Investing in Our Communities: Strategies for Immigrant Integration

Publisher G RANTMAKERS C ONCERNED WITH I MMIGRANTS AND R EFUGEES

Editor D ARANEE P ETSOD

Principal Authors D ARANEE P ETSOD T ED WANG C RAIG M C G ARVEY

Contributors S USAN D RAKE A DA T SO M ICHAEL K AY A TOOLKIT FOR J IM T HOMAS K IEN L EE GRANTMAKERS BOUT Grantmakers Concerned with Immigrants GCIR provides members the opportunity to A and Refugees (GCIR) seeks to move the connect with diverse colleagues, build new GRANTMAKERS philanthropic field to advance the contributions skills, increase knowledge, and become part CONCERNED WITH and address the needs of the world’s growing of a dynamic movement to fully integrate and increasingly diverse immigrant and immigrants into U.S. society through: IMMIGRANTS AND refugee populations. With a core focus on A one-stop center for high-quality elec- REFUGEES the United States, GCIR provides grantmakers with opportunities for learning, networking, tronic and printed resources, including and collaboration. Our information resources in-depth issue reports that help funders aim to: quickly grasp the substance of specific topic areas and learn about proven Enhance philanthropy’s awareness of grantmaking strategies. issues affecting immigrants and refugees. Substantive opportunities to learn about Deepen the field’s understanding of how emerging trends and to share experiences these issues are integral to community and strategies through member-driven building in today’s dynamic social, national and regional programs, learning economic, and political environment. circles, and national convenings.

Increase philanthropic support for both Technical assistance and consultation to broad and immigrant/refugee-focused members wishing to incorporate immigrant strategies that benefit newcomer popula- and refugee issues into their portfolios tions and strengthen society as a whole. or seeking to expand or redirect their immigrant-related grantmaking. Given immigrants’ growing numbers and their expanding role in the economic, social, and In 2005, more than 1,500 grantmakers took cultural life of nations across the globe, GCIR advantage of our information resources and has become an invaluable resource to many another 1,000 participated in our programs. foundations, whether they have immigrant- specific funding initiatives or wish to incor- For more information, visit www.gcir.org or porate the immigrant and refugee dimension contact the GCIR office at [email protected] or into their core grantmaking programs. 707.824.4374.

GCIR BOARD OF Sue Lin Chong Ralph Taylor DIRECTORS ANNIE E. CASEY FOUNDATION CENTRAL INDIANA BOARD OF Baltimore, Maryland COMMUNITY FOUNDATION DIRECTORS Susan Downs-Karkos, Co-Chair Indianapolis, Indiana THE COLORADO TRUST Bob Glaves AND STAFF Denver, Colorado CHICAGO BAR FOUNDATION Ellen Widess Chicago, Illinois ROSENBERG FOUNDATION P.O. Box 1100 Taryn Higashi, Co-Chair San Francisco, California Sebastopol, California FORD FOUNDATION José González, Program 95473-1100 New York, New York Committee Chair BUSH FOUNDATION www.gcir.org Laura Hogan, Treasurer St. Paul, Minnesota THE CALIFORNIA ENDOWMENT STAFF Sacramento, California Phone 707.824.4374 Victor Quintana, Daranee Petsod Fax 707.581.1716 Communications Executive Director Tom Kam, Secretary Email [email protected] Committee Chair COMMUNITY FOUNDATION FOR UNITARIAN UNIVERSALIST Alison De Lucca THE NATIONAL CAPITAL REGION VEATCH PROGRAM AT Program Director Washington, District of Columbia SHELTER ROCK Manhasset, New York Bryan Rhodes Henry Allen Executive Assistant DISCOUNT FOUNDATION Maria Teresa Rojas Boston, Massachusetts OPEN SOCIETY INSTITUTE Ada Tso New York, New York Research Assistant Lina Avidan ZELLERBACH FAMILY FOUNDATION Sandra Smith, Membership Jacqueline Menendez San Francisco, California Committee Chair Research Assistant THE COLUMBUS FOUNDATION Columbus, Ohio TABLE OF INTRODUCTION 1–8 CONTENTS About the Toolkit 1 Acknowledgments 4

EXECUTIVE SUMMARY 9–16 A Framework to Strengthen Community 11 Immigrant Integration Funding Recommendations 13

HISTORICAL CONTEXT AND CONTEMPORARY IMPERATIVES 17–24 The Historical Context for Integration 17 Why Now: The Imperatives for Integration 18 Why the Rise in the Undocumented Population 22 Race and Immigration 23

GCIR’S IMMIGRANT INTEGRATION FRAMEWORK 25–32 Defining Immigrant Integration 25 Mutual Responsibility, Mutual Change, Mutual Benefits 26 Multi-Sector Involvement 27 Multi-Strategy Approach 28 Pathways to Integration 28 Benefits of Integration 30 Evaluating Immigrant Integration Efforts 31

PROMISING PRACTICES IN IMMIGRANT INTEGRATION 33–204 Communitywide Planning 33 Language Access 59 Language Acquisition 71 Education 83 Health and Well-Being 103 Economic Mobility 125 Equal Treatment and Opportunity 147 Social and Cultural Interaction 169 Civic Participation and Citizenship 187

FILMS ABOUT THE EXPERIENCES OF NEWCOMERS IN AMERICA 205–218 Immigrant Integration: The Newcomer’s Perspective 208 Journey to the Homeland 213 Profiles 215 New and Coming Attractions 216

ADDITIONAL RESOURCES 219–254 History of U.S. Immigration Law and Policy 219 Fast Facts 223 Glossary of Terms 235 Recommended Readings 241 DVD-ROM of Film Clips and Other Resources back pocket

Look for this symbol for references to the enclosed DVD in the inside back page pocket.

ABOUT OVERVIEW The toolkit includes a wide range of resources to meet the information needs THE TOOLKIT Grantmakers Concerned with Immigrants of diverse foundations, from those new and Refugees (GCIR) is pleased to to immigrant-related issues and seeking present “Investing in Our Communities: points of entry to those with extensive Strategies for Immigrant Integration.” experience but looking for fresh ideas to The introduction of this toolkit is espe- advance their work in this field. We hope cially timely, given the heated national the toolkit is an equally informative debate on immigration policy reform resource to both foundations working in that spurred the activism of millions of emerging immigrant destinations and immigrants and their supporters in 2006. those funding in traditional immigrant But regardless of immigration politics gateways. Because successful integration and any changes in U.S. immigration requires the involvement of multiple laws, demographic, stakeholders, the toolkit is also designed economic, and to inform and strengthen the work of This toolkit seeks to catalyze inquiry, social forces will diverse practitioners in the nonprofit, exploration, and action to promote effective continue to bring public, and private sectors. integration programs and policies. immigrants of all backgrounds to GCIR envisions this publication not as our communities, and their integration an end in itself but as a tool to engage into and impact on our society will multiple stakeholder groups and facilitate remain a major issue that warrants ongoing discussions within institutions philanthropic attention, now and in the and communities. We want the toolkit foreseeable future. to catalyze inquiry, exploration, and action to promote effective integration Increasingly, foundations across the programs and policies across the United country are recognizing that their grant- States and beyond. We invite you to making strategies must respond to the peruse the following pages and consider needs and contributions of immigrants. the role you and your institution can As our nation’s demography continues to play to build strong, cohesive communi- diversify, GCIR firmly believes that an ties through immigrant integration. intentional focus on immigrant integration—particularly broad-based efforts that are multi-ethnic, multi-sector, and multi-strategy in approach—holds strategic promise to strengthen both individual communities and the country as a whole.

Built on extensive research and interviews with foundation, community, business, and government leaders, this multimedia toolkit seeks to inform the development of program, policy, and grantmaking strategies to promote immigrant integration. It also aims to help foundations, regardless of their funding priorities and geographic focus, understand the vital importance of supporting efforts that weave newcomers into the fabric of our society. Courtesy of the Library of Congress Italian immigrant family at Ellis Island, circa 1910.

1 ORGANIZATION OF THE TOOLKIT • GCIR’s Immigrant Integration Unable to include every exemplary Framework. This section defines the approach and organization, this section To help the reader maximize the use of concept of immigrant integration and identifies basic principles and compo- the vast amount of information and identifies pathways to and benefits of nents of promising practices that can be resources, we have organized the toolkit integration. It discusses the important applied to and replicated in other settings in six distinct sections: interrelationships among distinct issue to promote immigration integration. areas and establishes the framework as • Executive Summary. This section a helpful tool for funders and other • Films about the Experiences of provides an overview of the historical stakeholders with particular issue inter- Newcomers in America. This filmography and contemporary context for integra- ests. The section also offers basic guid- provides a listing of recent documentary tion and summarizes GCIR’s Immigrant ance on evaluating immigrant films that put a human face on complex Integration Framework. Most signifi- integration efforts. immigration issues. They bring today’s cantly, it offers a set of concrete recom- rich and varied immigrant integration mendations to guide philanthropic • Promising Practices in Immigrant experiences to life and illustrate the investment in immigrant integration Integration. Organized along GCIR’s human consequences of policy decisions activities. pathways for integration, this section in a way that statistics and words alone compiles program and policy models cannot do. • Historical Context and that hold considerable promise to pro- Contemporary Imperatives. This section mote immigrant integration at the local, • Additional Resources. Resources offers a brief historical perspective on state, and regional levels. It also offers include an overview of U.S. immigration immigrant integration and discusses indicators of success and measurable history, a selection of fast facts on the demographic, economic, and social outcomes that can be used to evaluate immigration and immigrant integration, imperatives that drive the need for and demonstrate achievement, as well a glossary of terms, and an annotated integration today. It also examines as improve immigrant integration listing of recommended readings for critical topics such as the rise in the strategies. those who wish to dig more deeply. The undocumented population and the role DVD-ROM in the toolkit back-cover of race in immigration and immigrant The section profiles promising practices pocket contains film clips and other integration. to address immigrants’ needs and facili- resources to help the reader engage tate their contributions. These practices foundation colleagues and other stake- are drawn from both established immi- holders in productive discussions on grant gateways and newer immigrant immigrant integration. destinations, primarily in the United States. The reader The reader should note that the policy We invite you to use GCIR as a resource and will find models environment was highly volatile during to tell us what you’re learning and whether of varying scale, the production of this toolkit. Some of and how these toolkit resources are scope, stage of the information, particularly relating to making a difference. implementation, immigration reform, will surely be out- population and dated by the publication date. But the geographic focus, race and ethnicity, need for immigrant integration remains level of philanthropic investment, among vital despite the ebbs and flows of policy many other factors. Consistent with GCIR’s and politics, and we believe the toolkit’s Immigrant Integration Framework, this core content will have a lengthy section highlights models that are multi- shelf life. ethnic, multi-sector, and multi-strategy in approach, particularly those that engage both newcomer and native-born residents.

2 © Jupiter Images

AN INVITATION In addition to letting us know how we can help, we invite you to tell us what GCIR hopes that our Immigrant you’re learning and whether and how Integration Framework and the promising these toolkit practices and resources in this toolkit resources are mak- As you consider immigrant integration will inform your work and inspire you ing a difference in issues within your foundation, let us know to explore a new or expanded role in your grantmaking how the GCIR network can help inform your supporting immigrant integration efforts and in your com- discussions and deliberations. within your funding priorities and munities. We also communities. invite you to contribute promising practices and other resources; we’ll make As you consider immigrant integration them available to the field via our web- issues within your foundation, let us site, electronic newsletters, and New know how the GCIR network can help Americans publication. inform your discussions and deliberations. Our staff and consultants have in-depth We welcome your questions, concerns, knowledge and expertise to support your ideas, and suggestions and look forward to work. At the most basic level, we can being both a resource to and a partner provide additional information resources, in your immigrant-related grantmaking. serve as a sounding board, organize funder briefings, and connect you to Susan Downs-Karkos colleagues with similar funding interests. Co-Chair, GCIR Board of Directors For those interested in a higher level of Senior Program Officer The Colorado Trust, Denver service, we can conduct research, help prepare board memos and presentations, Taryn Higashi and offer customized consultation to meet Co-Chair, GCIR Board of Directors the specific needs of your foundation. Deputy Director, Human Rights Unit Ford Foundation, New York

3 ACKNOWLEDGMENTS project of this scope would not have and writing the promising practices in Abeen possible without solid foundation language, education, health and well- support; a team of talented thinkers, being, economic mobility, and equal researchers, writers, editors, and designers; treatment and opportunity. We are and wonderful colleagues who provided indebted to Ted for his invaluable con- insightful guidance and unwavering tribution; the toolkit has much greater support. depth and breadth because of his work.

First and foremost, GCIR gratefully Craig McGarvey, a well-respected acknowledges the project funders for consultant formerly with the James their financial support and for their Irvine Foundation, was the point person confidence in our ability to produce a on the promising practices in community- resource that would inform and wide planning and civic participation strengthen the field. and contributed to the section on social and cultural interaction. We extend our We wish to thank the Annie E. Casey appreciation to Craig for his critical role Foundation and the Ford Foundation, on the team and for his moral support both longtime institutional supporters throughout the project. of GCIR, for their early investment. Their grants gave us the time needed to fully Our sincere thanks also go to Kien explore the issues and to conduct much- Lee, senior managing associate at the needed research, and their thoughtful Association for the Study and Development questions helped us conceptualize a of Community. Kien took charge of the strong framework for immigrant toolkit’s evaluation component and was integration. always ready to lend a helping hand.

We are grateful to Carnegie Corporation Beyond their specific assignments, Ted, of New York, Evelyn & Walter Haas, Jr. Craig, Susan, and Kien were critical Fund, Hyams Foundation, John S. and sounding boards for this project, asking James L. Knight Foundation, The tough questions and providing construc- California Endowment, The California tive guidance on everything from the Wellness Foundation, Unitarian Universalist structure of the toolkit to the framing Veatch Program at Shelter Rock, and of difficult issues. We benefited greatly Zellerbach Family Foundation. Not only from their intellect and decades of com- did these foundations provide financial bined experience on immigrant issues. support; they also shared their expertise and directed us to organizations engaged Our appreciation goes to Ada Tso, our in effective integration work across the part-time research assistant and an United States. undergraduate student at the University of California, Berkeley. Ada researched With a small core staff, GCIR relies and wrote several case studies and considerably on outside expertise for promising practices and assisted with our publication projects. Susan Drake, proofreading. former longtime executive director of the National Immigration Law Center, We are grateful to Jim Thomas, a San conducted extensive research, including Francisco-based consultant specializing in interviews and literature review, to research and evaluation. Jim contributed ensure that the framework we developed three case studies which enriched the draws upon the latest thinking and toolkit with additional promising prac- theoretical constructs in the field. Her tices in the areas of health and civic health, immigration, and public benefits participation. expertise significantly strengthened the We also thank Amy Skillman of the toolkit. Institute for Cultural Partnerships, Patty Ted Wang, a highly regarded consultant Haller of the Idaho Office of Refugees, most recently with Chinese for Affirmative and freelance writer Julie Chao, each of Action/Center for Asian American whom contributed a case study that was Advocacy, took the lead in researching adapted for inclusion in the “Promising Practices in Immigrant Integration” section.

4 Alejandra Domenzian, who organized the consummate professionals and amazing section on fast facts and provided edit- colleagues, and GCIR is lucky to have ing and proofreading assistance, has our them on our staff. This project would appreciation for her thorough work. not have been possible without their hard We also thank Jacqueline Menendez, work, patience, and support, especially another part-time research assistant and during the final three months of student at UC Berkeley, who spent hours production. trolling the Web to find many of the quotes on immigrants highlighted in GCIR’s incredible board members have these pages. our gratitude for their guidance, ideas, push-back, and encouragement through- Michael Kay, a former intern and a out the project. A roll-up-your-sleeves regular contributor to New Americans, board, they helped with every aspect of provided invaluable editing assistance the toolkit, including framing key inte- on a number of case studies and promis- gration issues, sharing their resources ing practices. His work helped improve and contacts, organizing focus groups, the toolkit’s clarity and accessibility, reviewing various drafts, editing sections particularly for readers who are not that draw on their expertise, and immersed in immigration and immigrant screening film clips for the DVD-ROM. integration issues. Their contributions were much appreciated. As production came down to the wire, Rachel Kahn and Ming Leung also took Sharon Bouton, our graphic designer, on editing assignments. Amanda Kellett, made the toolkit an inviting resource, a former GCIR staff member with an eye no easy task given its complexity and for details, provided critical proofreading substantial girth. Axie Breen, Caroline assistance. Amanda, Rachel, and Ming Prado, and Matt Bail assisted with pro- helped us meet a very tight timeline, duction and added design touches of but more importantly, their contributions their own. We convey our deepest made the toolkit a more readable, user- thanks to these talented designers and friendly resource. production artists—as well as Barlow Printing, a small family-owned business— GCIR owes a world of gratitude to Active for their hard work in getting the toolkit Voice and its talented and highly profes- completed in time for release at our sional staff—Ellen Schneider, Grace Eng, June 2006 national convening. and Steve Bartz—who took charge of producing the filmography and the DVD- Last but certainly not least, we thank ROM. These rich resources would not the dozens of organizers, advocates, have been part of the toolkit without service providers, researchers, community their expertise, creativity, and hard leaders, government officials, and work. We also thank Grantmakers in Film funders who generously shared with us and Electronic Media and David Haas for their time, knowledge, expertise, and their seed funding to produce the insights. Without them, there would be filmography. no toolkit. Whether or not their organizations are featured in these pages, the Bryan Rhodes, our executive assistant overall conceptualization of the toolkit and office manager, spent countless hours was certainly informed and strengthened researching photographs, conducting by their input. We are inspired by their fact checks, and providing research and hard work, ingenuity, and steadfast administrative support. Alison De Lucca, commitment to helping immigrants our program director, conducted focus become fully contributing members groups on immigrant integration in new of society. We hope you will be gateway states. She also took charge of inspired, too. programmatic matters, as other organizational resources were directed toward Daranee Petsod toolkit production. Alison and Bryan are GCIR Executive Director June 2006

5 THANK YOU FOR SHARING Brenda Dann-Messier, Dorcas Place, Roland Ho, Orange County Community Providence, RI Foundation, Irvine, CA YOUR EXPERTISE! Sharon Darling, National Center Idaho Community Action Network, Boise, ID Seema Agnani, Fund for New Citizens, for Family Literacy, Louisville, KY Gloria Lara New York City, NY Adon Ramirez Vida Day, El Puente, Jackson, WY Fadumo Ali, VOICE for Community Power, Illinois Coalition for Immigrant and Minneapolis, MN John de Leon, Chavez & de Leon, Miami, FL Refugee Rights, Chicago, IL Josh Hoyt Betty Alonso, Dade Community Foundation, Maria Dominguez, Alliance for Human Fred Tsao Miami, FL Services Advisory Board, Miami, FL Illinois Department of Human Services, Margarita Alzidres, parent, Lost Hills, CA Michael Donahue, International Institute Springfield, IL of Minnesota, St. Paul, MN Grace Hou Jocelyn Ancheta, Blue Cross and Blue Shield Ed Silverman of Minnesota Foundation, Eagan, MN Susan Downs-Karkos, The Colorado Trust, Denver, CO Deepa Iyer, South Asian American Leaders Jerry Anfinson, Hormel Foundation, of Tomorrow, Silver Spring, MD Austin, MN Yvonne Duncan, Long Beach City College, Long Beach, CA Marcy Jackson, English Center for Jojo Annobil, New York Legal Aid Society, International Women, Oakland, CA New York City, NY Maria Echaveste, UC Berkeley Boalt Hall School of Law, Berkeley, CA Deeana Jang, Center for Law and Social Liz Arjun, Children’s Alliance, Seattle, WA Policy, Washington D.C. Evelyn and Walter Haas, Jr. Fund, Ana Garcia Ashley, Gamaliel Foundation, San Francisco, CA Alan Jenkins, The Opportunity Agenda, Chicago, IL Robert Bray New York, NY Henry Der Dale Asis, Coalition of African, Asian, Sylvia Yee Wanda Jung, San Francisco Human Services European and Latino Immigrants of Illinois, Agency, San Francisco, CA Chicago, IL Sunny Fischer, Richard H. Driehaus Foundation, Chicago, IL Hamid Khan, South Asian Network, Lina Avidan, Zellerbach Family Foundation, Los Angeles, CA San Francisco, CA Michael Fix, Migration Policy Institute, Washington, DC Jessica Kim, Koreatown Immigrant Workers Linda Baker, The David and Lucile Packard Alliance, Los Angeles, CA Foundation, Los Altos, CA Hector Flores, M.D., White Memorial Medical Center Family Residency Program, Prudy Kohler, formerly of The James Irvine Talle Bamazi, KIACA Gallery, Columbus, OH Los Angeles, CA Foundation, San Francisco, CA Karen Bass, California Assembly Member from Janice Freedman, North Carolina Healthy Jim Krile, Blandin Foundation, the 47th District, formerly of the Community Start Foundation, Raleigh, NC Grand Rapids, MN Coalition for Substance Abuse Prevention and Treatment, Los Angeles, CA Michael Frias, Federal Deposit Insurance Kalpana Krishnamurthy, Western States Corporation, Chicago, IL Center, Portland, OR Blue Cross and Blue Shield of Massachusetts Foundation, Boston, MA Foundation for Child Development, Maria Kulp, Planned Parenthood of Greater Phillip González New York, NY Miami, Palm Beach and the Treasure Coast, Celeste Lee Annette Chin (consultant) West Palm Beach, FL Ruby Takanishi Joanna Brown, Logan Square Neighborhood Doua Lee, Southeast Asian Community Association, Chicago, IL Debora Furce, Refugee Family Services, Council, Minneapolis, MN Clarkston, GA Annie E. Casey Foundation, Baltimore, MD Ruby Lee, The Saint Paul Foundation, Irene Lee Jayne Gibson, Austin Public Schools, St. Paul, MN Irene Skricki Austin, MN Ramón León, Latino Economic Development Ted Chen, W.K. Kellogg Foundation, Emily Goldfarb, Consultant, San Francisco, CA Center, Minneapolis, MN Battle Creek, MI Karen Griego, University of New Mexico, Daniel Lesser, Sargent Shriver Center Dudley Cocke, Roadside Theater, Norton, VA Albuquerque, NM on Poverty Law, Chicago, IL James Comstock, Oregon Judicial Kaying Hang, Otto Bremer Foundation, Deborah Liu, City of Oakland, CA Department, Salem, OR St. Paul, MN Pheng Lo, People and Congregations Gina Craig, Donors’ Forum of South Florida, Leonie M. Hermantin, Haitian Neighborhood Together, of the Pacific Institute for Miami, FL Center, Sant La, Miami, FL Community Organization, Stockton, CA Marissa B. Dagdagan, Family Violence Monica Hernandez, Highlander Research and Esther Lopez, Governor’s Office, Prevention Fund, San Francisco, CA Education Center, New Market, TN State of Illinois, Springfield, IL

