents often do not understand the Ameri- can educational system or wish to interfere with the role of teachers as a matter of culture. In many countries, including Bhutan and Iraq, it is considered extremely rude to advise a teacher or administrator how they should perform their jobs. Third, parents are busy working, tending to other children, or securing an education themselves, and do not have the time necessary to become actively involved.

The limited use of bilingual instruction, inappropriate grade placement of students, and lack of parental advocacy has led to poorer overall performance in schools that large numbers of newcomers attend. It has also led to more students dropping out. Since youth under age 21 cannot be served in the adult continuing education system, there is a critical gap for 16 to 21 year-olds who leave school without a diploma. This is a particular concern with students from Iraq, Somalia, and Yemen.

Adults may also need educational assistance to compete in the job market. Many positions require at least rudimentary English reading and writing – and many require higher-level language skills to interact with customers, clients, or co-workers. Nearly 35 percent of foreign-born individuals speak English less than “very well,” and over 20 percent of foreign-born adults have not obtained a high school diploma. For these newcomers to gain access to advanced education or well-paying jobs, they will need support in developing language skills and educational credentials.

Each year, the Buffalo Public School District serves more than 1,500 adults through its ESL and GED classes. ESL classes are held twice daily, six days a week, with additional night and weekend courses. The focus is on helping non-English speaking adults to navigate the community – obtain directions, use public transportation, buy groceries.

Programming operates under a whole language immersion philosophy; only English is spoken in the classroom, and instruction is typically provided by native English speakers. Many newcomers are required to attend classes to maintain benefits through the Erie County Department of Social Services. Despite the large number of opportunities, newcomers continue to face challenges securing even basic language skills, due to a number of reasons.

First, newcomers arrive with different levels of exposure to English. Large numbers, commonly rural populations and older generations, cannot read or write even in their native language; while others can read or write only in their native language. A very small number (less than one percent) are at an advanced English level; these are generally professionals seeking credentials. Unfortunately, there is a lack of technical, workforce specific language preparation for these individuals.

Second, some providers suggest that success is ultimately based on how strongly students want to learn English. Class participation can vary widely, although DSS mandates generally lead to better attendance. Yet classes where some of the students lack motivation can impact the overall morale within the classroom. There is also concern that some newcomers may have unidentified or undiagnosed learning disabilities that serve as barriers to ac-

9 quiring language and other skills. The current adult system does not allow for testing because of the associated expense.

Third, there is an apparent mismatch between the desire for ESL and current offerings. While there are numerous classes taking place throughout community on any given day, some students (particularly women) need to be at home with their children or face challenges with childcare. Others seek smaller, more intensive classes; while many would prefer to have training provided by teachers who speak their native language. Unfortunately, home-based, intensive, bi-lingual classes are not viewed as cost-effective and are only offered in limited supply by agencies like the International Institute.

Employment

Research has shown that immigrants and refugees can increase economic efficiency by raising the supply of both high- and low-skilled workers. In many cases, the educational backgrounds of newcomers complement, rather than displace, the skills of the native-born labor market. These populations are viewed as hard working, dependable, resourceful, and adaptable; with strong problem-solving skills and a desire to work.

Local workforce development administrators indicate that the occupations with the greatest projected hiring include cashiers, food preparation workers, construction laborers, counter attendants, customer service representatives, tractor-trailer drivers, home health aides, personal care aides, maintenance and repair workers, office and accounting clerks, parking lot attendants, registered nurses, retail salespersons, security guards, teacher assistants, team assemblers, and waiters and waitresses.

Clearly there are opportunities for low-skilled newcomers, as well as employment growth based on recent developments in the hospitality, health care, and manufacturing sectors. For example, the start-up BAK USA has begun manufacturing computer tablets with a large foreign-born workforce. Still, newcomers continue to face obstacles when seeking to connect with the local job market on a sustainable basis.

Advocates note that an integrated workforce development system that considers the unique needs of newcomers is currently unavailable. There is also insufficient direct state assistance for newcomers, or support from unions and other professional groups. Consequently, resettlement agencies are forced to use whatever resources they can pull together to address the employment needs of target populations.

All four resettlement agencies currently offer employment programs; without these, many refugees would be much more likely to be on public assistance. Yet some newcomers remain concerned about keeping jobs and being able to secure stable employment on an ongoing basis.

The Workforce Investment Board distributes funding to local organizations to provide training and other employment-related assistance, including several one-stop centers. Unfortunately, most of these programs require a level of English competency that is beyond that of recent arrivals. One-stops also rely on outside agencies to identify and address any barriers that newcomers might face – such as language or transportation – in accessing programs. As a result, administrators estimated that less than two percent of current program participants are immigrants or refugees.

Advocates would like workforce development organizations to develop bridge programs that provide pathways from ESL and GED programs into earning occupational credentials. Community colleges can work with employers to increase employee access to these programs, and to improve their suitability for working adults. Employers should also consider subsidized employment programs, such as Placing Individuals in Vi-

10 tal Opportunity Training, coordinated through the Erie County DSS. This program will pay full-time wages for six months, while the participant receives on-the-job training. A large number of PIVOT participants are newcomers, and the program has been successful at helping them both locate and retain employment.

Regardless of the skills and education they have, immigrants and refugees often require additional support from their employers beyond the typical orientation. This might include assistance with interpretation or translation of written materials, and help navigating the community and transportation systems. Health and social service providers can work with employers to provide a wide range of on-site assistance, so newcomers will be better able to focus on their jobs.

A large number and wide range of local employers utilize newcomers in their workforce; for example, the International Institute identifies 300 employers. Many offer favorable work environments for immigrants and refugees. For example, Tim Horton’s regularly hires refugees and works with them to develop the skills needed to become managers. In turn, these managers recruit and train other members of their respective communities. Employers that provide additional supports to newcomers are more likely to have a stable employment base, as well as happy and highly-motivated employees.

Another concern is related to newcomers with advanced degrees who are unable to take advantage of the local workforce development system. Administrators indicate that current programs are intended to help individuals with limited skills and education, and were not designed to assist those with advanced degrees. New- comers who have been trained or worked as professionals possess the skills and education to secure high- wage jobs, but may need help with additional coursework requirements, certifications, or paperwork. Assis- tance with credentialing is not currently available through area one-stops. The state Department of Labor has a limited pilot project that offers intensive one-on-one coaching, computer-assisted job searches, and other support to foreign-born populations. But when it comes to securing professional credentials, the process is viewed as so time intensive and expensive that individuals are sometimes encouraged to pursue other employment opportunities.

Finally, immigrants and refugees are starting businesses that provide services or repair goods, and opening retail shops, restaurants, and markets. They fill gaps where particular goods and services are needed, and help to revitalize streetscapes and neighborhoods – often in places that have been experienced little investment. Cities are increasingly recognizing the importance of these entrepreneurs as community builders and job crea- tors. Public and private partnerships are launching business incubators and seeking ways to help skilled newcomers put their credentials to use. Resources to support an expansion of these efforts here are needed, especially as related to production activities.

MOVING FORWARD

These conversations with service providers were very useful in understanding the current range of programs available to immigrants and refugees, and where gaps and shortfalls exist. By understanding the current situation, the city will be better positioned to supplement services that will make a difference in the lives of refugees and immigrants.