Christopher Ho, Legal Aid Society/Employment Michele Lord, Four Freedoms Fund, Law Center, San Francisco, CA New York, NY 6 Los Angeles Alliance for a New Economy, New York Immigration Coalition, Liliana Silvestry, The Welcome Center, Los Angeles, CA New York, NY Austin, MN Vivian Rothstein Jose R. Davila Roxana Tynan Adam Gurvitch Goizueta Foundation, Atlanta, GA Margie McHugh Amanda Smith David Lubell, Tennessee Immigrant and Benjamin Ross Maria Elena Retter Refugee Rights Coalition, Nashville, TN Ashley Robinson Christine Neumann-Ortiz, Voces de la Kelly Medinger Sara Lundquist, Santa Ana College, Frontera, Milwaukee, WI Santa Ana, CA Sandra Smith, The Columbus Foundation, Office of Human Relations, San Jose, CA Columbus, OH Roberta Malavenda, Smart Start Georgia, Teresa Castellanos Atlanta, GA Richard Hobbs Abdi Soltani, Campaign for College Opportunity, Oakland, CA Alexandra K. Mann, Lower East Side Tenement Ratna Omidvar, The Maytree Foundation, Museum, New York, NY Toronto, Ontario, Canada Unmi Song, The Fry Foundation, Chicago, IL

Sara Martinez, El Paso Community College, Partnership for Immigrant Leadership and Nikki Will Stein, Polk Bros. Foundation, El Paso, CA Action, San Francisco, CA Chicago, IL Maria Rogers Pascual Myrna Martinez-Nateras, Pan Valley Institute Monica Regan Ralph Taylor, Central Indiana Community of the American Friends Service Committee, Foundation, Indianapolis, IN Fresno, CA Luis Pastor, Cooperativa Comunitaria Latina de Credito, Durham, NC Tenants and Workers United, Alexandria, VA Chanchanit Martorell, Thai Community Jon Liss Development Center, Los Angeles, CA Jo Peterson, Minneapolis Community and Elsa Riveros Technical College, Minneapolis, MN David Staples Rachel McIntosh, The Capacity Building Evelin Urratia Initiative: Immigrant and Refugee Anne Philben, Center to Support Immigrant Florinda Ventura Organizations, United Way of Central Ohio, Organizing, Boston, MA Columbus, Ohio Paul That, Viet-Aid, Inc., Boston, MA PICO California Project of the Pacific Deborah S. McVeigh, The Village for Early Institute for Community Organization, The California Endowment, Los Angeles, CA Childhood Education, Littleton, CO Sacramento, CA Ignatius Bau, San Francisco Jim Keddy Laura Hogan, Sacramento Lourdes Montes, East Harbor Community Rebecca Stark George Zamora, Sacramento Development Corporation, Baltimore, MD Carlos Quirindongo, Hormel Foods, Austin, MN The Minneapolis Foundation, Minneapolis, MN Nancy Alba Mullenax, San Francisco Welcome Emmett Carson Back Center, San Francisco, CA Bonnie Rietz, Mayor, Austin, MN Christelle Langer

Karen Narasaki, Asian American Justice Rebecca Rittgers, Atlantic Philanthropies, Eric Thompson, Florida ACORN, Miami, FL Center, Washington, DC New York, NY University of Georgia, Athens, GA National Council of La Raza, Washington, DC Riverland Community College, Austin, MN Michael Padilla Charles Kamasaki Roger Boughton (retired) Paul Matthews Clarissa Martinez Sue Grove Cecilia Muñoz Paul Uyehara, Community Legal Services, Maria Rodriguez, Florida Immigrant Coalition, Philadelphia, PA National Health Law Program, Miami, FL Washington, D.C. Yolanda Vera, LA Health Action, Jane Perkins Silvia Rodriguez, Get Enrollment Moving, Los Angeles, CA Mara Youdelman Covina, CA Jill Weiller, Tellin’ Stories Project/Teaching National Immigration Forum, Washington, DC Robert Rubin, Lawyers’ Committee for for Change, Washington, DC Angela Maria Kelley Civil Rights the San Francisco Bay Area, Frank Sharry San Francisco, CA Christopher Whitney, Chicago Council on Foreign Relations, Chicago, IL National Immigration Law Center, Loretta Saint-Louis, Cambridge Health Los Angeles, CA and Washington, DC Alliance, Cambridge, MA Kent Willis, American Civil Liberties Union of Josh Bernstein Virginia, Richmond, VA Tanya Broder Carolyn Sexton, North Carolina Division of Joan Friedland Public Health, Raleigh, NC Luna Yasui, Chinese for Affirmative Action, Marielena Hincapié San Francisco, CA Linton Joaquin Sharon Seymour, City College of San Francisco, San Francisco, CA Son Ah Yun, Center for Community Change, Nebraska Appleseed Center for Law in the Washington, D.C. Public Interest, Lincoln, NE Reshma Shamasunder, California Immigrant Milo Mumgaard Welfare Collaborative, Los Angeles, CA Tom Zamorano, Florida Immigrant Advocacy Darcy Tromanhauser Center, Miami, FL Joan Shigekawa, The Rockefeller Foundation, New York, NY Leticia Zavala, Farm Labor Organizing Committee, Dudley, NC

7 8 HISTORICAL mmigration is an enduring hallmark Nevertheless, the majority of immigrants Iof the United States, helping drive across the generations—overcoming CONTEXT economic growth and defining national poverty, discrimination, and other barriers identity since the country’s founding. to integration—have successfully pursued the American Dream, bettered their Although the United States has lives and those of their children, and benefited greatly from immigration, it enriched American society in the process. has always been fundamentally ambiva- Similarly, other groups, such as Native lent about newcomers and their role in Americans and African-Americans, have society. This ambivalence has created endured enormous hardships and have contributed signifi- The hard work and aspirations of people from diverse backgrounds cantly to the have made America the land of opportunity: a nation renowned for nation’s prosperity. self-reliance, freedom, and democracy. The hard work and aspirations of people from diverse formidable challenges for immigrants backgrounds have made America the throughout the course of U.S. history, land of opportunity: a nation renowned whether they hail from Europe, Africa, for self-reliance, freedom, and democracy. Asia, Latin America, or the Middle East.

CONTEMPORARY oday, as in the past, immigrants immigrants can strengthen our society Tcontinue to play a vital role in our as a whole. IMPERATIVES society. As native birth rates continue to decline and as the Baby Boom gener- The unprecedented level of migration ation begins to retire, immigrants and their around the world, the high volume of children—as workers, taxpayers, con- immigration to the United States, and sumers, and entrepreneurs—will become immigrants’ expanding role in American even more critical to U.S. economic society create strong imperatives for vitality and global competitiveness. immigrant integration. To continue thriving as a nation, Many American communities are increasingly recognizing that the United States must be intentional immigrants, regardless of their immigration status, are vital to local about weaving economies and are part of the social and cultural fabric. newcomers into the fabric of society and Many American communities are creating opportunities for them to work increasingly recognizing that immigrants, with native-born residents on shared regardless of their immigration status, goals and interests. How well we inte- are vital to local economies and are grate immigrants and provide opportu- part of the social and cultural fabric. nities for all community members has Together with longtime residents, new- far-reaching implications for—and is comers can contribute to community inextricable from—our current and problem solving and help address long- future vitality. standing social issues like poverty and racial inequities. Efforts to integrate

THE USE OF “IMMIGRANT” AND “NEWCOMER” IN THIS REPORT

This report uses “immigrant” and “newcomer” to generally describe a foreign-born person living in the United States, regardless of their immigration status or whether they have become U.S. citizens.

9 GCIR’S IMMIGRANT DEFINITION SIX PATHWAYS

INTEGRATION GCIR defines immigrant integration as GCIR’s Immigrant Integration Framework FRAMEWORK a dynamic, two-way process in which identifies six strategic pathways through newcomers and the receiving society which immigrants and the receiving work together to build secure, vibrant, community can work together to provide and cohesive communities. We utilize resources and opportunities and leverage the term “integration” rather than the human capital that immigrants “assimilation” to emphasize respect for bring: and incorporation of differences, the • Communitywide planning. importance of mutual adaptation, and an appreciation of diversity. • Language and education. • Health, well-being, and economic As an intentional effort, immigrant mobility. integration engages and transforms all community stakeholders, reaping shared • Equal treatment and opportunity. benefits and creating a new whole that • Social and cultural interaction. is greater than the sum of its parts. • Civic participation and citizenship. Mutual responsibility and benefits, multi-sector involvement, and multi- These pathways serve both as a tool for strategy approach are the cornerstones facilitating integration and as a means of GCIR’s Immigrant Integration to assess whether integration is taking Framework. place successfully. They interact dynam- ically, each with the power to reinforce As an intentional effort, immigrant integration engages or weaken progress in the other areas. and transforms all community stakeholders, reaping For example, language and education shared benefits and creating a new whole that is greater are highly correlated with economic than the sum of its parts. mobility but are also a determining factor in health care access, citizenship and civic participation, and interaction The actions immigrants take, the with native-born residents. Similarly, resources they possess, and the recep- unequal treatment can threaten not only tion and supports they receive from the economic mobility but also immigrants’ host community are key determinants of ability to access critically needed serv- successful integration. The engagement ices and to participate in democracy. of all stakeholders in the newcomer and receiving communities, as well as those Immigrant integration as a framework who bridge the two, is also critical to holds considerable promise to guide the the integration process. All sectors of development of program, policy, and society—including government, nonprofit, funding priorities to build a stronger, business, labor, faith, and philanthropy— more cohesive society to benefit all have a self-interested stake in promoting members. To reap the full benefits of immigrant integration. integration, however, U.S. society must invest in building a system to welcome “ ur nation’s immigration policy must be consistent immigrants, support their integration Owith humanitarian values and with the need to into the social and economic fabric, treat all individuals with respect and dignity…. Problems and value their cultural and linguistic with the immigration system cannot be resolved without diversity. Any investment in immigrant looking at the larger economic needs… such as the cre- integration, however, should be made ation of job training programs and small business pro- as part of broader community-building efforts. In so doing, our nation can live grams, as well as federal education assistance so that all up to its reputation as the land of Americans can have enhanced opportunities.” opportunity where people of all color, cultural background, and walks of life —Bruce S. Gordon can put down roots and build a shared President & CEO, NAACP, 2006 community together, now and in the future.

10 © 2006 by Grantmakers Concerned with Immigrants and Refugees. The term “immigrant” or “newcomer” is generally used to describe Why Now: The Imperatives for Integration Policy changes in the past decade erode core American • Policies intended to affect only immigrants have a direct • • • • • inextricable from—our current and future vitality. for all members has far-reaching implications for—and is How well we integrate immigrants and provide opportunities tional about weaving newcomers into the fabric of society. tinue thriving as a nation, the United States must be inten- factors creates imperatives for immigrant integration. Tocon- The confluence of demographic, economic, social, and political for publicly funded health and social services. by curtailing their civil rights and limiting their eligibility values and affect the ability of immigrants to integrate are U.S. citizens. immigration status and 75 percent of children of immigrants because 85 percent of immigrant families have mixed impact on many American families and communities begins to retire. continue to decline and as the Baby Boom generation critical to U.S. economic vitality, consumers, and entrepreneurs—will become even more Immigrants and their children—as workers, taxpayers, ties, and expand U.S. global competitiveness. shortages, revitalize declining urban and rural communi- depend on immigrants Current and future U.S. economic growth and stability strengthen our democratic traditions. issues, improve racial and ethnic equity and cohesion, and tions create opportunities Growth, diversity, and dispersion of newcomer popula- for the United States as a top migrant-receiving country. no signs of abating. Global migration is a growing phenomenon that shows DEFINITION: integration engages and transforms all community members, reaping shared benefits and creating a new whole that is greater than and multi-strategy approach are the cornerstones of GCIR’s Immigrant Integration Framework. These elements are critical to any Immigrant integration is a dynamic, two-way process in which newcomers and the receiving society work together to build secure, SOCIAL & CIVIC DEMOGRAPHIC This trend has enormous implications ECONOMIC who help address labor market to address longstanding social as native birth rates Immigrant Integration: A Framework to Strengthen Community processes, engage in life of broader community Adapt to a new culture without losing identity facilitate immigrant integration and promote overall safety, health, and well-being of communities. Such interaction fosters understanding, creates a sense of belonging, and facilitates mutual engagement. Commit to new community, learn about civic Intentional and inclusive planning allows newcomers longtime residents to work together human capital to the benefit of our entire society. Immigrant integration efforts can draw upon myriad Seek opportunities to participate actively in Through these six strategic pathways, all stakeholders can work together to leverage immigrants’ paying taxes, and starting new businesses members; help promote equal treatment Be responsible, contributing community helping immigrants establish a foothold and to strengthening the broader community. Contribute to the economy by working, broad community planning endeavors Opportunities for newcomers to participate in civic life are vital integration. Programs that promote health, well-being and economic mobility are essential to Fair laws and policies are critical building blocks for successful integration. Utilize and support school system Be self-sufficient and support family Learn English while maintaining Engage with longtime residents ECMRCMUIYRECEIVING COMMUNITY COMMUNITY NEWCOMER providing education opportunities are key to successful integration. strategies from organizing and advocacy to research and communications. Eliminating language barriers, promoting English proficiency, and to find common ground and opportunity for all Health, Well-being, & Economic Mobility native language Citizenship & Civic Participation Equal Treatment & Opportunity Social & Cultural Interaction Pathways to Integration Communitywide Planning Language & Education a foreign-born person living in the United States, regardless of their immigration status or whether they have become U.S. citi community participation, and right to organize Promote citizenship, opportunities for Engage with newcomers to find common ground Learn about and respect diverse cultures protect newcomers’ rights, e.g., legal assistance ment and opportunity and provide resources to Enact and enforce laws that promote equal treat- jobs, and support for entrepreneurship Offer access to training opportunities, living-wage e.g., job training, health care, housing Provide services that support self-sufficiency, Provide equitable access to quality education ensure language access Offer quality English classes; in community planning efforts Systematically engage newcomers the sum of its parts. Mutual responsibility, multi-sector involvement, effort to weave newcomers into the fabric of our communities. vibrant, and cohesive communities. As an intentional effort, A more secure America • A more vibrant democracy • Global competitiveness • Increased productivity and a robust • Stronger communities with the • • A vibrant, cohesive society shared • potential to create: integration holds the immigrant groups, including philanthropy, collaboration among all stakeholder Through strong leadership by and status—live in dignity and equality. race, national origin, or socio-economic members of society—regardless of and contribute to the common good. nity—and responsibility—to engage members of society with the opportu- all groups are accepted as equal multi-lingual, multi-cultural workforce. entrepreneurs. of workers, consumers, taxpayers, and economy social and cultural fabric of our society. economic diversity; and enrich the needs; ability to meet wide-ranging neighbors. with their native-born in tandem tionsof immigrant families working communities The revitalization of declining and backgrounds. experiences, histories, ethnicities, of residents newcomer and valued by established and Benefits of Integration address racial, ethnic, and through an expanded base through the contribu- different where all through a in which zens.

11 BENEFITS OF INTEGRATION ROLE FOR PHILANTHROPY Regardless of strategies, foundations should link their investment in immigra- The potential benefits of successful The successful integration of immigrants tion integration with efforts to address immigrant integration to the broader in the early twentieth century was longstanding community issues such as society are significant: shaped significantly by U.S. philan- poverty, education, employment, and thropy, which played a leadership role, neighborhood safety. This approach, • A vibrant, cohesive society shared along with social reformers and others, which emphasizes shared concerns and and valued by established and new- to build public libraries, reform school positions newcomers as part of the comer residents of different experiences, systems, and enact health and work- solution, will help increase racial and histories, ethnicities, and backgrounds. place safety laws. In large part, these ethnic equity and enhance community cohesion. • Revitalization of declining communities and other reform measures sought to through the contributions of immigrant help cushion immigrants from crushing families working in tandem with their urban poverty and to facilitate their “ he Zellerbach Family Foundation’s native-born neighbors. move up in U.S. society. T commitment to immigrant inte- • Stronger communities with the ability In one of the most well-known examples, gration isn’t only based on humani- to meet wide-ranging needs; address steel magnate Andrew Carnegie founded tarian ideals. It is based on a reasoned racial, ethnic, and economic diversity; nearly 1,700 public libraries—the back- approach to building strong, inclusive and enrich the social and cultural fabric bone of the U.S. public library infra- communities. Guided by a board of our society. structure—so that children with no composed of experienced business access to formal schooling could edu- • Increased productivity and a robust and community leaders, the economy through an expanded base of cate themselves and advance, as he, Foundation believes that having workers, consumers, taxpayers, and an impoverished Scottish immigrant, entrepreneurs. had done. large numbers of community residents living on the margins can act as a • Global competitiveness through a More than a century later, U.S. weak link in community-building multi-lingual, multi-cultural workforce. philanthropy is in a strong and unique efforts, and that investing in the position to respond to the demographic, • A more vibrant democracy in which economic, and social imperatives of integration of low-income immigrants all groups are accepted as equal mem- immigrant integration. Foundations can ends up improving the quality of life bers of society with the opportunity— consider a range of grantmaking strategies for all of us.” and responsibility—to engage and depending on their funding approaches, contribute to the common good. issue priorities, geographic focus, and —Lina Avidan, Program Executive Zellerbach Family Foundation • A more secure America where all goals. By incorporating immigrants into members of society—regardless of race, their grantmaking priorities, they can San Francisco, CA national origin, or socio-economic draw upon myriad strategies for commu- status—live in dignity and equality. nity building and social change that philanthropy has long supported. These strategies include but are not limited “ he Chamber strongly supports to: direct services, capacity building, T immigration and believes that community outreach and education, leadership development, organizing, immigrants are a driving force in advocacy, legal assistance, research, our economy, both filling and cre- policy analysis, communications, media, ating jobs. They are also our best and litigation. hope to curb chronic American labor shortages.”

—Thomas J. Donohue President & CEO U.S. Chamber of Commerce, which represents over three million businesses

12 IMMIGRANT 1. PIONEER IMMIGRANT financial education, access to credit, INTEGRATION POLICIES legal services, among many others. INTEGRATION Effective programs are culturally and linguistically competent, well publi- FUNDING The United States has no national cized, and trusted by the community immigrant integration policies, and RECOMMENDATIONS (e.g., immigrants know that using such developing such policies is a long-term programs will not have negative immi- goal that merits philanthropic support. gration consequences for themselves or In the meantime, a great deal can be their family members). done at the state and local levels to facilitate the successful integration of In addition to funding these programs newcomers and encourage their informed directly, foundations can support and widespread participation in research, advocacy, organizing, and community life. communications capacity so that the funding and design of government pro- Foundations are in a unique position to grams (e.g., safety-net benefits like take leadership in initiating and invest- Medicaid) and systems (e.g., public ing in communitywide planning efforts schools and community colleges) that to develop and implement immigrant promote self-sufficiency actually meet integration policies. Such efforts are the needs of immigrant communities. vital to facilitating the integration of newcomers and to strengthening the fabric of our society. Ideally, communi- 3. FACILITATE UPWARD tywide planning should be multi-sector, MOBILITY multi-strategy, and multi-ethnic in nature. They should also encompass one Despite their crucial role in the U.S. or more of the six pathways in GCIR’s economy, many immigrants face enor- Immigrant Integration Framework; build mous challenges in achieving economic on the promising practices featured in stability. Foundations can support a this toolkit; and have solid evaluation number of strategies to address these and dissemination components. challenges and create pathways toward upward mobility for immigrant families through funding in the areas of educa- Philanthropy can—and should—play a pivotal role to shape a vision tion, employment, financial services, for a vibrant, cohesive society that is shared and valued by all of its and entrepreneurship. members, regardless of their ethnicity, national origin, or socio- economic status. This section provides foundations with big-picture Education. The quality of public educa- recommendations to promote successful immigrant integration in tion significantly defines the ability of ways that strengthen our broader society. GCIR invites you to review children of immigrants to realize their the “Promising Practices in Immigrant Integration” section of this full potential. Grantmakers can support toolkit for specific recommendations on grantmaking strategies for efforts to increase the availability of each of the six pathways in our Immigrant Integration Framework. early childhood education; improve and expand educational programs for English language learners; increase the involve- 2. PROMOTE SELF-SUFFICIENCY ment of immigrant parents; monitor the impact of No Child Left Behind on To help immigrant families achieve self- immigrant students; provide mentoring, sufficiency and contribute fully to their counseling, and other educational sup- communities, foundations can support a ports; expose immigrant students to wide range of programs including: career and higher-education opportuni- English classes, education, job training, ties; and create pathways to pursue health care, child care, affordable housing, post-secondary education.

13 Employment. Grantmakers can fund 4. ENSURE EQUAL TREATMENT Given the complexity, scale, and political programs that help low-skill workers AND OPPORTUNITY volatility of the U.S. immigration system, improve English proficiency, increase long-term funding for ongoing advocacy educational level or vocational skills, and monitoring of policy development True opportunity is not possible without and address workplace discrimination and implementation will be needed to equal treatment for all members of and mistreatment. Funders can also ensure that the rights of immigrants— society. U.S. laws and policies need to support efforts to help immigrants with and the broader interests of the commu- address barriers to integration, such as foreign credentials and work experience nity—are protected. Funding for a workplace exploitation, housing discrim- secure employment in their professions. broad-based, nationally coordinated ination, and restrictions on immigrants’ In addition, foundations seeking sys- effort to do so will be crucial. Community access to resources such as health, temic change can invest in living-wage education and outreach, legal assistance, social services, banking, and credit. campaigns and other forms of worker documentation, research, and litigation Policies that impede immigrants’ ability organizing, including union organizing, are also important activities to support. to integrate also harm the broader soci- to improve wages, benefits, and work- ety. For example, the exploitation of ing conditions for low-wage workers. immigrant workers depresses wages, 6. BUILD SOCIAL AND Partnerships with worker centers, deteriorates work conditions, and com- CULTURAL BRIDGES unions, employers, community colleges, promises the well-being of all workers. advocacy groups, and others can help Funders can support community educa- Social and cultural interaction is criti- increase the impact of these efforts. tion, legal assistance, organizing, advo- cally important to foster understanding, cacy, litigation, research, and other build trusting relationships, and lay Financial services. Foundations can activities to ensure equal treatment and the foundation for mutual engagement. increase the availability of affordable opportunity for immigrants and other Such interaction often can make or financial services to facilitate economic affected groups. break the integration experience, either integration. Newcomers can benefit erecting roadblocks or paving a path from education on topics such as finan- 5. SUPPORT FAIR AND HUMANE towards integration. cial planning, budgeting, and saving for IMMIGRATION POLICIES homeownership, college, or other major- To build social and cultural bridges, ticket expenses. Also important is edu- funders can support arts and humani- An immigration system that embodies cating immigrants on predatory lenders ties, cultural production and perform- the American values of fairness, equality, and lending practices, as well as services ance, and civic participation activities and opportunity is essential to promoting available from banks and other main- that emphasize interaction among immigrant integration. Such a system stream financial institutions. Services to immigrants and between immigrants advances U.S. social and economic help working-poor immigrant families and native-born residents. Forums to interests and protects civil rights while apply for the Earned Income Tax Credit educate newcomer and receiving com- enhancing national security. Depending and the Child Care Tax Credit can help munities about one another’s cultures, on their priorities, foundations can sup- promote economic stability. histories, and concerns are also valu- port efforts to develop and advocate for able, particularly in newer immigrant various changes and improvements in Entrepreneurship. Foundations can destinations unaccustomed to linguistic immigration policies including workable support entrepreneurship opportunities and cultural differences but also in tra- legal channels to meet current and for newcomers, helping them access credit ditional immigrant strongholds. These future labor-market demands, provisions and other resources, conduct market activities help newcomer and longtime to protect all workers from exploitation analysis and research, assess financial residents appreciate differences and find and abuse, a humane and effective risks, develop successful business plans, common ground. and pool skills and resources. Well- immigration enforcement program, expe- planned small businesses and coopera- dited processing of family immigration tive enterprises can create a pathway to visas, and promotion of naturalization economic mobility for some immigrants. and civic participation.

14 7. EXPAND IMMIGRANT 9. STRENGTHEN MULTI-ETHNIC, about their rights and responsibilities, PARTICIPATION MULTI-SECTOR ALLIANCES increase public understanding of the experiences of newcomers and their contributions to society, and inform The millions of immigrants who Multi-ethnic and multi-sector alliances debates on policy issues that can affect participated in rallies, marches, and are vital to successful immigrant inte- the well-being of immigrant families. demonstrations in 2006 clearly illustrate gration and effective community building. Communications training for immigrant newcomer communities’ deep interest Philanthropy has long supported efforts leaders and allies is also important to in civic life and their commitment to that engage both immigrants and native- increase their effectiveness in the media building a future in the United States. born, such as organizing and advocacy and other public arenas. In addition, Tapping into this groundswell of activism, campaigns to increase access to health multi-lingual polling can ensure that foundations can support activities such care for working families, address educa- immigrants’ voices are heard in main- as leadership development, organizing tional inequities, and improve wages stream debates. campaigns, naturalization, and non- and working conditions for all workers. partisan voter education and registra- Such funding to establish common ground Given the volatility of immigration issues, tion. Civic education is important to between immigrant and native-born funders can support the development of teach newcomers about local institu- constituencies, regardless of the issues, “rapid response” capacity to help immi- tions and how laws are made; it also can improve the well-being for all com- grant groups get their viewpoints out to gives immigrants the tools they need to munity members. participate effectively in local decision- making processes. In funding immigrant Equally important are At this historic crossroads, philanthropy can play participation, funders should pay partic- grants that connect a critical role in promoting the full integration of ular attention to efforts that engage immigrant-based newcomers into our society. Philanthropic investment young people and that allow newcomers organizations with and leadership—combined with the vision and hard and established residents, particularly other strategic part- work of immigrant and allied organizations—will people of color and low-income groups, ners, such as civil help ensure that America lives up to its heritage as to work together on issues of common rights groups, labor the land of freedom and opportunity. The future interest. unions, professional vibrancy of our country is at stake. associations, business 8. BOLSTER ORGANIZATIONAL interests, education CAPACITY systems, health providers, and faith- the media and the general public in a based organizations. Such grants can timely manner. Those wishing to make a Local, regional, and national immigrant support coalition building and the large investment can support paid cam- organizations—and the coalitions and development of partnerships and paigns in both print and electronic networks that link them together—do a alliances, regular convenings, strategy media. Communications efforts should tremendous amount of work with rela- sessions, and other activities that take place at various levels, from the tively few resources. Capacity-building connect immigrant groups to broader grassroots to inside the Beltway. grants can help these groups strengthen efforts to improve opportunities for all Depending on their resources and desired their organizational infrastructure and members of society. level of impact, local and national funders effectiveness, positioning them to have have a range of options for investing in greater impact to the benefit of both 10. ENHANCE COMMUNICATIONS communications strategies. newcomers and the receiving society. CAPACITY

In addition to the standard menu Funding of communications activities of capacity-building training, from is pivotal to creating openness to fundraising to board development and immigrant integration and policy reform financial management, immigrant organ- measures that expand, instead of izations can be strengthened by training restrict, opportunities for newcomers in communications, leadership develop- and other communities that have mutual ment, action research, advocacy, and interests. Activities such as message grassroots lobbying permissible by law. development, framing, public-opinion Building the capacity of these groups to research, and ethnic and mainstream work across lines of race and ethnicity media outreach can educate immigrants is crucial, both in traditional immigrant strongholds with significant diversity and in newer gateway communities that are beginning to diversify.

15 16 THE HISTORICAL mmigration is one of the United “ CONTEXT FOR I States’ most distinguishing charac- e are the land of opportunity. teristics, helping drive economic growth W Our streets may not be INTEGRATION and defining national identity since the paved with gold, but they are paved country’s founding. Immigrants across with the promise that men and the generations have made America the land of opportunity: a nation that val- women who live here—even strangers ues self-reliance, freedom, and democ- and newcomers—can rise as fast, racy and welcomes those willing to as far as their skills will allow.” work hard for a better future. —Senator Edward M. Although the United States has a strong Kennedy, D-MA, 1965 and unique heritage as a nation of immigrants, the integration of newcomers has always presented serious challenges Yet immigrants and their descendants, for both the newcomers and the com- throughout the course of U.S. history, munities that receive them. have overcome these barriers and have made substantial contributions to our Historically, when Americans view the country. Indeed, the quintessential present and future with confidence and American narrative as a nation of optimism, immigrants and the benefits immigrants derives its power from the they bring are valued and celebrated. But many generations of newcomers who when faced with economic downturns, have successfully pursued the American national-security concerns, and high- Dream, bettered their lives and those of volume immigration, U.S. society often their children, and enriched American becomes less welcoming and even hos- society in the process. Similarly, other tile to immigrants. Our national groups, such as Native Americans and ambivalence about immigrants and African-Americans, have contributed their role in American society creates significantly to the nation’s prosperity formidable barriers to immigrant inte- despite enduring enormous hardship. gration and community cohesion. At the dawn of the twenty-first century, the unprecedented level of migration around the world, the high volume of immigration to the United States, and immigrants’ expanding role in American society create imperatives for immigrant integration. To continue thriving as a nation, we must be intentional about weaving newcomers into the fabric of society. How well we integrate immigrants and provide opportunities for all community members has far-reaching implications for—and is inextricable from—

our current and future vitality. © AP Photo/Nati Harnik Harnik Photo/Nati AP ©

17 WHY NOW: THE IMPERATIVES FOR INTEGRATION

Watch the DVD The New Americans: A Grandfather’s Story Native-born Americans rarely get to see how economic conditions compel many families to make the difficult decision to leave their homelands in search of a decent espite benefiting greatly from GROWTH, DIVERSITY, AND life. Listen in as a Mexican farmer explains Dimmigration since its founding, the DISPERSION OF NEWCOMERS to his young grandson about a once- United States has no national immigrant fertile land that can no longer produce CREATE OPPORTUNITIES crops and a government that integration policies to help newcomers restricts water rights. establish a foothold and become full The growth, diversity, and dispersion of members of society. Given current demo- newcomer populations create opportuni- graphic, economic, and social realities, ties to address longstanding social the development and implementation of issues, improve racial and ethnic equity such policies—and the widespread and and cohesion, and strengthen our demo- informed involvement of newcomers in cratic traditions. “ his country has benefited civic life—are essential to the future T immensely from the fact that we prosperity of American communities. • The volume of immigrants to the draw from people from all over the United States is at an all-time high. As a result of global economic and world. And the average immigrant GLOBAL MIGRATION IS A political factors, the foreign-born popu- comes from a less benign environment, GROWING PHENOMENON lation in the United States tripled in and indeed that’s the reason they’ve the past four decades and currently come here. The global migration phenomenon shows totals about 37 million or nearly 12 per- And I think they appreciate the no signs of abating. An estimated 185 cent of the overall population. to 192 million people live outside their benefits of this country more than countries of birth, up from 82 million in By 2010, this figure is expected to those of us who were born here. And increase to 43 million, or 13.5 percent of 1970.1 The quest for improved economic 2 it shows in their entrepreneurship, prospects is a prime driver of migration. the total population. By joining forces their enterprise and their willingness Demographic imbalances also play a with native-born residents who share common concerns, immigrants can help to do the types of work that makes role: While the developed world’s popu- move longstanding social issues like this economy function.” lations are shrinking and their average age is rising, the developing world is poverty and racial inequities to the fore- —Alan Greenspan, Chairman, still young, and its population is grow- front of the nation’s public policy agenda. Federal Reserve Board, before ing. Meanwhile, internal conflicts and the House Financial Services • Today’s immigrants come from persecution based on ethnic, religious, Committee, July 2001 every corner of the globe. Mexico (38 or social grounds create millions of percent) and Latin America (20 percent) refugees. These global migration trends account for more than half of newcom- have a significant impact on the United ers to the United States. The remainder States, which is home to 20 percent of comes from Asia (23 percent), Europe the world’s migrant population. and Canada (12 percent), and Africa,

1. United Nations Population Division. 2003. Trends in Total Migrant Stock: The 2003 Revision. New York, NY: United Nations. 2. Capps, Randy, et al. 2005. The New Demography of America’s Schools: Immigration and the No Child Left Behind Act. Washington, D.C.: Urban Institute. September.

18 HISTORICAL AND CONTEMPORARY IMMIGRATION: A SNAPSHOT

KEY CHARACTERISTICS EARLY 20TH CENTURY CONTEMPORARY IMMIGRATION IMMIGRATION 1965-PRESENT 1880-1914

New arrivals as percent of From 1900-1910, new arrivals equaled From 1990-2000, new arrivals equaled U.S. population 11.6 percent of the population 3.7 percent of the population

Total foreign-born as percent 14.7 percent in 1910 12 percent in 2004 of U.S. population

Immigrants as percent of 24 percent in 1910 14.5 percent in 2004 U.S. workforce

Percent of U.S.-citizen children 28 percent in 1910 20 percent in 2000 living in immigrant families

Settlement patterns Urban gateway cities in East and Traditional gateways, with new North, with smaller numbers in West dispersion to suburbs; also high growth in the South, Mountain,and Plains states

Shift in the economy From frontier to industrialization From manufacturing to knowledge and service economy

Industries with high Mining, steel, and meatpacking —Sciences, engineering, and medicine concentrations —Construction, services, meatpacking, of immigrant workers and agriculture

Shift in countries of origin In 1882, 87 percent from northern Before 1960, 66 percent of legal and western Europe immigrants from Europe and Canada, By 1907, 81 percent from southern and 32 percent from Latin American and Asia eastern Europe By 2004, 12 percent from Europe and Canada, 81 percent from Latin America and Asia

SOURCES: Martin, Philip and Elizabeth Midgley. 2003. “Immigration: Shaping and Reshaping America,” Population Bulletin 58, No. 2. Washington, D.C.: Population Reference Bureau; Congressional Budget Office. 2004. A Description of the Immigrant Population. Washington, D.C.: Congressional Budget Office November; Congressional Budget Office. 2005. The Role of Immigrants in the U.S. Labor Market. Washington, D.C.: Congressional Budget Office. November; and Hernandez, Donald J. “A Demographic Portrait of Children in Immigrant Families.” Presented at the Brookings Institution, Washington, D.C., December 16, 2004. the Middle East, and other regions Illinois). In the 37 states never before (8 percent).3 In contrast, seven of the considered immigrant destinations, the top-ten sending countries in 1960 were foreign-born population during the European. The diversity of today’s immi- 1990s grew at twice the rate of these grants challenges our society to respond six states. States that experienced the to linguistic and cultural differences highest growth rate include North and to promote positive intergroup Carolina (274 percent), Georgia (233 per- understanding and relations. cent), Nevada (202 percent), Arkansas (196 percent), and Utah (171 per- • Newcomers are settling in urban, cent).4 Given the geographic dispersion suburban, and rural communities of immigrants, few communities across 3. Passel, Jeffrey S. and Roberto Suro. 2005. Rise, across America. Many immigrants are the country can afford to ignore the Peak, and Decline: Trends in U.S. Immigration now living, working, and going to school 1992–2004. Washington, D.C.: Pew Hispanic Center. imperative to develop immigrant inte- September. (Note: Due to rounding the percentage in communities well beyond the six tra- gration strategies. breakdown does not total 100 percent.) ditional gateway states (California, New 4. Passel, Jeffrey S. and Wendy Zimmermann. 2001. Are Immigrants Leaving California? Washington, York, Texas, Florida, New Jersey, and D.C.: Urban Institute. April.

19 CURRENT AND FUTURE U.S. ECONOMIC GROWTH AND STABILITY DEPEND ON IMMIGRANTS

In some declining communities, immigrants are contributing to the revitaliza- Watch the DVD tion of local economies.They are filling Hasta La Vista, Baby! jobs, starting new businesses, buying Immigrants who arrive in the United homes, and sending their children to States without documentation are often public schools. Many leaders in once- reluctant to defend their basic human and thriving metropolises like Pittsburgh legal rights. One community group, Somos Mayfair in San Jose, California, creates popular and depopulating rural states like theater based on residents’ own stories as Nebraska and Iowa view immigrants as a dynamic way to break through the isolation critical to rebuilding their communities. © Jupiter Images and build understanding. Find out more on the DVD and at Nationally, immigrants constitute a Undocumented immigrants constitute a www.mayfairneighborhood.org. growing share of the labor force. large percentage of low-wage workers in Although immigrants make up one in a number of industries, many of which nine U.S. residents, they comprise one would suffer great economic hardship in seven workers. During the 1990s, without them. In March 2005, they were one out of every two new entries into 24 percent of all workers employed in “ ittsburgh is like a lot of former the workforce was foreign-born.5 farming occupations, 17 percent in P industrial centers in the Assuming that immigration levels will cleaning, 14 percent in construction, Northeast—too much infrastructure remain constant, newcomers will and 12 percent in food preparation.8 account for half of the growth of the for too few residents. That's why a The U.S. Department of Labor projects working-age population between now policy of encouraging more immigra- that, by 2010, the United States will and 2015 and for all the growth create 22 million new jobs—nine million tion is so important to revitalizing between 2016 and 2035.6 more jobs than the estimated number of these older urban areas. Otherwise, Immigrants play an important role in new workers entering the job market. As the alternative is to start tearing many sectors of the U.S. economy, but native birth rates continue to decline them down.” they are most concentrated in jobs at and as the Baby Boom generation the high and low end of the labor mar- begins to retire, immigrants and their —Maxwell King, President The Heinz Endowments ket. For example, one in three doctors, children—as workers, taxpayers, con- Pittsburgh, Pennsylvania dentists, and nurses is foreign-born, and sumers, and entrepreneurs—will become one in three building and maintenance even more critical to U.S. economic workers is foreign-born.7 vitality and global competitiveness.

6. Research and Policy Committee of the Committee for Economic Development. 2001. Reforming Immigration. Helping Meet America’s Need for a Skilled Workforce. New York, NY: Committee for Economic Development. 7. Bureau of Labor Statistics. “2004-2014 Projections, Occupational Employment,” Occupational Outlook Quarterly, Winter 2005-06. Washington, D.C.: U.S. Bureau of Labor Statistics; Bureau of Labor Statistics, U.S. Department of Labor, News Release: “Labor Force Characteristics of Foreign-Born Workers in 2003,” December 1, 2004—Table 4. National Science Board, Science and Engineering Indicators 2004. Arlington, VA: National Science Foundation, 2004. 8. Passel, Jeffrey S. 2006. Size and Characteristics of the Unauthorized Migrant Population in the U.S. Estimates. Washington, D.C.: Pew Hispanic Center. March. © David Bacon

20 Notwithstanding changes in federal immigration law, many U.S. communi- IMMIGRANT CONTRIBUTIONS AS TAXPAYERS, ties are increasingly recognizing that CONSUMERS, AND ENTREPRENEURS undocumented immigrants, regardless of their immigration status, are vital to local economies and are part of the • The average immigrant, over a lifetime, pays $80,000 more in taxes than she and her immediate descendants receive in local, state, and federal benefits.9 social and cultural fabric. These communities are undertaking integration • Latino and Asian purchasing power, in 1994, constituted nearly $1 trillion, efforts of varying scale to address the or 12 percent of the U.S. total. Between 1990 and 2009, it is expected to grow needs and tap the contributions of this 347 percent, compared to an increase of 158 percent in total U.S. buying population. power.10

• Between 1997 and 2002, the number of Asian American businesses grew RECENT POLICY CHANGES 24 percent, and the number of Hispanic firms grew 31 percent, compared to ERODE CORE AMERICAN VALUES 10 percent for all U.S. businesses.11 AND AFFECT IMMIGRANTS’ ABILITY TO INTEGRATE 9. Smith, James P., and Barry Edmunston, ed. 1997. The New Americans: Economic, Demographic, and Fiscal Effects of Immigration. Washington, D.C.: National Research Council. Three acts of Congress in 1996—welfare 10. Humphreys, Jeffrey. “The Multicultural Economy 2004: America’s Minority Buying Power.” 2004. Georgia Business and Economic Conditions, Vol. 64, No. 3. (pp. 5-6). reform, immigration reform, and anti- www.selig.uga.edu/forecast/GBEC/GBECO43Q.pdf. See also Singer, Audrey, and Anna Paulson. terrorism legislation—curtailed rights 2004. “Financial Access for Immigrants: Learning from Diverse Perspectives,” Brookings Institution for immigrants and limited their eligi- Policy Brief. October. www.brookings.edu. 11. Humphreys, Jeffrey M. “The Multicultural Economy 2004: America’s Minority Buying Power.” bility for federally funded health and 2004. Georgia Business and Economic Conditions, Vol. 64, No. 3, Third Quarter. Athens, GA: social service programs. In addition, University of Georgia Selig Center for Economic Growth; Minority Business Development Agency. policies enacted in response to domestic 2005. State of Minority Business Enterprises. Washington, D.C.: U.S. Dept. of Commerce. September. security concerns since September 11, 2001—from the USA PATRIOT Act to the REAL ID Act—have weakened civil POLICIES INTENDED TO AFFECT society. In addition to staffing our businesses, they go to our schools, belong rights protections for citizens and non- ONLY IMMIGRANTS HAVE citizens alike, particularly those who are A DIRECT IMPACT ON MANY to our churches, and engage in community life. Yet their lack of legal status of Arab, Muslim, Middle Eastern, or COMMUNITIES creates a significant barrier to integra- South Asian descent. Regardless of immigration status, new- tion. Concentrated in low-wage jobs, Beyond the Beltway, in 2005, more than comers are woven into the fabric of undocumented immigrants have little 150 pieces of anti-immigrant legislation American communities. Eighty-five per- opportunity to improve their family’s were introduced in city councils and cent of immigrant families have mixed economic well-being. Their access to state legislatures in 30 different states. immigration status, and 75 percent of higher education is limited, even if they Most state bills and ballot initiatives children in immigrant families are U.S. came to this country as young children aimed to reduce undocumented immi- citizens. More than three million U.S. and graduated from an American high grants’ access to drivers’ licenses, citizen children have undocumented school. Exploitation and discrimination health care, and other public services. parents.12 The growing phenomenon of in the workplace, restricted access to Some municipalities are using existing mixed-status families makes it difficult drivers’ licenses, and fears of deporta- local housing ordinances that govern to isolate the effects of policies tion are some of the other factors that overcrowding to evict undocumented directed towards immigrants without marginalize undocumented immigrants in renters, and others are introducing new having a negative impact on their citizen our society. ordinances to restrict day laborers’ abil- children. For example, when legal non- Given the high number of undocumented ity to solicit work. citizens lost eligibility for federal safety- immigrants, Congress has been debating While most receiving communities wel- net programs as a result of the 1996 various policy solutions, including come immigrants, anti-immigrant activi- welfare law, many citizen children stopped increased border enforcement to stem the ties are on the rise, with local groups participating in public-benefit programs tide; guest-worker programs to address cropping up in as many as 40 states in even though they were still eligible. labor demands; and earned legalization 2005 alone. Such activities, which can Increasingly, many of the estimated and a path to citizenship for those who 11.5 to 12 million undocumented immi- are already here and contributing to the 13 economy. Each of these proposals will 12. Fix, Michael, Wendy Zimmerman, and Jeffrey S. grants are becoming part of our Passel. 2001. The Integration of Immigrant Families clearly have a different impact on the in the U.S. The Integration of Immigrant Families in well-being of undocumented immigrants the U.S. Washington, D.C.: Urban Institute. 13. Passel, Jeffrey S. 2006. Size and Characteristics and their families. of the Unauthorized Migrant Population in the U.S. Estimates. Washington, D.C.: Pew Hispanic Center. March.

21 “ he truth is that the challenges WHY THE RISE IN THE T we face as a nation have not UNDOCUMENTED POPULATION been imported by our immigrants, nor would they disappear if we could U.S. demand for labor, combined with Mexicans returned home within 12 only succeed in sealing our borders lack of opportunity in home countries, months of entry, but by 2000, the rate for good—even if that were possible. is the primary force driving immigra- of return migration was only 25 per- tion, both authorized and unautho- cent.15 In fact, there is good reason to believe rized. But many experts say U.S. immi- that some of the problems we should As Princeton University researcher gration laws and policies have also Douglas S. Massey points out, “The take most seriously as a people— contributed to the rise in the undocu- United States is now locked into a per- from the decline in our economic mented population. verse cycle whereby additional border competitiveness to the decay of our First, immigration policy experts note enforcement further decreases the rate community values—are problems that that very few legal avenues exist for of return migration, which accelerates the new immigrants can help us solve.” the foreign-born to enter the United undocumented population growth, States to fill current and future demand which brings calls for harsher enforce- —Mario Cuomo 16 for low-skilled workers. This fact has ment.” former Governor of New York immediate and long-term implications for the U.S. economy: Over the next 14. Smith Nightingale, Demetra and Michael ten years, low-skilled jobs will Fix. 2004. “Economic and Labor Market constitute two-thirds of all new jobs Trends” Children of Immigrant Families, The Future of Children, Vol.14, Issue 2, Princeton- 14 MOVING FORWARD created. Brookings: 49-52. 15. Massey, Douglas S., Jorge Durand, and Second, heightened border enforce- Nolan J. Malone. 2003. Beyond Smoke and Efforts to integrate immigrants must ment has unintentionally kept many Mirrors: Mexican Immigration in an Age of respond to contemporary demographic, Economic Integration. New York, NY: Russell undocumented Mexican workers in the Sage Foundation Publications. economic, and social realities, while United States. In the early 1980s, 16. Massey, Douglas S. 2006. “The Wall That tackling overarching concerns about Keeps Illegal Workers in.” The New York Times, about half of all undocumented April 4, sec. A. immigration, race, and national security. These factors compound the challenges newcomers face in trying to build new lives in the United States, particularly in new gateway communities that lack a service infrastructure, are not accustomed to racial and ethnic diversity, and have no recent experience with integrating immigrants.

To be successful, integration efforts must consider the needs of immigrants within the context of issues facing the broader community, including how immigration can affect economic opportunity for other community members and how it can influence race and intergroup relations. Keeping these consider- ations in mind can help expand resources to address longstanding social © Chicago Tribune photo by © Chicago Tribune Antonio Perez. Used with permission. All rights reserved. problems such as poverty and increase In March 2006, an estimated 300,000 racial and ethnic equity and cohesion. rallied in Chicago for immigrant be expected during times of rapid demo- Understanding the challenges of immi- rights, kicking off a series of peaceful graphic change, often use wedge issues grant integration—and the role that demonstrations across the country. to divide communities. For example, anti-immigrant forces frequently use philanthropy in partnership with other competition for jobs and other resources sectors can play—is critical to building to pit immigrants against African- secure, vibrant, and cohesive communi- Americans and other native-born ties that benefit all members. groups. Such efforts exacerbate racial tensions, put core American values at risk, and make the need for conscious attention to integration more urgent.

22 RACE AND IMMIGRATION

Race has had—and continues to This certainly was not the case for African- have—a profound impact on the Americans and Native Americans—nor was well-being of the Native American it the case for Asian and Latino immi- and African-American communities. grants. As Native Americans and African- Although less well-known, race has Americans endured legalized segregation also contributed to the shaping of and other forms of discrimination, Asian immigration laws and policies since immigrants, in the late 1800s and early our nation’s founding. The connec- 1900s, were denied citizenship and other tion between race and immigration rights. U.S. laws during that time period has significant implications for immi- also restricted new entries from Asian grant integration because how immi- countries. During World War II, 120,000 grants are perceived and treated Japanese Americans were interned. In the affects how well they fare, integrate, 1920s, thousands of Mexican workers, © Naomi Abraham and contribute to U.S. society.18 including U.S. citizens, were deported. And in 1954, Operation Wetback deported Housing segregation, employment Race and ethnicity have stimulated more than 1.1 million Mexican immi- discrimination, and educational fear and anxiety since the first wave grants. These laws and policies under- inequities, though experienced by of non-Anglo immigrants in the mined the ability of Latino and Asian European immigrants at the turn of 1700s. Alarmed by the swelling num- immigrants to integrate fully into American the nineteenth century, are even ber of Germans, Benjamin Franklin society. more daunting barriers to integration wrote in 1753, “Those who come for today’s increasingly Latino, Asian, hither are generally of the most igno- The Immigration Act of 1965, supported and African immigrants. And they rant stupid sort of their own nation… by civil rights leaders, eliminated the continue to limit opportunity for Few of their children in the country national-origins quota system that favored Native Americans and African- learn English.” European immigrants and paved the way Americans as well. for expanded immigration from Asia, Similarly, Italian and Irish immigrants Africa, and Latin America. This law How can receiving communities faced ethnic stereotypes and discrimi- markedly changed the racial composition address these barriers, so that they nation in the late 1800s, while new of immigrants to the United States: In do not impede immigrants’ social arrivals from southern and eastern 1960, seven of the top-ten sending coun- and economic mobility? How can Europe in the early 1900s were casti- tries were European; today, all of the top- immigrants and native-born gated as racially inferior to those of ten sending countries are either Latin Americans find common ground and Anglo-Saxon stock.19 But as these American or Asian. work together toward shared goals? European immigrants incorporated into society, anxiety and fear about In the twenty-first century, the diversity of Within this context, the integration them faded over time. immigrants—and their dispersed settle- of immigrants must be a process ment pattern—make race a central issue, hat reaps clear benefits not only for requiring U.S. society to consider how race immigrants but for society as a whole. affects the ability of immigrants to integrate. This is an especially critical concern Watch the DVD for more homogenous new immigrant Maid in America: gateways and in communities where the Intergroup Relations black-white paradigm has long been the Meet a dedicated nanny who has dominant frame. worked in several African-American households since immigrating to this country. Hear from the African-American couple she 17. See “History of U.S. Immigration Law and now works for as they poignantly recount Policy” in the “Additional Resources” section their own family’s working-class begin- of this toolkit. nings and see parallels in today’s 18. See: Alba, Richard and Victor Nee. 2003. immigrant experience. Remaking the American Mainstream: Assimilation and Contemporary Immigration. Cambridge: Harvard University Press. Bean, Frank D. and Gillian Stevens. 2003. America’s Newcomers and the Dynamics of Diversity. New York: Russell Sage Foundation. Portes, Alejandro and Ruben G. Rumbaut. 2001. Legacies: The Story of the Immigrant Second Generation. Berkeley, CA: University of California Press. 19. Muller, Thomas. 1993. Immigrants and the © Harvey Finkle Photography American City. New York, NY: University Press.

23 24 DEFINING mmigrant integration is a complex I concept that is fundamentally tied IMMIGRANT to the ongoing debate about the role of INTEGRATION immigrants in our society and our different visions of a thriving America. GCIR’s Immigrant Integration Framework builds on the vision that the United States, to remain strong and prosperous, must con-

tinue to be the land of opportunity where © Gabe Palmer/Alamy people of all colors, cultural backgrounds, Immigrant Integration Framework. We and walks of life can put down roots, build believe these elements are critical to a better life, and become contributing any effort to integrate immigrants. members of society. GCIR utilizes the term “integration” and Guided by this vision, GCIR defines not “assimilation” to emphasize respect immigrant integration as a dynamic, two- for and incorporation of differences way process in which newcomers and and the need for mutual adaptation. the receiving society work together to “Integration” also reflects an apprecia- build secure, vibrant, and cohesive com- tion of diversity instead of the homo- munities. We believe geneity that “assimilation” has come to Immigrant integration is a dynamic, two-way that integration connote.1 In addition, the literal mean- process in which newcomers and the receiving should be an inten- ing of integration—combining and coor- society work together to build secure, vibrant, tional process that dinating separate elements to create a cohesive communities. engages and trans- harmonious, interrelated whole—captures forms all community our belief in the importance of immigrant stakeholders, enriching our social, eco- integration to our society. nomic, and civic life over time. Mutual responsibility and benefits, multi-sector 1. Fix, Michael, Wendy Zimmerman, and Jeff Passel. involvement, and multi-strategy approach 2001. The Integration of Immigrant Families in the United States. Washington, D.C.: Urban Institute. are the cornerstones of GCIR’s

THEORIES ON IMMIGRANT INTEGRATION: A LOOK AT THE RESEARCH

GCIR’s definition of immigrant integra- discrimination and structural and institu- a multiracial, multiethnic society. This tion builds on the rich but sometimes tional barriers to equal access to employ- diversity may render racial and ethnic conflicting social-science theories on ment constituted obstacles to complete boundaries more permeable and less how immigrants become members of assimilation. This approach became known susceptible to stereotyping in the U.S. society. “Assimilation” theory, first as the “ethnic-disadvantage” model.3 future, at the same time that economic developed in the 1920s, originally mobility increasingly proceeds ahead of Most recently, Alejandro Portes and Rubén posited that newcomers both absorb traditional measures of cultural assimi- Rumbaut have advanced a more nuanced and influence elements of the receiving lation.5 approach: “segmented assimilation.” society, with the two becoming more Combining elements of the assimilation This movement, propelled by suspicion like each other over time. The concept and ethnic-disadvantage models, this the- and fear, sought to induce newcomers later became known as the “melting ory suggests that while many immigrants to assimilate American speech, ideals, pot.” Although developed in part to will find different pathways to mainstream traditions, and ways of life. counteract the “Americanization” status, others will find such pathways movement of the 1920s, this theory blocked and come to view themselves as 2. Bean, Frank and Gillian Stevens. 2003. over time became criticized for assum- members of disadvantaged and racialized America’s Newcomers and the Dynamics of ing that the subordinate immigrant groups as a result.4 Diversity. New York, NY: Russell Sage Foundation group could only achieve upward and Alba and Nee. 2003. Remaking the American mobility by becoming more like the Frank Bean and Gillian Stevens, however, Mainstream: Assimilation and Contemporary 2 Immigration. Cambridge, MA: Harvard University dominant group. point out that segmented assimilation may Press. inadvertently overemphasize negative out- 3. Ibid. Beginning in the 1960s, a number of comes. They note the transformation of 4. Portes, Alejandro and Ruben Rumbaut. 2001. scholars began trying to explain the the United States from a largely biracial, Legacies: The Story of the Second Generation. incomplete assimilation of many Berkeley, CA: University of California Press. white majority-black minority society into groups, documenting that lingering 5. Bean and Stevens, 2003.

25 MUTUAL hroughout U.S. history, immigrants Through the integration process, the Thave been viewed—by themselves and receiving community learns to respect RESPONSIBILITY, others—as responsible for their own fate, the skills, languages, and cultures that MUTUAL CHANGE, with the classic generational transition newcomers bring and, simultaneously, MUTUAL BENEFITS from “peddler to plumber to professor”6 play an active role in meeting their through tenacity, self-reliance, and hard needs. Long-established residents even- work. In many respects, this responsibil- tually come to recognize immigrants as ity still holds: The human, social, and assets who contribute to the long-term financial capital immigrants bring with vibrancy and prosperity of their them or acquire are significant determi- community. nants of their pace of mobility in In responding to immigrants’ needs, American society. however, receiving communities are unlikely to be able to provide the ideal Watch the DVD Successful integration, however, is not Rain in a Dry Land: determined solely by the actions immi- level of support, constrained by factors Learning about America grants take and the resources they such as limited financial resources, Many immigrants and refugees arrive possess. The reception—supportive, competing community needs, and lack with little knowledge of everyday neutral, or negative—they receive from of political will. Nor will receiving com- American life that most longtime residents munities, with a deeply rooted set of take for granted. Sit in on a refugee orien- the host community plays a critical role. tation session in Kenya, where America- existing values and norms, come to bound Somali-Bantus learn about high- Integration is a two-way process in accept and value linguistic, cultural, rise buildings, how to use a stove, which newcomer and established resi- and ethnic diversity overnight. and what American law has to dents share responsibility for the well- Nevertheless, successful integration say about family behavior. being of one another and of the broader depends on a shift in the receiving community. Requiring change on the community’s attitudes towards—and part of the immigrant and the receiving willingness to assist—newcomers. community, integration is a dynamic give-and-take process that takes place Immigrants and refugees—and the over time. In the ideal, it transforms organizations that represent them— both the newcomers and the receiving also bear responsibility for integration. society, creating a new whole that is Newcomers must do their part to greater than the sum of its parts. become contributing members of society by learning English, getting involved in their children’s education, sharing their cultures, and participating in democracy. Voicing concerns and ideas, working together with longtime residents toward common goals, and taking part in community decision making are all part of the immigrant integration experience.

At the same time, integration does not mean that immigrants must sever ties to their countries of birth nor abandon their cultures, traditions, values, and identities. For most newcomers, the initial focus upon arrival will be on day-today survival; it may take years for them to move from immediate survival to © ICIRR establish roots and become active in community life. For others, social and economic realities create formidable barriers to integration that may not be overcome until future generations.

6. Waldinger, Roger. 1997. “Immigrant Integration in the Post Industrial Metropolis: A View form the United States,” Metropolis First International Conference, Milan. August.

26 MULTI-SECTOR he engagement of all stakeholders ongoing discussions about prejudice, T in the newcomer and receiving com- fear, and other realities facing their INVOLVEMENT munities, as well as those who bridge communities; and come to an agreement the two, is critical to the integration about shared community goals and the process. The stakeholder sectors identi- mutual responsibility that is required to fied in the chart below all have a self- achieve them. Only through this two- interested stake in promoting immi- way process and with ongoing attention grant integration. to integration can communities realize a win-win situation in which immigrant Stakeholder groups need to work and native-born neighbors of different together to achieve a common under- experiences, histories, and backgrounds standing about immigrants’ complex can work together to build a shared roles in our society; engage in candid, community, now and in the future.

STAKEHOLDERS IN IMMIGRANT INTEGRATION

SECTOR/STAKEHOLDER GROUP INTERESTS

PHILANTHROPY Due to spreading demographic changes, immigration affects virtually every issue philanthropy seeks to influence, from health and education to rights and justice to democratic participation. To achieve their goals, foundations must take leadership in addressing the needs of newcomers and engaging them in efforts to develop solutions to community problems.

GOVERNMENT Government is a key player in meeting community needs, providing resources to help individuals succeed and protecting those who are vulnerable. Helping newcomers achieve self-sufficiency and lead productive lives not only prevents strain on public resources but can increase tax revenues, economic productivity, and social and cultural vibrancy of the receiving community.

BUSINESS Immigrants represent a growing segment of the workforce and the consumer base in the United States. In addition, their transnational ties and linguistic and cultural skills help U.S. companies compete in the global marketplace.

LABOR UNIONS Unions have recently increased their organizing efforts in industries with a large share of immigrant workers. The involvement and leadership of immigrant workers are central to unions’ ability to improve wages, benefits, and workplace conditions, as well as strengthen the broader labor movement.

FAITH-BASED INSTITUTIONS Valuing human dignity and the worth of each individual, faith-based institutions have a vested interest in immigrant issues through their ministry and social-action work and because immigrants are an important segment of their constituencies.

PUBLIC SCHOOLS Schools serve as a crucial point of contact for immigrant families and provide one of the best opportunities for newcomers to engage with other newcomer and established residents. The success of schools, particularly in communities with large foreign-born populations, depends in part on the academic achievements and social integration of the children of immigrants.

COMMUNITY INSTITUTIONS Responding to demographic changes, hospitals, social service providers, schools, and other community institutions have had to change the way they operate. Providing services that are linguistically accessible and culturally appropriate is now a must for communities with growing immigration populations. IMMIGRANT AND Social networks within the immigrant communities, as well as ethnic-based community ETHNIC COMMUNITIES organizations, are invaluable to newcomers trying to establish a new life. They often AND ORGANIZATIONS serve as a bridge between newcomers and the receiving community. Their interest is to connect immigrants to resources to establish a new life, so that immigrants, in turn, can contribute to the advancement of their communities.

27 mmigrant integration efforts can draw MULTI-STRATEGY “ here ought to be a major Iupon myriad strategies for community APPROACH building and social change that philan- W movement to integrate immi- thropy have long supported. These grants into our society. The focus strategies include but are not limited to should be both on making communities direct services, capacity building, commu- more receptive to immigrants, as well nity outreach and education, leadership as encouraging immigrants to become development, organizing, policy analysis better citizens and play a more active and advocacy, legal assistance, research, communications, media, and litigation. role in communities.” —Bill Hing, Professor of Law The combination of strategies depends University of California, Davis on immigrants’ needs, available resources, and the goals of the integration effort, among many other factors. It gives foundations an opportunity to For example, a new immigrant gateway explore a range of funding possibilities, Watch the DVD The New Americans: experiencing an influx of newly arriving learn from and develop relationships The Flores Family refugees may begin by assessing needs with experienced colleagues, and In this sequence, two determined and then building the capacity of increase the impact of grant dollars. Mexican kids adjust to life in rural Kansas community organizations to respond to by learning English and succeeding in identified needs. A community struggling school. But their mother, isolated and PATHWAYS TO INTEGRATION depressed, longs to be near relatives. with racial and ethnic tensions might The family must weigh the benefits of utilize community dialogues and media GCIR’s Immigrant Integration Framework educational opportunities versus the outreach to increase intergroup under- identifies six strategic pathways through comfort of being near their standing. A state fighting anti-immigrant extended family. which immigrants and the receiving legislation may decide to deploy leader- community can work together to provide ship development, organizing, advocacy, resources and opportunities and lever- and communications strategies. age the human capital that immigrants For foundations new to immigrant bring. These pathways are: integration, supporting pilot projects • Communitywide planning is often a good starting point. This • Language and education approach allows funders to test a strategy • Health, well-being, and or a set of strategies before making a economic mobility larger, longer-term commitment. Investing • Equal treatment and opportunity in funding collaboratives and other • Cultural and social interaction pooled funds is another good option. • Civic participation and citizenship

These pathways serve both as a tool for facilitating integration and as a means to assess whether integration is taking place successfully. They interact dynami- cally, each with the power to reinforce or weaken progress in the other areas. For example, language and education are highly correlated with economic mobility but are also a determining factor in health care access, citizenship and civic participation, and interaction with native-born residents. Similarly, unequal treatment can threaten not only economic mobility but also immigrants’ ability to access critically needed services and to participate in democracy. © David Bacon

28 Mutual responsibility, again, is fundamental to successful integration. Whereas immigrants have the responsibility to become productive community members, the receiving society bears the responsibility to provide them the resources and opportunities they need to succeed. All stakeholders—individuals and institutions, public and private— play a contributing role in this endeavor.

• Communitywide planning creates intentional opportunities for immigrant and receiving communities to work together to identify barriers, develop policies, and implement programs that facilitate immigrant integration. © David Bacon Depending on specific circumstances, communitywide planning efforts can vary in terms of focus, scale, and scope. Maintaining native-language compe- • Equal treatment and opportunity. For instance, they can concentrate on a tency is a strength they also contribute True opportunity is not possible without single integration issue (e.g., workforce in light of today’s transnational market- equal treatment. Concerns about immi- integration for immigrant professionals) place and global interdependence. gration status, exploitation in the work- or address multiple concerns through Institutions in the receiving community, place, unfair treatment, and discrimina- multiple strategies (e.g., improving for their part, have the responsibility to tion can severely undermine immigrants’ health care, education, and employment offer quality English classes, ensure lan- ability to realize their full potential. opportunities for immigrants). The need guage access, and provide quality edu- Not having a level playing field for for such planning has never been more cational opportunities. immigrants can also lower the quality of pressing, particularly because current life and diminish opportunity for other • Health, well-being, and economic U.S. immigration policies do not reflect community members. Therefore, fair mobility. Health care, employment, and the country’s social, economic, and laws and policies that promote equal other services and resources that pro- demographic realities and no national treatment and opportunity are critical mote economic mobility are essential policy exists to support the integration building blocks for successful integra- for helping immigrants establish a process. tion—and for building a fair and foothold and contribute fully to society humane society. • Language and education. With most as workers, entrepreneurs, taxpayers, immigrants arriving with limited or and community members. Economic In the two-way integration process, moderate English skills, eliminating lan- mobility is a traditional indicator of the immigrants must commit to being guage barriers to services and providing level of integration. Higher income is responsible, contributing community opportunities to develop English profi- significant in its own right, but it also members and do their part to promote ciency are essential for successful inte- means access to other advantages, e.g., equal treatment and opportunity for all gration. Acquisition of English leads to a house in a safer neighborhood with community members. In turn, the a higher standard of living as newcom- better schools, that improve family receiving society must ensure that laws ers gain access to education and job well-being and enhance economic and policies reflect core American val- training opportunities, as well as com- outcomes. ues of fairness and opportunity, protect munity services and institutions. civil rights and liberties, and create In the context of health, well-being, opportunities for newcomers to con- To uphold their end of the integration and economic mobility, immigrants bear tribute fully to American society. bargain, immigrants have the responsi- responsibility to become self-sufficient, bility to learn English and partake in support their families, and contribute to • Social and cultural interaction is education opportunities to advance the economy by working, paying taxes, critically important to foster under- themselves and their families. and starting new businesses. The receiv- standing, build trusting relationships, ing community, in turn, provides and lay the foundation for mutual resources that support the ability of engagement. Such interaction often can immigrant families to advance (e.g., job make or break the integration experi- training, health care, child care, social ence, either erecting roadblocks or safety-net programs, and access to paving a path towards integration. credit).

29 BENEFITS OF INTEGRATION

The potential benefits of successful immigrant integration to the broader society are significant:

• A vibrant, cohesive society shared and valued by established and newcomer residents of different experiences, histories, ethnicities, and backgrounds.

• Revitalization of declining communities through the contributions of immigrant families working in tandem with their native-born neighbors.

• Stronger communities with the ability to meet wide-ranging needs; address

© Harry Cutting Photography racial, ethnic, and economic diversity; and enrich the social and cultural fabric As part of the integration process, new- • Civic participation and citizenship. of our society. comers and receiving community mem- Civic participation and citizenship not bers, over time, learn about and come only demonstrate immigrants’ desire to • Increased productivity and a robust to respect one another’s cultures and become active community members but economy through an expanded base of traditions, both the similarities and the also provide an avenue for newcomers workers, consumers, taxpayers, and differences. They may incorporate to increase their ability to shape com- entrepreneurs. aspects of the other’s cultural practices munity priorities. Opportunities for new- into their own. The arts and humanities, comers and established residents to par- • Global competitiveness through a cultural production and performance, ticipate together in community problem multi-lingual, multi-cultural workforce. and civic participation are important solving, leadership development, and • A more vibrant democracy in which vehicles for social and cultural interac- democratic practice are vital to the all groups are accepted as equal mem- tion and eventual integration. integration process. bers of society with the opportunity— For their part, immigrants are responsi- and responsibility—to engage and ble for learning about civic processes contribute to the common good. and engaging in the life of the broader • A more secure America where all community, from participating in their members of society—regardless of race, children’s school to mobilizing new Watch the DVD national origin, or socio-economic voters. Their civic involvement may Rain in a Dry Land: status—live in dignity and equality. She Stopped Listening begin with issues that affect them Losing control over a teenaged child directly, but over time, it will encom- can be terrifying for any parent, but pass concerns that affect the broader the impact on a refugee family can be community. The receiving community, especially intense. Hear one single mother’s feelings of powerlessness on the other hand, bears responsibility as she describes a late-night for promoting citizenship, providing encounter with her defiant opportunities to participate in 13-year old daughter. democracy, and ensuring the right to organize.

30 EVALUATING IMMIGRANT INTEGRATION EFFORTS

Like any evaluation, the evaluation of In developing an evaluation, the “outputs” • Receiving community members an immigrant integration effort should and “outcomes” should be clearly defined. and immigrants engage in ongoing begin with the following basic questions: Outputs are short-term measures of a pro- cultural and social exchange. gram activity or strategy, such as the num- • What are the goals of the immi- ber of English classes taught, participants • Laws and policies that support grant integration effort? trained, or voters registered. A program's immigrant integration, including outputs should lead to the desired outcomes. providing equal treatment and • What are the goals of the opportunity, are put into place. Outcomes are the effects of a program evaluation? activity or strategy, which can be meas- To assess these indicators, a mixed- ured in short, intermediate, and long method design combining both quali- • Which stakeholders need to term. Outcomes may relate to knowledge, tative and quantitative approaches is be engaged in the design and skills, attitudes, values, behaviors, or con- recommended. Funders should note implementation of the evaluation? ditions. The following sample outcomes that a full-scale evaluation of an immi- can help grantmakers and other integration grant integration effort can consume • What are the anticipated outputs stakeholders begin to consider the goals of substantial time and resources because and immediate, intermediate, and their immigrant integration efforts: the change process not only takes a long-term outcomes? long time, but it is complex and • Immigrants develop the capacity constantly evolving. • What are the indicators of the (e.g., English language proficiency and outputs and outcomes? Although multi-year evaluations are job skills) to improve their social and preferable, they are not always possible. economic well-being. • What is the timeframe and Therefore, the “Promising Practices in resources for the evaluation, and to Immigrant Integration” section of this • Immigrants have an extensive what extent can all the outcomes be toolkit offers preliminary indicators for understanding of U.S. systems and realistically assessed and captured? each of the pathways to integration, e.g., institutions (e.g., education, economic, language acquisition, education, and civic) and know how to access and • What unique issues need to be civic participation. These preliminary navigate them. considered (e.g., translation and indicators may be more feasible to meas- interpretation, access to immigrant ure and document, depending on the • Immigrants participate in activities leaders and residents, confidentiality timeframe and resources for the evaluation. to help shape policies that affect the about immigration status)? communities in which they live (e.g., Note that indicators can be separated neighborhood redevelopment). into immediate or intermediate out- • What is the best combination comes, depending on the starting point of methodologies—quantitative and • Immigrants receive high-quality of the immigrant integration effort and qualitative—for assessing and captur- services (e.g., health care and education) the anticipated sequence of activities ing the outputs and the outcomes? that are responsive to their needs. that will lead to immigrant integration. They can also be separated to deter- Building in an evaluation component • Immigrants work alongside receiving mine change at the individual, organi- at the outset is worthwhile because (1) community members to improve their zational, or communitywide levels. there is much to be learned about the communities and the systems that The immigrant integration change process of immigrant integration and affect their lives. process is neither linear nor sequential. the conditions that facilitate or hinder Therefore, any effort to evaluate it, and (2) it ensures that the evaluation • Receiving community members and progress toward immigrant integration will be aligned with the goals of the immigrants feel a sense of belonging to should analyze and document the effort and conducted in a participatory and security about the community in dynamic two-way interaction between and culturally responsive manner. which they all live. the immigrant community and the receiving society. • Receiving community members SOURCE: value the contributions of immigrants United Way of America. 1996. Measuring and do not discriminate against them. Program Outcomes: A Practical Approach. Alexandria, VA: United Way of America.

31 32 Promising Practices in Communitywide Planning

“ ncreasing numbers of immigrants and refugees are coming into our Icommunity, and they are coming from increasingly diverse countries, backgrounds, ethnic groups, and religions. Communities that don’t reach out to newcomers risk having separate and divisive ‘we-they’ neighborhoods. It’s essential to provide the tools that will help immigrants put down roots and become true members of our community.” —Susan Thornton, former Mayor, Littleton, Colorado

INTRODUCTION 35

LEADERSHIP, VISION & COURAGE 36 The Maytree Foundation and Immigrant Economic Integration in Canada

GETTING AHEAD OF THE CURVE 39 The Supporting Immigrant Integration Initiative of The Colorado Trust

ECONOMY, COMMUNITY & IMMIGRANT INTEGRATION 43 The World in Austin, Minnesota

HELPING MINNESOTANS FIND COMMON GROUND 47 Initiatives of The Minneapolis Foundation

FROM CRISIS TO A COMPREHENSIVE INTEGRATION MODEL 48 What Local Governments Can Learn from Santa Clara County

A HERITAGE BUILT AND BUILT UPON 52 The State of Illinois Leads the Way to Strategies for Immigrant Integration

EVALUATING COMMUNITYWIDE PLANNING EFFORTS 56

33 34 INTRODUCTION ommunitywide planning creates an • Engage multiple sectors in Cintentional opportunity for immigrant identifying the problems and developing and receiving communities to work the solutions. Getting buy-in from and together to identify barriers, develop building trust with stakeholders— policies, and implement programs that including philanthropy, nonprofits, gov- facilitate immigrant integration. The ernment, and business—are critically need for such planning has never been important to the success of multi-sector more pressing, particularly in the United collaborations. For efforts involving the States, where current immigration poli- public sector, political will is essential. cies do not reflect the country’s social, • Utilize multiple strategies, such as economic, and demographic realities and action research, organizing, advocacy, where no national policy exists to capacity building, public education, support the integration process. media, communications, among others. In this section, GCIR profiles six initiatives The combination of strategies used that demonstrate strategic vision and should be tailored to local circumstances considerable promise to promote the full and draw upon the strengths of partners integration of newcomers into our society. and stakeholders. We’ve chosen projects from both estab- • Have patience, flexibility, a long- lished immigrant gateways and newer term commitment, and a willingness to immigrant destinations. Regardless of their problem solve. Effective integration of focus, scale, scope, or stage of implemen- immigrants into communities happens tation, all share a set of common “best over time. Stakeholders will need to allow practices” that can inform philanthropic the highly dynamic process to play out— support of and involvement in similar and to expect the unexpected. Mistakes, efforts in U.S. communities and beyond. misinterpretations, and miscommunica- • Involve institutions and individuals tion will happen along the way, so be from both receiving and immigrant ready to respond creatively and communities, including both institutional constructively. and grassroots leaders. Research shows • Allow time for both relationship that community planning processes that building and getting the tasks done. value high levels of participation and The ends and the means to the ends are local knowledge, treat everyone as equally of equal importance. The right balance is important, and stay focused on the difficult to achieve, but making an effort anticipated outcomes are far more likely to do so will reduce frustration and to foster shared ownership of problems strengthen buy-in and ownership of the and solutions and achieve sustained planning process among the stakeholders. change. When involving grassroots leaders, The importance of building trust among remember that established gatekeepers participants cannot be underestimated. are not always the most authentically respected members of the community. • Be prepared to tackle tough issues. Concerns about undocumented immigration, intergroup tensions, or competition over jobs and scarce resources will surely arise. Leaders of the planning process must be prepared to address such concerns in a careful and genuine manner. Spend enough time addressing them, use sound data to inform discussions, and move the conversation towards finding local solutions.

We hope the case studies in this section will inspire you to consider seeding similar community-planning initiatives. As your foundation explores strategies for addressing immigrant issues, consider GCIR and the organizations featured in this section © New York Civic Participation Project © New York as a resource. 35 LEADERSHIP, atna Omidvar, executive director of FOCUSING FOR IMPACT RThe Maytree Foundation in Toronto, VISION & COURAGE describes as “magical” the opportunity In 1997-98, the Foundation had an presented to Maytree in bringing together influx to its corpus, hired its first staff THE MAYTREE industry and government to facilitate the members, and set about making strategic decisions. “We had a dilemma,” Omidvar FOUNDATION AND economic integration of Canadian immigrants. Maybe there has been some magic recalls. “Should we focus on the children IMMIGRANT ECONOMIC to it, but Maytree’s central role in remark- or the parents?” Maytree chose the INTEGRATION IN able multi-sector accomplishments is latter, asserting that, “the single most CANADA largely the result of broad vision, targeted meaningful marker of settlement is goals, a savvy combination of strategies, attachment to the labor market.” www.maytree.com and willingness to take risk. Economic integration would be where It may seem unsurprising that a Maytree placed its bets: expanding post- foundation based in one of the most secondary educational opportunities for diverse cities in the world, committed all immigrants and creating pathways to building strong civic communities to the workforce for those who had and dedicated to reducing poverty and arrived with skills and work experience. inequality, would have interest in the Although the Foundation’s ambitions integration of newcomers. But Maytree’s were strong and its toolkit of strategies support of newcomer issues dates back eventually evolved into a comprehensive to its 1982 founding, when the city had collection of innovative programs, the far fewer foreign-born. Until the late original targeting of highly leveraged 1990s, immigrant grantmaking at the opportunity was deliberately narrow. unstaffed foundation was largely respon- One target was an identified barrier, sive, not guided by an overall strategy. codified in Canadian law, that inadver- Through these years, however, an tently hindered refugees who had not important clarity of vision emerged. yet received permanent status from “Our assets would be too small, we gaining access to public loans for post- couldn’t make change unless we focused secondary study. Without the loans, the on social policy,” says Omidvar. “And refugees could not afford to study; with- we were interested in nation-building.” out coursework, good jobs remained For Maytree, immigrants and refugees out of reach. Such policy change could represented the strength of the potentially improve the lives of thousands country’s future. of newcomer families.

Omidvar recalls the reasoning: “It was relatively easy, because it was a single department in one ministry. We just had to rally our efforts.”

The key word in that quote is “relatively,” and the efforts the Foundation rallied were innovative and varied. To raise public awareness, Maytree first had to make the case, basing its arguments on facts, costs, and benefits. The Foundation partnered with the Caledon Institute for Public Policy (which it had co-founded) to research and publish a series of policy papers. The research became the core of an advocacy campaign in partnership with other nonprofits. But there was also a desire to meet real needs, to understand this issue from the perspective of the refugees, and to help them © Mark Trusz Ratna Omidvar

36 advocate on their own behalf. As part of its response, the Foundation created a scholarship program and a credit union to provide grants and loans. It also built relationships with recipients, helping them to take their stories to the media and to government commissions as part of the campaign.

After four years of these coordinated tactics, three words—“and Convention refugees”—were added to the identified regulation, granting access to higher education to some 10,000 refugees across Canada. © Mark Trusz

A GREATER CHALLENGE Once again, solid research was the start- TRIEC embodies the multi-sector ing point. Alboim’s report, published approach necessary to overcome barriers Building on its success, Maytree targeted through Caledon, “Fulfilling the Promise: to immigrant economic integration: a much more complex issue in its second Integrating Immigrant Skills into the public and private funding (Maytree project: immigrant workforce integration. Canadian Economy,” presented an analy- supports the secretariat) and leadership Some 60 percent of Canada’s immigrants sis of an economic imperative. “By the from the business, nonprofit, and public end up in semi-skilled or unskilled jobs year 2011, it is estimated that 100 per- sector. TRIEC offers internships to provide outside the professions for which they cent of Canada’s net labour force growth Canadian work experience to skilled have trained and worked in their originat- will depend on immigration,” she wrote. immigrants, mentoring programs with ing countries. No single jurisdiction here, established professionals to build net- no clarity of authority or responsibility. The report also proposed a “systems” works for newcomers, and an employer The tangled web of barriers includes approach to facilitate immigrant entry into toolkit describing promising practices of regulatory bodies, policies and proce- the economy, recommending incentives peers who have integrated immigrants dures, and public attitudes. for collaboration among stakeholders to into their workforces and other programs. create programs; increase immigrants’ Maytree aspired to create pathways to Other cities in Canada have become access to information, services, advice, the workforce for these skilled immigrants, interested in the TRIEC model. and bridging efforts to fill gaps; and and again, it was clear in its focus and establish a leadership council to foster analysis. The lens it chose was the collaboration, coordination, and MULTIPLE PARTNERS, region of Toronto, reasoning that a communication. place-based effort could be managed MULTIPLE STRATEGIES and could create models for use else- With Maytree participation and support Maytree officials are quick to point out where. The strategies it pursued were and building on its 2002 Toronto City that they are not the only catalyst for built from a belief that, in Ratna Summit on regional strengths and chal- the changes that have created TRIEC Omidvar’s words, “solutions lie in the lenges, the new leadership council created and policy improvements. “We were at behavior and attitudes of people.” the Toronto City Summit Alliance to the center of a perfect storm,” says pursue the issues identified by Summit Many stakeholders were involved, not Omidvar, “brewing at the right time, in participants. Integration of immigrants the least of which was the public at the right place, with the right people.” into the labor market was on the list, large. “This issue was not front-and-cen- This is modesty speaking, and not of and the public, private, and nonprofit ter in the public mind,” says Naomi the blushing sort. leaders who constituted the Alliance Alboim, a researcher at the School of joined with Maytree to form the Toronto “Maytree walks its talk,” says Joe Policy Studies at Queen’s University in Regional Immigrant Employment Council Breiteneicher, of The Philanthropic Kingston, Ontario, who also works with (TRIEC) in September 2003. Initiative, Inc., which conducted a Maytree and the Caledon Institute. lengthy overall assessment of Maytree’s “Maytree made it front-and-center in programs and impacts. “Again and again, the public domain.” thoughtfully and effectively, in a self- effacing way that others trust and believe in.”

37 “It is a testimony to Maytree’s skill and political smarts,” continues Breiteneicher, “that it is viewed by colleagues and combatants alike as the preeminently effective force in policy matters in Canada—but is never seen as adversarial. Even its enemies in government respect its approach to its work!”

Components of this approach, in addition to strategic modesty? Turn to impeccable research to establish yourself as a trusted expert. Target policy change for highest leverage.

“The biggest lever available to effect

crucial social issues is public policy,” © Mark Trusz says Alan Broadbent, Maytree’s chairman. “By changing how a society agrees to partnership with PEN Canada and the exercise its collective will, we can create CANADA’S EXEMPLAR YMCA of Greater Toronto, which “encour- solutions to the hard problems and the ages well-known and emerging voices In recognition of its work with many critical issues.” from a dynamic mix of ethnicities to players to move policy, the Council on And there is yet another distinguishing explore their lived experiences through Foundations selected Maytree for the characteristic of Maytree’s immigrant fiction, poetry and drama.” 2005 Paul Ylvisaker Award for Public grantmaking. Accompanying its discipline Policy Engagement. In his letter in “We are trying to get to a new public, in selecting targets for strategic impact, support of the foundation’s Ylvisaker a reading public, telling the story of the foundation maintains a willingness candidacy, Breiteneicher wrote that Toronto’s global village back to itself,” to come at a problem from several Maytree “has begun to change the explains Omidvar. points of view, to surround an issue national dialogue” on immigrants and refugees, elevating “public discourse with creative partnerships. That creativity Another Maytree project, abcGTA, seeks about the need for comprehensive policies has led to the Diaspora Dialogues, a to place more immigrants from the vis-à-vis immigrants that are as humane, Greater Toronto Area (GTA) on public fair, and productive as possible.” agencies, boards, and commissions (abcs). And Maytree’s involvement with the “ he biggest lever available to Multiple sectors, multiple partners, Funders’ Network on Racism and Poverty effect crucial social issues is multiple tactics. Long-term vision and T has drawn several philanthropic partners resilience. Strategic use of data. Modesty public policy. By changing how society into its work with immigrants. In the and tenacity. Trustworthiness in the agrees to exercise its collective will, Network’s first joint project, for example, pursuit of policy change. we can create solutions to the hard members are coordinating grants on the problems and the critical issues.” rights of contingent workers. These characteristics, says Breiteneicher, earned The Maytree Foundation recogni- —Alan Broadbent, Chairman tion as “Canada’s philanthropic exemplar, The Maytree Foundation one with many lessons of value, vision, collegiality, courage and unwavering staying power of great import for its U.S. foundation cousins.”

38 GETTING AHEAD A SENSE THAT THE draw upon. The Trust also had a tradition COMMUNITY WAS CHANGING of taking an initiative approach to OF THE CURVE grantmaking, focusing on specific issues, Years before the 2000 Census figures investing significant resources, and THE SUPPORTING appeared, program officers at The Colorado staying committed over the long term. Trust began hearing from communities IMMIGRANT INTEGRATION that the state was undergoing a demo- Importantly, the foundation had defined INITIATIVE OF THE graphic shift. African immigrants were its understanding of mental health COLORADO TRUST working at the ski resorts. Vietnamese broadly. The importance of the stress grocers and noodle shops were flourishing accompanying “cultural adjustment” www.coltrust.org in urban strip malls. More Spanish was was understood. If large numbers of being spoken everywhere. immigrants were entering Colorado communities, The Trust saw the need “There was a strong sense,” says Susan to respond. Downs-Karkos, senior program officer at The Trust, “that the community was changing.” AN EXPLORATORY FIRST PHASE

Colorado was already aware of, if not The board adopted an exploratory entirely comfortable with, the population process. Data were gathered; focus groups growth caused by migration from other convened; immigrant service providers states. Migration from outside the country, surveyed. In response to the identified however, was new. The question was: gaps in service capacity, The Trust in What should be the response of a foun- 2000 launched its first newcomer-focused dation whose mission is “to advance the effort, the Supporting Immigrant and health and well-being of the people Refugee Families Initiative (SIRFI). of Colorado”? Partnering with Denver’s Spring Institute for Intercultural Learning to provide To the answer, The Trust brought overall management, technical assistance, strengths in both policy and practice. and peer-learning networking opportuni- The foundation had become accustomed ties, SIRFI, over a period of four years to working at the community level, and at a total of $7 million, funded 23 supporting community-based planning on immigrant-serving organizations across issues such as teen pregnancy, violence, the state. The goal was to help them build and health. Lessons had been learned, strength and sustainability to work on and there was a body of experience to mental health and cultural adjustment issues, broadly defined.

Meanwhile, data from Census 2000 confirmed what the foundation had learned on the ground. The foreign-born population of Colorado had increased by 160 percent in the last decade. Some rural communities that were drawing newcomers to the tourist, meatpacking, and agricultural industries had increased their immigrant populations seven, eight, even nine fold. In a phenomenon occurring across the country, Colorado had become one of the top ten new-gateway states for immigration. © Jupiter Images

39 A PAUSE FOR REFLECTION

SIRFI significantly helped its immigrant- serving organizations build sustainable strength. But under the circumstances of such rapid demographic change, Trust staff members began asking themselves if this was enough. Where should they go from here?

“Ultimately, our interest in cultural adjustment was an interest in community building,” says Downs-Karkos. “Community building is mutually beneficial, dependent on everyone’s strengths.” In other words, it is not just helping immigrants over © Jupiter Images the initial hurdles in the acculturation process; it is an approach in which the $6.4 million over four and a half years. Susan Thornton, former Mayor of receiving community plays a critical The approach was flexible, place-based, Littleton, puts it this way: “Increasing role. The Trust describes it as “a mutual and learning-focused, with the Spring numbers of immigrants and refugees are and dynamic process between the immi- Institute remaining as a facilitator for coming into our community, and they grant family and the new home.”1 full community-planning processes. are coming from increasingly diverse Through a request for proposals, The countries, backgrounds, ethnic groups, The Trust paused for further research Trust sought out collaboratives of main- and religions. Communities that don't and information gathering on the stream institutions (schools, health care, reach out to newcomers risk having concept it was coming to understand as local government, law enforcement, separate and divisive ‘we-they’ neigh- “immigrant integration.” For a full day in business, etc.), newcomer-serving borhoods. It’s essential to provide the October 2003 it convened local leaders organizations, and immigrants and tools that will help immigrants put and experts from around the country for refugees themselves to receive four-to- down roots and become true members an “Immigrant Integration Summit,” to six-month planning grants of $5,000 of our community.” discuss what the approach might mean each. So much interest was expressed for Colorado. To learn what newcomers that the foundation increased the felt about integration, Spring Institute number of grants from four to ten. A COMMITMENT TO LEARN conducted five focus groups among immigrants and refugees from Africa, The Trust asked its ten grantees for Empowerment of local communities is a Asia, Mexico, and Eastern Europe. comprehensive integration plans, devel- major goal. Through community-driven oped by steering committees of local design, each plan has developed differ- leaders and community collaboratives, ently, with each community making ESTABLISHED & NEWCOMER which looked beyond service provision decisions about what it will look for as RESIDENTS WORKING TOGETHER to efforts that would create systemic indicators of progress. The initiative change in their communities. These plans, provides continuing Spring Institute What was learned is often expressed this which required a 20 percent cash or facilitation and regular cross-learning way by John Moran, The Trust’s president in-kind match, would become proposals convenings. It also provides an evaluation, and chief executive officer: “Immigrant to The Trust for four-year implementation conducted by the Association for the integration means creating opportunities grants at $75,000 per year. Study and Development of Community, for communities and immigrants to work that will describe how community mem- together and to thrive. It's our goal to The process was met with enormous bers have come together to collaborate, help Colorado communities to become interest across the state. “This is an assess how well their self-identified out- strong and vibrant places in which to live." issue that has been rising to the top in comes are being achieved, as well as communities,” says Downs-Karkos. seek the pulse of change in attitudes of SIRFI’s second phase, Supporting the broader community toward integration Immigrant Integration, was launched (see evaluation sidebar on the in mid-2004, with an investment of following page).

1. Downs-Karkos, Susan. 2004. Immigrant Integration in Colorado. Denver, CO: The Colorado Trust.

40 Grantees are pursuing many different strategies. Approximately half are adopting an “immigrant integration THE COLORADO TRUST: center” approach, offering resources and ONE APPROACH TO EVALUATION referrals. Several other projects have moved into schools with educational The evaluation of The Colorado Trust’s The evaluation’s progress and findings liaisons. There are “immigrant friends” SIRFI Immigrant Integration Strategy is are shared with The Colorado Trust and programs, community dialogues, and guided by three questions: the Spring Institute (which provides facilitation for the Immigrant Integration cultural components being added to 1. How did communities form Strategy) on an ongoing basis at regular existing community events. Health, collaboratives to support immigrant meetings and retreats where they workforce and economic development, integration? and home ownership are among the reflect on the findings, lessons learned, many issues of interest. 2. Were the outcomes identified in and challenges. The Spring Institute the community plans achieved? facilitators also share the information generated by the evaluation with Regular convenings offer Supporting 3. Was there an increased sense grantees as they guide them through Immigrant Integration grantees an of immigrant integration among the implementation and improvement ongoing opportunity for cross-learning. collaborative members or community of their immigrant integration initia- As early as the planning phase, proactive stakeholder groups, among individuals tives. Additionally, the evaluation team communications training has been of served directly by the immigrant inte- presents its findings at annual grantee primary importance. gration projects, and among residents meetings and works closely with the (both immigrants and longtime foundation’s director of evaluation to “We wanted to develop key messages residents) of participating grantee identify opportunities for disseminating early,” says Downs-Karkos. “We all communities? wanted to be able to talk about these the findings and lessons learned to help sensitive issues using similar language.” Planning for the evaluation began in inform the field. 2004 at the same time that other parts For the communitywide planning of the Immigrant Integration Strategy Frank Sharry of the National Immigration component of the Immigrant were being conceptualized (e.g., Forum provided the communications Integration Strategy, the evaluation technical assistance and the Request training, speaking practically to partici- team surveyed collaborative members for Proposal). The evaluation will pants about strategy: when and how to who participated in the planning process continue until 2010. engage in public dialogue. And Tamar in each of the ten communities. The Jacoby of the Manhattan Institute offered survey questionnaire solicited information insights into talking about issues from a EVALUATION ACTIVITIES about shared vision, communication conservative point of view. INCLUDE: and decision-making processes, nature • Review of written documents by of any disagreements, facilitating and grantees (e.g., proposals, implementa- challenging conditions, and benefits CHALLENGES AND LESSONS tion plans, logic models, newspaper of their participation. The evaluation IN A NEW GATEWAY articles). team also interviewed key collaborative members to find out more about each Peer learning has helped grantees deal • Interviews and observations from collaborative’s accomplishments, and with emerging challenges. For instance, annual site visits to the communities. how their participation may have led to some projects have found it difficult to • Annual survey of all collaborative new and improved relationships and engage Asians and other ethnicities members. unanticipated changes in their organi- beyond Latinos. Even among Latino zations. In addition, the evaluation participants, sustained participation and • A community survey of a team compiled information about the stratified sample of immigrants and leadership development have been hur- number and type of sectors represented non-immigrants in each of the ten dles among a population that generally in each collaborative. communities in 2005, 2007, and 2009. works long hours and multiple jobs to support their families. Business partners have been shy to participate, wary of issues that touch upon the undocumented. Collaboratives have struggled with who will speak on behalf of the project and when collaborative members are speaking as individuals.

41 And of course this initiative has been did not gain traction, it certainly stirred launched—quite courageously and the debate. The Boulder coalition is in “ o much of this is in the timing. professionally in the view of many in favor of debate and has brought in the SWe have been able to get ahead the broader philanthropic community— Study Circles Resource Center to encourage of the curve.” in a new gateway state in which far- community dialogue. right conservative voices have occupied —Susan Downs-Karkos “The fact is,” says Longmont’s Mayor center stage. Senior Program Officer Julia Pirnack, as reported in The Times, The Colorado Trust “A big lesson for us,” says Downs-Karkos, “people are here, they exist in the “is that flare-ups will happen.” community, and ignoring them, I think, would be a worse mistake.'' so many more foundations taking One story involving a grantee of the interest.” In the fall of 2005, for instance, Supporting Immigrant Integration Susan Downs-Karkos and her colleagues a group of funders began meeting in initiative made it from the local paper at The Trust are aware that they must stay Denver for monthly discussions on in Longmont, Boulder County, through on top of both the media’s heightened immigrant issues. The Associated Press to the Rocky interest and the politics (a record number Mountain News and on to The New York of immigrant-related bills being consid- “So much of this is in the timing,” Times. The piece focused on the commu- ered by the state legislature and a big Downs-Karkos reflects. “We have been nity debate surrounding the Longmont City anti-immigrant proposition on the ballot able to get ahead of the curve.” Council’s decision to hire an immigrant for November 2006). Yet for all of the Getting ahead of the curve is possibly integration coordinator as a component seeming harshness surrounding the one of the better indicators we have to of its plan. Part of the “flare” that carried issue, the initiative is helping positive assess foundation vision and leadership. the story so far was a suggestion at the things happen in Colorado communities. collaborative meeting that undocumented Downs-Karkos is not the only person immigrants should be considered as can- who “feels like we’re at a turning point; didates for the position. While the idea there is so much more awareness today, © Jupiter Images

42 ECONOMY, READY TO LEARN, Much of Minnesota’s economy is based WILLING TO WORK on agriculture and agricultural processing, COMMUNITY & and many of the newcomers have taken IMMIGRANT In March 2005, The Minneapolis jobs in the meat-processing industry. Foundation gathered more than 650 For Bonnie Rietz, one of the speakers INTEGRATION community leaders in a town-hall-style at the Minnesota Meeting and mayor of meeting, aided by high-tech video the small meatpacking town of Austin, THE WORLD IN presentation, emailed queries, and inter- Minnesota, this reality hits home. From AUSTIN, MINNESOTA active audience questions for statistical “one or two black families” in the 1970s, analysis on the big screen. It was the Austin’s population of 24,000 has grown first in the 2005 Minnesota Meeting to some 12 percent immigrant and series which aimed to spark “a candid refugee today, up from five percent conversation based on facts” toward in 2000. the goal of “shaping a statewide immigration agenda.” Recognizing this new diversity, Mayor Rietz is one of the many Austin leaders Some of the facts: Immigrants and who, with imagination, compassion, refugees currently comprise five percent energy—and the help of local founda- of Minnesota’s population, compared to tions—have created progressive policies 30 percent in 1900. During the first 38 and programs for immigrant integration. years of the state’s history, non-citizens The story of these projects deserves to were permitted to vote in state and be broadcast widely. Yet the full story of local elections. In 1896, there were nine Austin, as all of the town’s native-born languages on the state ballot. know well, is layered in complexity. The promise of Austin’s new demography sits Small comfort to police officers in the within the often painful changes of its Twin Cities who nowadays must call the new economy. AT&T language lines to communicate with the increasingly diverse population they are sworn to serve. Less so for natives THE STRIKE OF THE DECADE who feel 1896 is ancient history and find their Minnesota niceness wearing German immigrant George Hormel settled thin under what they perceive to be in Austin in 1887, back when newcomers rapid and unsettling change in their could vote in their own language. He traditional culture. opened a butcher shop then built a meatpacking plant. The George A. Hormel One of America’s “new gateway” states, Company, which processed pigs, became Minnesota’s immigrant population more Austin’s primary employer. When George than doubled in the 1990s. Refugees passed the business to his son Jay, the have resettled from wars in Southeast pork-cutting assembly line was passing Asia and Africa. Migrants have arrived to a second generation of native-born for work from Mexico and Central America. Austin residents.

Hormel was a benevolent employer. Thanks to its agreements with the United Food and Commercial Workers Union (UFCW) that represented the workers, Hormel was the highest-paying meatpacking plant in the country. Workers and their families sustained a middle-class lifestyle on the company’s wages and benefits. © Stephen Allen Photography

43 Propelled in part by the forces of SHOOTING FOR social security cards, to find dentists globalization, the meatpacking industry A SOFT LANDING and apartments. They organized rides to underwent major structural changes in schools and visited delivery rooms. the early 1980s—and so did Hormel. The Hormel’s corporate leadership believed company modernized its meatpacking that either the plant would have to As the newcomer Hormel labor force plant and moved to significantly reduce move to find lower-paid labor, or the began to arrive in town in the 1990s, wages. In response, Local P-9 of the lower-paid labor would move to the that same community spirit mobilized UFCW called a strike. plant. Austin’s demography was destined itself. In 1999, Bonnie Rietz got talking to diversify. with Jerry Anfinson, treasurer of the It was the union-busting era of the 1980s. Hormel Foundation. They and another Coming from progressive Minnesota, the Today, immigrants comprise 83 percent leader, Pat Ray, later convened a group strike took on national significance. It of the Hormel workforce. A majority of 60 residents to identify the top issues became known as the strike of the comes from Mexico and Central America, that the new diversity was bringing to decade. At a pro-union rally, on the but workers also hail from Sudan, Croatia, Austin. From that gathering, Apex speaker’s platform, young Senator Tom Bosnia, Eritrea, Togoland, Vietnam, Austin was born. The effort eventually Harkin of Iowa met for the first time a Korea, and Laos. Many have traveled led to seven committees and upwards progressive college professor named Paul “the loop” of the meat-processing labor of 200 people working on strategies in Wellstone, who would later earn a seat force throughout rural America, working transportation, housing, education, and in the U.S. Senate. at Smithfield, Farmland, Swift, or ITB child care, among others. Tyson plants before arriving in Austin. Six months after the strike was called, At Hormel, the workers, through UFCW “We were looking for a soft landing,” some workers began crossing the picket representation, have secured decent wages says Anfinson. “If you wait for things to line. When they were locked in by pick- and benefits that give them economic happen, you’re too late.” eting strikers, Minnesota’s Democratic stability and ease their integration into Governor called out the National Guard. the community. The wife of Hormel’s president took a A FOUNDATION’S FIVE bodyguard with her to the beauty parlor. In response to the influx of newcomers, MILLION DOLLARS Austin residents have undertaken volun- Those who lived through the Austin tary efforts to make the town a success In particular, Anfinson wanted to attract strike tell of what can only be described story for newcomer integration. It had immigrant families to Austin. He took as a civil war. Husbands and wives, begun, really, well before the strike. As Apex Austin’s ideas back to the Hormel fathers and sons found themselves on the first refugees from the Vietnam War Foundation, and philanthropy stepped in opposite sides of the line. After a year, began arriving in Minnesota, local lead- to support the collective energies of the the strike was broken, and workers ers formed a sponsorship committee— community’s leaders. ratified a new union contract with Hormel. they called themselves Amis Austin—to resettle new Vietnamese and Hmong “What if we start with $10 million from Hormel Foods Corporation, which the Americans in their town. “We were the our corpus for the support of projects world now knows under additional brands social services,” says community college to help immigrants get settled in the such as Jennie-O and Dinty Moore as foreign language and ESL teacher Sue community?” asked Treasurer Anfinson. much as for its infamous SPAM, stepped Grove. Amis Austin helped refugees get up to the international corporate stage. The old Hormel Company, in the words of a current town leader, was “a good thing that no longer exists.” Many of the former meatpacking workers forever lost their previous standard of living, says Roger Boughton, a retired Riverland Community College administrator and one of the current native-born leaders who have built the town’s programs to integrate immigrants. © Daranee Petsod

44 The Welcome Center. This jewel in Austin’s immigrant integration crown was launched in June 2000 with gradually decreasing annual support from the Hormel Foundation. Liliana Silvestry, a Puerto Rican American who, by all accounts, is an “absolute crackerjack,” was recruited from South Bend, Indiana to serve as the Welcome Center’s founding executive director. The Welcome Center seeks “to connect newcomers to the resources and information that will © Daranee Petsod facilitate their becoming part of our “What if we start with $5 million,” Child Care. The Foundation helped a community, and to provide programs and answered Foundation President Dick local community organization purchase services that will promote self-sufficiency Norton. Anfinson gladly accepted. the historic Catherwood Home and turn and multicultural understanding.” Some it into a “24/7” child care and parenting 350 immigrants per month avail them- That investment, Anfinson estimates, resource center, where the children of selves of Welcome Center services, from has now leveraged upwards of $50 million Hormel workers from every shift can housing and employment referrals (85 in federal, state, county, and city funds learn and play in a safe environment. percent of the contacts) to translation in support of some of the nation’s most of personal letters. imaginative projects for newcomer inte- English as a Second Language. gration. Among the programs that have Enrollment had been forecast to decline come out of Apex Austin: in Austin’s public schools. Newcomer PROUD WEARERS kids have held enrollment steady, but OF THE PINE CONE Affordable Housing. The city contributed they’ve brought English-language learn- $1 million in land, and Hormel invested ing needs. With support from the Hormel is not the only philanthropy that $2.25 million to build the 700-unit Hormel Foundation, the schools have has partnered with Austin leaders in Murphy’s Creek housing development. adopted a program that had been support of these programs in immigrant When new owners have accumulated piloted with Hmong youth in the Twin integration. equity in the development, they can buy Cities. Students spend their first year in an adjacent lot for $1 and build their half-day Spanish-language instruction The Blandin Foundation, located 300 own single-family home. Murphy’s Creek for content learning, half-day ESL for miles north in Grand Rapids, Minnesota, is approximately 25 percent newcomer, integration, before being mainstreamed works to strengthen rural communities and the development had an unintended in year two. throughout the state. In addition to its side effect of helping to integrate down- grantmaking, the Foundation has run the town Austin. Many native-born school Global Volunteers. When teachers Blandin Community Leadership Program teachers and early-career professionals began noticing that students were losing (BCLP) for the past 20 years. Groups are moved in, opening up large old homes their English during vacation, Austin’s brought together to participate in a cur- scattered throughout the city, which leaders brought in—and joined in—the riculum that includes community proj- many immigrants now occupy. Global Volunteers program to provide ects, as well as a five-day and a three- mentorship, field trips, and language day residential component. Transportation. Many immigrants on practice during one week of the summer. the cutting line at Hormel, Apex Austin Volunteers from around the country Blandin took this core leadership program learned, had no reliable way to get to (they pay $500 to participate) work into Austin immediately after the strike, work. The Foundation and the citizen with Mexican, Bosnian, Sudanese, and it is not a stretch to say Apex Austin leaders teamed up with the city and the Russian, and Ukrainian children. Hormel was one of the outcomes of the training. county to create a new small-bus route provides support. That same Hormel president’s wife with and to build a new public transportation the bodyguard—and the president of terminal. the union—were both participants. Five cycles of Blandin’s programs have come through Austin, and the sixth is on the horizon.

45 Four years ago, responding to the state’s increasing rural diversity, Blandin created Partners in Leadership (PIL), to draw newcomers from diverse cultural traditions into leadership networks. Graduates can go on to participate in BCLP.

Bonnie Reitz, Roger Boughton, Liliana Silvestry, and Sue Grove have all participated in Blandin’s programs (they call themselves, referring to the Blandin logo, “proud wearers of the pine cone”). Another alum is Carlos Quirindongo, who has worked on the cutting line at Hormel, and subsequently, as a translator for the UFCW local and as Hormel’s

employment manager. Quirindongo’s © Daranee Petsod project with PIL helped to institute an Liliana Silvestry of the Welcome Center annual Austin ethnic festival, now in its and Mayor Bonnie Reitz. fifth year, drawing 3,000 people. Sue Grove calls PIL “one of the most fantastic” WELCOMING THE The effort to share this family-friendly experiences she has ever had. CHALLENGE OF INTEGRATION spirit with Austin’s newcomers has clearly invigorated the old-timers. To With support from the Hormel Foundation In Austin, immigrant workers have other towns—and other foundations— and the Wilder Foundation, located in found a town not without its challenges, their accomplishment offers a model the Twin Cities, Austin’s leaders turned not without those who would prefer the of what is possible. most recently to focus groups of new- days when Austin’s ancestors were comers to identify the issues that still solely European and the economy was At the Minnesota Meeting, Mayor Rietz need tending to. They are currently at local, not global in nature. But they’ve put it this way: “In 2000, we were work on developing English and Spanish also found a place that has worked to expecting to lose population, and we language programs, addressing cuts in build programs and institutions devoted didn’t. We would much rather have the social services, and working on to the notion that integration is a two- challenge of integrating new people community attitudes. way process. than the challenge of a city that is dying.” Those native-born who have joined “ n 2000, we were expecting to with the newly-arrived to develop Ilose population, and we didn't. Austin’s immigrant integration ethos We would much rather have the are immensely proud of their town. “I challenge of integrating new people have Austin stamped on my rear end,” than the challenge of a city that says Jerry Anfinson. To Roger Boughton, is dying.” it is “a great community to raise children in, a great spirit.” —Mayor Bonnie Reitz Austin, Minnesota

46 HELPING he Minneapolis Foundation has a long Seven years later, we still get requests Thistory of challenging Minnesotans to for copies of the ads, and there is con- MINNESOTANS FIND view tough issues from a new perspective tinuing interest—and controversy— COMMON GROUND and encouraging community response. about immigration and public policies.” Not an institution that shies away from Responding to that continuing interest controversial issues, the Foundation has INITIATIVES OF THE and controversy, the Foundation, in tackled immigration issues head-on MINNEAPOLIS FOUNDATION 2005, launched its latest effort to foster throughout its 90-year history. www.minneapolis candid, ongoing discussions on immigra- As early as 1925, ten short years after tion based on facts over fear and false foundation.org its founding, The Minneapolis Foundation assumptions. With numerous partner supported a community-relations campaign organizations, the Foundation published on immigration. “Give Them a Welcome” “Immigration in Minnesota: Discovering sought to combat the hostility that Common Ground” and organized the immigrants were facing at that time. In 2004-2005 Minnesota Meeting series the 1930s, the Foundation was at the around shaping a state agenda for immi- forefront of funding resettlement serv- gration. The series engaged hundreds of ices for new immigrant populations. It community, civic, business, nonprofit, continues that work today by calling and government leaders. In addition public attention to immigrant issues to deepening their understanding of and the contributions newcomers make immigration issues, the Minnesota to society. Meeting challenged these leaders to work individually and collectively to The Foundation’s “Minnesota, Nice or help the state address the challenges— Not?” campaign, launched in 1999, and reap the benefits—of immigration. focused on educating Minnesotans on the growing numbers and diversity of Building on the statewide immigration immigrants who are now part of the conversations, the 2005-2006 Minnesota community. This award-winning campaign Meeting series tackles another tough combined the Foundation’s toolkit of and related concern: racial disparities. strategies: grantmaking, convening, and The Foundation’s choice of issues for public advocacy. Its advertising campaign these statewide discussions reflects its included a brochure, a website, radio belief that “the well-being of each citizen © The Minneapolis Foundation and print ads, bus shelter posters, and is connected to that of every other and other vehicles. The provocative ads that the vitality of any community is (“Some recent immigrants to Minnesota determined by the quality of those think it’s a rather cold place. And they relationships.” don’t mean the weather.”) stimulated The role of The Minneapolis Foundation, rich community conversations about the Carson believes, appropriately extends treatment of immigrants and their role beyond that as a grantmaker. “To in an increasingly diverse Minnesota. advance our mission to advocate and “When we introduced the advertising promote long-term ‘systems change,’ we campaign, we had no way to predict must address core community issues like whether it would have any kind of immigration and racial disparities,” says impact or if it would even be noticed,” Carson. “Our public awareness work is says Emmett D. Carson, president and focused on promoting inclusive dialogue, CEO of The Minneapolis Foundation. “We advocating for fair policies, and eliciting launched it over a weekend with cover- viewpoints which often go unheard in age and an ad in the local paper. By public debate. It seems that even after Monday morning, our phone system had nine decades, our work has just begun.” crashed, overloaded with hundreds of messages, including congratulations, requests for the brochure, and some

47 FROM CRISIS TO A he Silicon Valley, which catapulted in a local community,” says Lina Avidan, Tto fame during the dotcom boom, is program executive at the Zellerbach COMPREHENSIVE known worldwide for its abundant high- Family Foundation. “The way they have INTEGRATION MODEL tech industries, but it is also the proud done that has not only improved public home to one of the most comprehensive policies and support for immigrant-serving and significant immigration integration organizations; I think it has helped public WHAT LOCAL programs in the country: Santa Clara officials understand the immigrant expe- GOVERNMENTS CAN County’s Immigrant Relations and rience and appreciate the contributions LEARN FROM SANTA Integration Services (IRIS). immigrants make.”

CLARA COUNTY Santa Clara County has the third largest The original impetus for the County’s www.immigrantinfo.org immigrant population by county in immigrant integration efforts was the California, boasting more than 600,000 1996 federal welfare reform legislation, immigrants. Its largest city, San Jose, which drastically reduced the eligibility whose population today nears the one- of lawful immigrants for federal means- million mark, was over 80 percent white tested benefits. Although legal immigrants in 1970. By 2000, reflecting the influx nationwide made up only nine percent of of both high-tech and low-skill immigrant public benefits recipients, they shouldered workers, the white population was less 43 percent of the cuts. In Santa Clara than 30 percent. County, this translated into 36,000 legal immigrants losing their Food Stamps Responding to demographic realities and 15,000 elderly and/or disabled and recognizing that the integration immigrants losing their Supplementary of immigrants is crucial to the region’s Security Income (SSI). continued vitality, Santa Clara County, led by visionary officials, developed an “A number of us convinced the Board innovative and comprehensive program of Supervisors that it would be wise to that has become a national model. invest in a citizenship application assistance program so that legal immigrants “I see it as being an excellent model of could reestablish eligibility on the federal the way local government and community- level for Food Stamps and SSI,” says based organizations can work together Richard Hobbs, director of the Santa to support the integration of immigrants Clara County Office of Human Relations and a key leader behind the County’s immigrant integration efforts.

To aid with this effort, the Northern California Citizenship Project, with funding from philanthropist George Soros’s Open Society Institute and over a dozen Bay Area foundations, made a $1.2-million grant to Santa Clara County. The grant allowed the County to develop a citizenship program that provided citizenship information to 51,000 legal immigrants in its first year. © Santa Clara County Office of Human Relations

48 “This funding provided the seeds that The result was “Bridging Borders in blossomed into our current program and Silicon Valley,” a 400-page report that motivated the County to commit funding presented numerous recommendations and resources to addressing immigrants’ to improve the lives of immigrants and needs,” Teresa Castellanos, IRIS program help them become full, participating coordinator, says. community members. To put these recommendations into practice, the The citizenship program laid the ground- County expanded the scope of its efforts work for more expansive efforts involving and renamed its program Immigrant leaders from the faith-based, labor, and Relations and Integration Services. other sectors. Responding to immigrants’ needs and contributions, these efforts “We wanted our name to more fully seek to facilitate the integration of reflect the scope of the work we do. Our newcomers into the community. original focus was on citizenship assistance, but we’ve done a lot of things “ ust because you're an immigrant beyond citizenship and we wanted to consolidate everything under one © Santa Clara County Office of Human Relations doesn't mean you understand J name,” Hobbs says. other immigrants here. The idea Castellanos also believes that IRIS was to highlight the contributions IRIS programs encompass leadership should pride itself on its Knowledge of of each community, not just dispel development, policy advocacy, community Immigrant Nationalities (KIN) efforts, organizing, immigrant cultural proficiency, stereotypes.” which researched and published a guide community education, legal assistance, profiling the rich diversity of cultures —Teresa Castellanos social services, health services, and in the county. “The KIN project focuses IRIS Program Coordinator criminal justice initiatives (see sidebar on both the unique experiences and on page 51 for an overview of these commonalities among different ethnic Santa Clara County began the planning programs). groups and nationalities,” she says, process by conducting the most compre- adding, “Just because you’re an immi- hensive study on the needs of immigrants But citizenship remains the “heart and grant doesn’t mean you understand of any county in the United States. soul of where we started” according to other immigrants here. The idea was to Understanding that effective programs Hobbs, who believes that helping an highlight the contributions of each must reflect the needs of the community estimated 100,000 low-income immigrants community, not just dispel stereotypes.” they aimed to serve, the study, imple- obtain their citizenship is among the mented in 1999 and 2000, assessed the most important accomplishments of the Avidan, who formerly directed the motivation to immigrate, health care Santa Clara County immigrant integration Northern California Citizenship Project access, criminal justice, workplace programs. and has watched the Santa Clara immi- conditions, and more through community grant integration program develop over “Another big success has been inter- meetings, focus groups, surveys, and the years, considers the immigrant lead- cultural immigrant education. Over two other research methodologies. Over ership development initiative to be one dozen immigrants from the largest need- 2,500 of the county’s immigrants and of the program’s most effective efforts. iest immigrant populations in Santa Clara other residents responded to a 113- County have received communications question Human Needs Questionnaire It began as an experimental project to and speech training to make presentations that was translated into 14 languages. enhance the organizing, policy, and regarding the history, customs, challenges, In addition, 24 focus groups were held, media skills of immigrant communities. and contributions of immigrants from and a number of independent research Since then, it has grown into a three- their countries,” Hobbs says. “This is projects were conducted. unit course offered at San Jose City part of the immigrant cultural proficiency College. Many graduates of the course initiative in Santa Clara County.” go on to join the Immigrant Leadership Forum, which engages immigrants in advocating on their own behalf.

49 “I think it’s a great example of how things can start small and become more institutionalized. These kinds of programs need to become the regular way of doing things,” Avidan says. In particular, she admires the manner in which the Santa Clara model has synthesized numerous aspects of integration into one overall program.

“Successful immigrant integration takes a multi-pronged approach. You can’t just make sure that the police department has cultural competency or that health © Santa Clara County Office of Human Relations insurance is provided for all children. It really takes a very comprehensive “We’ve been very blessed to work in a Castellanos sees no reason why something approach to looking at the ways that county where the politicians really want like IRIS, although an ambitious and families and individuals become fully to respond to everyone in the community. extensive enterprise, cannot be realized involved in different aspects of community They recognize the demographic reality in other counties, even those with life,” Avidan asserts. more than the general population does, smaller or newer immigrant populations. so they continue to support us even After all, she observes, Santa Clara had The immigrant integration efforts in through times of economic difficulty,” little experience with these matters at the Santa Clara were originally financed Castellanos says. time of IRIS’s inception. She encourages jointly by public and private funds, but communities, especially smaller ones, to as the number of programs proliferated While IRIS has yet to be fully replicated connect, share information, and network and the population of immigrants swelled, by another county, Castellanos notes with those already involved with immi- more of the financial responsibility that the office frequently fields calls grant integration work. shifted to the County. Today, IRIS is inquiring about how Santa Clara has almost exclusively funded by the County, accomplished its work. Avidan hopes The need for intentional immigrant and Castellanos emphasizes the support that such programs will emerge in other integration strategies will become IRIS has received from local officials as Bay Area counties, all of which have increasingly important as communities one of the keys to its continued success. large immigrant populations. But she across the United States continue to Despite immigration’s status as a bed points out that local leaders will need undergo demographic transformation and of controversy most politicians try to to step up to the challenge of promoting as the gulf widens between the haves avoid, the Board of Supervisors in Santa immigrant integration. “It takes a very and have-nots. In response, community Clara County has consistently championed thoughtful, coordinated, long-term leaders must take the initiative to develop and promoted IRIS. commitment by a lot of different players an inclusive vision that engages multiple to change the community,” Avidan notes. sectors in the integration process. “It doesn’t happen on its own, but it’s something that’s definitely doable.” “When large numbers of residents don’t understand community institutions or know what their rights are, they are vulnerable and easily exploited. This Watch the DVD acts as a ‘lowest common denominator’ The Price of Renewal: that undermines the quality of life for Community Policing everyone,” Avidan emphasizes. “Healthy Planning and problem solving in demo- communities require the informed and graphically changing communities tends to widespread participation of all residents be most productive when immigrants them- in community life. We need to invest in selves are directly and authentically involved. Meet the first Somali police officer in one major efforts that aim to make that a reality.” American city, who not only helped calm conflict between his community and the department, but also serves as a resource for building cultural competency among his colleagues.

50 IRIS PROGRAMS

• Santa Clara County Citizenship includes photos, life conditions, country multilingual hotlines, boost the number Program holds two free citizenship days background information, and more. From of ethnic food providers, increase refrig- each year in 18 languages, provides the KIN study, two programs emerged. eration capacity, and more effectively legal support, and maintains a trilingual Under KIN Ambassadors, more than two meet the dietary needs of immigrant citizenship hotline in English, Spanish, dozen immigrants receive training and communities. Reflecting its commitment and Vietnamese. The program also funds give public presentations about their to language access, the County has also literacy programs and for non- home countries to government depart- expanded translation services and increased literate Spanish speakers to learn English, ments, community organizations, and the number of bilingual employees in its which is necessary for citizenship. schools. KIN to KIN is an exhibit that fea- social services agency and other county tures the background, culture, and con- departments. • Immigrant Leadership Institute tributions of immigrants in Silicon Valley holds a three-unit course at San Jose City • Health Services supports two and includes panel presentations on College. Over 250 immigrants have county-funded programs, Prenatal Care immigrants from 17 countries. taken this course. The curriculum centers for All, which covers prenatal care expenses around understanding governments and • Community Education focuses for undocumented immigrant mothers, nonprofits, learning about the backgrounds on increasing newcomers’ awareness of and the Children’s Health Initiative, which of various counties, and networking topics such as immigrant rights, English provides health insurance to all income- with others. classes, workers’ rights, domestic violence, eligible children under 18, regardless of child care, access to health services, and their immigration status (see page 110 • Policy Advocacy aims to influence the criminal justice system. The County for more details on this program). The immigration policy at the local, state, makes $150,000 in grants annually to success of the Children’s Health Initiative national, and international levels. For community groups striving to educate has raised the number of insured children example, IRIS participated in successful immigrants on these subjects. In addition, in Santa Clara to 98 percent. efforts to establish a state food stamp it publishes an immigrant resource guide replacement program for legal immigrants • Criminal Justice Initiatives seek to titled “Immigrants, Responsibilities, and and the restoration of certain benefits to reduce the number of criminal convic- Resources” that covers 23 topics in 11 legal immigrants that had been eliminated tions that result from cultural or linguistic languages. The County also has a website, by the 1996 welfare reform legislation. misunderstanding on the part of immi- www.ImmigrantInfo.org, which lists all grants and law enforcement. One program • Community Organizing comprises ESL and literacy courses offered by com- lets immigrants who have committed the efforts of both county and nonprofit munity colleges, adult education programs, misdemeanors such as failure to appear projects: the Immigrant Leadership Forum, churches, and community-based organi- in court or petty theft to opt out of jail Voting and Organizing in Immigrant zations. Immigration Legal Assistance is time by paying a fine of $100 and taking Communities through Education and provided through numerous organizations a course called “How to Live in America,” Support, and Services, Immigrant Rights including Catholic Charities, the Center which teaches the laws and customs of and Education Network. These projects for Employment Training, and attorney- the United States. Making education a work at the federal, state, and local levels led programs by Santa Clara University two-way process, all sheriffs possess copies to advocate for fair and equitable and the Asian Law Alliance. of KIN in their patrol cars so that they immigrant-related policies. • Social Services primarily ensures have a reference for understanding the • Immigrant Cultural Proficiency access to food programs and language customs and background of the person Initiative centers on Knowledge of access services. The County has invested being arrested. The Office of the Public Immigrant Nationalities (KIN) of Santa nearly $1 million under the “No One Will Defender also has a public defender who Clara County, an exhaustive study of Go to Bed Hungry” program, which has specifically examines the immigration the 16 largest immigrant groups in the partnered with the Second Harvest Food consequences of criminal pleas. county. The information collected Bank and its food suppliers to create

51 A HERITAGE BUILT OUR FAMILIES, “Rather than react to issues,” explains AMERICA’S FUTURE Esther Lopez, the Governor’s deputy chief AND BUILT UPON of staff, “we want to plan and recognize The 4,000-plus immigrants and refugees the realities of today and the realities of THE STATE OF ILLINOIS filling Chicago’s Navy Pier on November 10 years from now.” 19, 2005, had something to celebrate. LEADS THE WAY TO The first entity, the Office of New The convention that the Illinois Coalition Americans Policy and Advocacy, is charged STRATEGIES FOR for Immigrant and Refugee Rights (ICIRR) with convening an interdepartmental IMMIGRANT called “Our Families, America’s Future” task force to analyze, initiate, and coor- INTEGRATION included an impressively diverse gather- dinate policy efforts. It is run from within ing of families—Muslims, Latinos, the Governor’s administration. www.illinois.gov Asians, Eastern Europeans, many more— www.icirr.org and a vision for the integration of newcomers into the future of the state that “ ather than react to issues, we could scarcely have been more bold R want to plan and recognize the and concrete. realities of today and the realities of 10 years from now.” Surrounded on the dais by immigrant leaders, advocates, and state and national —Esther Lopez, Deputy Chief of elected officials, Illinois Governor Rod Staff, Illinois Governor’s Office Blagojevich, himself a son of immigrants, signed the New Americans Executive Order. The second entity is the New Americans This policy, the first of its kind in the Immigrant Policy Council—whose member- country, aims to “develop a New Americans ship of 15 includes Illinois leaders Immigrant Policy that builds upon the representing business, labor, civic, faith, strengths of immigrants, their families, and philanthropic interests. After con- and their institutions, and expedites sulting with communities across the their journey towards self-sufficiency. state and studying key integration issues, This policy shall enable State government the Council will prepare a set of written to more effectively assist immigrants in recommendations for the state to consider. overcoming barriers to success, and to A National Advisory Council, composed facilitate host communities’ ability to of respected national experts and led by capitalize on the assets of their the National Immigration Forum and the immigrant populations." Migration Policy Institute, rounds out The Executive Order created three new the group. Its responsibilities include entities to help the State develop systemic sharing promising practices to inform strategies for supporting the economic, the planning process and assisting in social, and civic integration of immigrants. the nationwide dissemination of the Illinois initiative’s findings and recommendations. © Illinois Coalition for Immigrant and Refugee Rights Illinois Governor Rod Blagojevich signs the New Americans Executive Order

52 THE CULMINATION The right political circumstances also OF A SERIES OF STATE made a critical difference. In 2002, Illinois elected its first Democratic PARTNERSHIPS WITH ICIRR Governor in 26 years, a man who placed The Executive Order is the most dramatic immigrant community leaders, like Hou partnership the State has developed with and Lopez, in key positions of his ICIRR. It builds on a series of program- administration; who identifies with his matic collaborations between Illinois and immigrant parents; and who told the this coalition of some 130 dues-paying crowd assembled at Navy Pier, “I have Coalition for Immigrant and organizations, including immigrant and been blessed with the American Dream © Illinois refugee service organizations, community and every day as a governor I think of Refugee Rights organizing groups, ethnic associations, what I can do to make the American unions, and religious and educational Dream real for everyone.” newcomer integration. It began with the institutions. establishment of the Bureau of Refugee and Immigrant Services (BRIS) within A recent example is the bipartisan Joint BUILDING ON A LONG IDHS to provide state leadership and Legislative Task Force on Immigrants HERITAGE OF OUTREACH, coordination on refugee and immigrant and Refugees, lobbied for and staffed by ORGANIZING, VISION issues.2 With Ed Silverman at the helm ICIRR. It resulted in the New Americans since its inception, BRIS sought partner- Yet, all of those responsible for this Initiative, a $3 million multi-year state ships with community, civic, and philan- key victory, particularly the leadership, fund to promote naturalization by sup- thropic institutions. It also leveraged staff, and coalitional colleagues at porting citizenship preparation, legal state funds and directed federal support ICCIR, emphasize that the work stands screening, and assistance in filling out to mutual assistance associations (MAAs) on the shoulders of decades of earlier applications. The Initiative, which aims and other ethnic-based community effort by visionaries in both the public to assist 20,000 newcomers annually, is groups, building grassroots strength and private sectors and affiliated with administered by ICIRR in cooperation with among an infrastructure of newcomer- both major political parties. the Illinois Department of Human Services owned institutions. (IDHS). Chicago has drawn newcomers since the Taking leadership through the 1995 first great wave of immigration at the Such state-community partnerships are Refugee and Immigrant Citizenship end of the nineteenth century. It has rare and much admired around the country. Initiative, BRIS supported 35 agencies been a laboratory for civic outreach and “These partnerships,” says Grace Hou, statewide to assist newcomers to natu- civic activism in the integration of assistant secretary of IDHS, “are designed ralize, the first-ever state-funded program immigrant populations. The eight-hour to address challenges in immigrant com- of its kind. And it was Silverman’s office workday, for example, is partly due to munities that neither government nor that, in the same year, initiated the the activism of Chicago immigrants. Their the nonprofit sector can solve alone.” Illinois Immigrant Policy Project to integration was supported by religious stimulate research and recommendations Philanthropy, too, has played an important institutions and community organizations, about state immigrant policy. supporting role in this endeavor. The most notably Jane Addams’ Hull House, Executive Order received substantial a leader in the Settlement House move- Joining 26 local and national foundations, support from the John D. and Catherine ment, and its offspring, the Immigrants’ BRIS contributed $2 million in state T. MacArthur Foundation and Carnegie Protective League. In the twentieth monies to the Fund for Immigrants and Corporation of New York for planning, century, the city spawned community Refugees, a five-year funding collabora- implementation, and dissemination. organizing groups, drawing European tive that addressed the disproportionate Josh Hoyt, ICIRR’s executive director, immigrant workers into organizing and impact of welfare reform on immigrants credits early foundation support for advocacy efforts and branching into and refugees in metropolitan Chicago. enabling the coalition to pursue discus- major networks, such as Gamaliel and sions about coordinated strategies with the Industrial Areas Foundation, which high-level government officials including remain active in the state today. Hou and Lopez. Out of these conversations, the idea of the Executive Order As refugees from Southeast Asia began was born. resettling in Illinois in the 1970s, the State joined this heritage by creating its own pioneering programs to promote

2. BRIS’ initial focus, however, was on the resettlement of refugees from Southeast Asia, Africa, and Eastern Europe.

53 And in partnership with ICIRR and over 30 other organizations across the state, BRIS created the Outreach and Interpretation Project in 2000 to help newcomers gain access to public benefit programs available through IDHS.

All these efforts had bi-partisan support: the governor’s mansion was in firm Republican control, while Democrats generally dominated both houses of the state legislature. © Vincent Pieri/Daily Herald © Vincent March for Immigrant Rights, Fall 2005 MULTI-SECTOR COLLABORATION

To be sure, the momentum that propelled In 2003, the Chicago Council of Foreign grants could use to engage in public Illinois to its leading role in immigrant Relations (CCFR), which had never before policy discussions on issues affecting integration cannot be attributed to a examined the issue of immigration, immigrants. single person, agency, or coalition. Too convened an independent task force of many players have been instrumental to business, civic, and community leaders Philanthropic support and leadership laying the groundwork and building the to analyze the impact of immigration on played a crucial role in building wide- momentum. the Midwest. The non-partisan panel was spread interest in immigration and immigrant integration. Following are The Jewish Federation of Metropolitan co-chaired by former Republican governor, only a few examples; many more indi- Chicago, for example, worked with ICIRR Jim Edgar; former INS commissioner, viduals and institutions than can be following the 1996 change in federal Doris Meissner; and Chicago business mentioned have played important roles. welfare and immigration laws to create leader, Alejandro Silva. The task force produced recommendations for reforming and make permanent a $6-million line • The Fund for Immigrants and the U.S. immigration system and devel- item in the state budget for services to Refugees, a collaborative of 27 funders oping integration policies consistent assist immigrants who lost eligibility for including the State, made $6.8 million with the country’s economic needs and federal public benefits. in grants to 66 organizations between values. Its 2004 report, “Keeping the 1997 and 2002 in support of citizenship The Illinois Latino Caucus lent its Promise: Immigration Proposals from the services, legal services, policy and advo- growing political power. Many Caucasian Heartland,” provided a framework that cacy, community organizing, and health politicians in Illinois, particularly those the business community and other access projects. representing metropolitan Chicago, still “non-traditional” supporters of immi- feel a strong connection to their immigrant roots. And advocacy by community organizations—among them Centro Sin Fronteras; the Coalition of African, Watch the DVD Asian, European, and Latino Immigrants The Price of Renewal: of Illinois; and the Council of Islamic Community Clinic When redevelopment is eminent, how are Organizations of Greater Chicago—also communities with large immigrant popula- helped build momentum. tions weighing their priorities? Observe a tense, ultimately triumphant, community planning meeting where advocates are making the case for a bigger health clinic that will serve mostly uninsured Mexican, African, and South Asian families—instead of another high-end food store.

54 • CCFR’s immigration task force was many immigrant organizations that ROLE FOR THE STATE funded by the Robert R. McCormick helped organize a march for immigration Tribune Foundation, the John D. and reform. The march turned out more than “If we know that immigrants become Catherine T. MacArthur Foundation, 300,000 participants and inspired other integrated by becoming civically engaged, Carnegie Corporation of New York, the rallies and marches in dozens of cities what is the proper role of the state?” Joyce Foundation, and Motorola, Inc. across the United States. Hoyt asks. Service is important, and ICIRR and others have worked hard to • The Fry Foundation, the Community get those services provided, but Hoyt “ overnment can't always be Memorial Foundation, and the Michael believes the state needs much more than about saying no; sometimes it Reese Health Trust supported a collab- G “a giant list of social service programs.” oration between IDHS and the Sargent has to be about saying yes.... If Shriver National Center on Poverty Law to we work together, we'll be able to “I think we have a unique opportunity develop a comprehensive plan for access do things we've never done.” here in Illinois,” says Lopez, the Governor’s to IDHS services by limited English deputy chief of staff. “Government can’t speakers (see “Promising Practices on —Esther Lopez, Deputy Chief of always be about saying no; sometimes it Language Access” for details). Staff, Illinois Governor’s Office has to be about saying yes…. Of everything on our list in the State of Illinois, • The two co-chairs of the New For ICIRR, an important goal is to [immigrant integration] is our number- Americans Executive Order’s Policy Council convert this show of numerical strength one priority. If we work together, we’ll are Ngoan Le, senior program officer at into votes, particularly in the Chicago be able to do things we’ve never done.” the Chicago Community Trust and Juan suburbs and downstate, where immigrant Salgado, president of ICIRR. voters, in Hoyt’s term, are the new This was the message of the ICIRR “soccer moms” of swing politics. For the convention at the Navy Pier. It is the The involvement of philanthropy reflects 2004 election, the coalition registered aspiration of the New Americans a collaborative approach that Illinois 27,000 new immigrant voters and brought Executive Order. advocates have long taken and define 65,000 voters to the polls, including broadly. “We’ve been intentional in many first-time voters. Banners at the building alliances with labor, business, March 2005 immigration-reform rally Republican leadership, African-American proclaimed, “Today we march. Tomorrow leaders,” says Hoyt of ICIRR. we vote!”

THE IMPORTANCE OF CIVIC PARTICIPATION

Active immigrant civic participation— with a focus on finding common cause among diverse immigrant communities— is highly valued at ICIRR. In March 2005, the coalition was among the © Illinois Coalition for Immigrant and Refugee Rights ICIRR Convening, November 2005

55 EVALUATING COMMUNITYWIDE PLANNING EFFORTS

Initially, the evaluation of With time, however, the evaluation • Increased presence of representa- communitywide planning may focus can shift to how the planning process tives from a variety of sectors and on the process of collaboration by has impacted particular outcomes immigrant groups at meetings and examining the following elements, related to immigrant integration as a events. which also reflect the planning whole, thus establishing the connection effort’s outputs: between the above elements with the • More immigrants in leadership goals attained and other unanticipated positions (e.g., committee chair, • The types of institutions, by outcomes (see figure at right). convener, board member). sector and area of influence (e.g., a mayor’s office is more influential in The outcomes described in the following • Increased satisfaction with the the public sector, while the immigrant chart can be observed among partici- ability to participate (e.g., voting, advocacy group may have more credi- pants of the planning process as well influence over decisions, new and bility in the immigrant community). as in the larger community. It is likely strengthened relationships, dialogue, that the former will happen first. Here advocacy). • Background of individuals are examples of ways to determine if involved, by sector, demographic • New and improved strategies that the outcomes occurred: characteristics, and influence (e.g., are more culturally relevant (e.g., the Latina grandmother who is • Frequency of contact and reason dissemination of information through trusted by Latina women in the for contact (e.g., joint sponsorship of less traditional avenues such as the community, and the Caucasian judge events, joint organizing campaign) bulletin board in the Latino market, who is respected in the legal sector). between two or more participants, use of ethnic media to promote particularly between receiving and healthy eating). • Levels of involvement, as well as immigrant community leaders, beyond formal or de facto sharing of power what they do together in the planning SOURCES: (e.g., decision making and/or input process. Backer, T., ed. 2003. Evaluating Community only, executive committee, and/or Collaborations. New York, NY: Springer Publishing subcommittees). • Improved and widespread practices Company. that facilitate the involvement of immi- Minkler, M., ed. 2002. Community Organizing and • Methods of engagement (e.g., Community Building for Health. New Brunswick, grants (e.g., change to more convenient simultaneous interpretation, drawing NJ: Rutgers University Press. meeting times, use of translation equip- out of quiet participants, assisting ment at meetings, availability of the overly-enthusiastic to step back). childcare and transportation). • Process for decision making, handling disagreements and conflicts, and determining goals, strategies, and actions.

56 EVALUATING COMMUNITYWIDE PLANNING EFFORTS

OUTPUTS OUTCOMES • Equal participation Among planning process participants of institutions and and in larger community: individuals from receiving • Increased involvement of immigrant and immigrant commu- leaders in decision making. nities (agency- and community-based). • Increased exchange of information IMMIGRANT INTEGRATION and resources across sectors and • Clear process for making These outputs among organizations and individuals. These outcomes encourage encourage decisions and handling • Better understanding of unique and an inclusive integration, and disagreements and common concerns and solutions conflicts. process, and as as integration inclusiveness (e.g., improved policies and gradually improves, these conditions to facilitate English occurs, these • Strategies for communi- outputs will also language acquisition). outcomes will cating to members and become more also become larger community. • Increased cross-cultural interaction widespread in more wide- and understanding, and reduction future planning spread. in prejudices. • Shared understanding of processes. goals and objectives. • Changes in the way organizations and leaders work together. • Clear roles for partici- • Increased and deepened relation- pants. ships across cultural boundaries. • An action plan. • Changes in policies, procedures, and practices within participating organizations.

57 58 Promising Practices in Language Access

“ t is not easy for people to learn a language overnight; for most of Ius, it takes awhile. In the meantime, immigrants and the receiving community need to communicate with each other. If their children are in school, it is really important to get the parents involved, and the only way to get parents with limited English skills involved is to communicate in their native language.

“Everybody benefits if parents are helping their children to do better in school. Everybody benefits if newcomers know how to access police services, if working immigrants know how to pay their taxes, if senior citizens know how to vote. Investing in language services makes it possible for new immigrants to participate and contribute to our community. Ultimately, such investments are to society’s benefit.” —Judy Chu, California Assembly Member, 49th District

INTRODUCTION 61

PUBLIC POLICIES TO EXPAND LANGUAGE ACCESS 63 Overview Successful Elements of Language Access Policies

PROMISING PRACTICES IN PUBLIC AGENCIES 65 Assessments and Development of Effective Practices Community-Public Agency Collaborations Cost-Effective Methods of Serving LEP Populations

COMMUNITY AND LEGAL ADVOCACY 68

EVALUATING LANGUAGE ACCESS PROGRAMS 69

59 60 INTRODUCTION lmost 14 million U.S. residents, The integration of immigrants into local A including nearly half of all immi- communities can be strengthened when grant workers, have limited English pro- newcomers, including those with limited ficiency (LEP).1 Learning English, espe- English proficiency, have access to gov- cially for adults, is often a challenge ernment services that help them meet that can take years to accomplish, basic needs and become self-sufficient. particularly since many low-income In fact, government agencies that immigrants hold multiple jobs to receive federal funds are required to support their families and have limited provide language access to their LEP time for English classes. Receiving clients.2 In some instances, government communities should understand that agencies’ inability to communicate certain segments of the immigrant with LEP immigrants has had dire community—the elderly, people with consequences. disabilities, and immigrants who An 80-year-old man suffering from congestive heart are not literate failure, colon cancer, high blood pressure, and in their native dementia died within 24 hours of being taken into languages—will police custody because the corrections officials could have great difficulty learning not communicate in his native language and were English and may unaware of his medical conditions. The man’s wife never achieve tried to explain that her husband was sick and full proficiency. needed medical care, but neither the police nor However, the nursing staff understood her Cantonese.3 vast majority of immigrants are In addition to the direct impact on highly motivated to learn English and immigrants themselves, language barriers recognize the importance of good to government agencies and services English skills to their success. As these can affect the well-being of the broader immigrants make the often-difficult community. Untreated illnesses and transition toward English proficiency, unsolved crimes can endanger public receiving communities have a strong health and safety. Immigrants’ inability interest in ensuring that lack of English to report workplace abuses can depress skills does not increase social wages and deteriorate work conditions, or economic isolation, barriers, or lowering the standards for all workers, disparities for their newest members. particularly those in low-wage industries.

1. Capps, Randolph, Michael E. Fix, Jeffrey S. Passell, Jason Ost, and Dan Perez-Lopez. 2003. A Profile of the Low-Wage Immigrant Workforce. Washington, D.C.: Urban Institute. (Analysis of 2000 Census data found that 47 percent of immigrant workers were limited English proficient, i.e., spoke English less than “very well.”) 2. See, e.g., Title VI of the 1964 Civil Rights Act. 42 U.S.C. Section 2000d. 3. Van Derbeken, Jaxon. 2001. “Death in a Cell: How Sick Man Spent Final Hours in SF Jail.” San Francisco Chronicle, September 26, sec. A. © Harry Cutting Photography

61 Although primary responsibility lies with government agencies, foundations can play an important role in catalyzing efforts to make publicly funded services more accessible to LEP individuals. Foundations can:

• Convene stakeholders to identify language barriers in public services and to advance policy solutions. Stakeholder groups include policymakers, community advocates, service providers, and immigrant organizations.

• Provide planning grants to help government agencies conduct assessments and develop effective language access policies and practices. Efforts that involve collaboration among immigrant © Jupiter Images organizations and government agencies are especially promising. • Fund community organizations to GCIR hopes that the examples in this provide interpretation and orientation report will help you identify key ele- • Fund technical assistance to services to help LEP individuals gain ments of good programs and policies help government agencies to develop, access to government services. and inform the role your foundation can implement, and evaluate language Examples of such programs include play to support promising efforts that access strategies and demonstration providing community-based interpreters relate to your funding priorities. As you projects. Technical assistance is especially to help LEP immigrants communicate explore funding strategies in this field, valuable to agencies with limited with their children’s teachers and school we invite you to utilize GCIR and the experience working with LEP populations, officials, as well as helping LEP families organizations featured in this section such as those located in new immigrant receive appropriate social services. as resources that can help inform and destinations. guide your work to improve language In this section, GCIR profiles promising access to government services for LEP • Fund trainings and convenings to language access initiatives of varying populations in your communities. support peer-to-peer learning and the scales to illustrate the range of possibil- sharing of promising practices among ities, from modest efforts, such as the community advocates, practitioners, interpreter request card, to ambitious and government workers. Outside of the efforts that aim to change the way health care field, such opportunities are billion-dollar state agencies serve LEP currently limited. populations. Examples from both established immigrant gateways and newer Watch the DVD • Support community and legal immigrant destinations are represented. Rain in a Dry Land: advocacy to monitor efforts by gov- Not only have foundations seeded or The Supermarket ernment agencies to increase access supported these initiatives, but in some Imagine moving from a refugee camp, to services for LEP individuals. Such cases, they have exercised leadership in where food is extremely scarce, to a major advocacy can include providing feedback metropolis, where the simple act of buying convening key stakeholders to discuss tea requires new linguistic, technological, and technical assistance to public agen- problems and identify solutions. and social skills. Go shopping with one cies on developing responsive language immigrant and his teenaged son, as they access practices; helping government struggle to figure out how much agencies develop community and political “money” is left on their Food support for its language access activities; Stamp “charge card.” and pursuing litigation in situations where agencies have consistently failed to remove harmful language barriers.

62 OVERVIEW Two California cities, Oakland and San PUBLIC POLICIES Francisco, were the first to adopt local TO EXPAND Despite myriad compelling reasons for language access ordinances in 2001. LANGUAGE ACCESS increasing language access, government Washington D.C. and New York City has consistently lagged behind the followed suit in 2004. Maryland and private sector in delivering multilingual California have similar laws in place at services. Responding to market forces, the state level, while many other public private companies—including banks, agencies have translated government utility companies, hospitals, and other documents into non-English languages businesses—have invested millions of and increased their hiring of bilingual dollars to provide services in various staff even without new legislation. languages, especially in localities with large immigrant populations. These corporations have prioritized hiring FEDERAL bilingual staff, translating sales and product materials into other languages, LANGUAGE ACCESS and developing multilingual branch offices REQUIREMENTS or telephone centers to communicate with LEP customers. Government agen- In August 2000, then-President Bill cies could significantly improve their Clinton ordered federal agencies to ability to serve LEP clients by adopting develop guidelines to ensure that fed- these widely used business practices.4 erally funded programs are accessible to LEP individuals,5 as required by Responding to federal policy directives Title VI of the 1964 Civil Rights Act. (see sidebar), government agencies Under Title VI, recipients of federal have begun to develop and implement funding (e.g., state and local govern- strategies to expand language access to ment agencies, hospitals, nonprofit their services. And recognizing demo- organizations, and private businesses) graphic changes, a growing number of must make their programs and services states and local governments have reasonably accessible to LEP individuals. affirmatively enacted their own policies The Bush administration reaffirmed requiring public agencies to provide Clinton’s executive order, and the equal access to LEP individuals. These U.S. Department of Justice (DOJ) led local policies, which reaffirm federal a multi-agency effort to develop language access requirements, generally guidance to help federal agencies and share several important characteristics: entities that receive federal funding make their services accessible. The • They usually apply to government DOJ guidance emphasizes that recipi- agencies that provide important services ents of federal funds must affirmatively and have regular contact with the public ensure LEP individuals can effectively (e.g., health care, social services, participate in their programs; failure employment, and law enforcement). to take reasonable steps may constitute national-origin discrimination • They require agencies to provide prohibited by Title VI and may result services in multiple languages, including in the loss of federal funding. The both verbal communications and the guidance of DOJ and other federal translation of important written materials. agencies, along with tools and However, as a practical and financial resources to help recipients of federal matter, most only mandate that services funding comply with language access be provided in widely spoken non- requirements of Title VI, can be found English languages. at www.lep.org.

4. Chinese for Affirmative Action. 2004. The Language of Business: Adopting Private Sector Practices to Increase Limited-English Proficient Individuals’ Access to Government Services. San Francisco, CA: Chinese for Affirmative Action. Available at www.caasf.org. 5. Executive Order 13166, Improving Access to Services for Persons with Limited English Proficiency, 65 Fed. Reg. 50121. Federal Register: August 16, 2000, Volume 65, Number 159.

63 SUCCESSFUL ELEMENTS OF • Procedures for evaluating the LANGUAGE ACCESS POLICIES quality of bilingual services.

The experiences of private corporations • Easy-to-use complaint procedures and government agencies suggest and effective enforcement mechanisms. that reducing or eliminating language • Outreach to LEP communities about barriers in government services can be their right to receive assistance in their achieved effectively and efficiently language. This often requires collaborat- when agencies implement policies that ing with community-based organiza- include the following elements: tions, ethnic media, and/or other • Regular assessment of the language immigrant institutions to disseminate needs of its constituency or clientele materials and solicit feedback on the through demographic analysis, surveys, quality of services. or intake information. In addition to these elements, the • A translation plan that identifies, support of elected officials or policy- prioritizes, and translates important makers is critical to putting in place documents in a linguistically and effective language access policies in culturally competent manner. government. Making government more accessible to LEP individuals requires Watch the DVD Hold Your Breath: • Sufficient numbers of qualified not only technical knowledge; ultimately, The Doctor’s Office bilingual staff in positions that interact public agencies must understand that In hospitals and doctors’ offices around regularly with the public. their constituency includes such resi- the country, complex and often confusing dents to whom they are accountable relationships are being played out between • Training of public contact staff on for serving. overwhelmed medical professionals and the how to interact with LEP persons and non-English speaking patients they serve. on interpreter services. Listen in as a well-meaning oncologist explains to the daughter of an Afghan • Centralized translation resources refugee how a language barrier may have compelled her ailing father across local offices or even across to refuse cancer agencies. treatment. © Tony Armour Photography, Inc. Armour Photography, © Tony

64 PROMISING PRACTICES IN PUBLIC AGENCIES © Tony Armour Photography, Inc. Armour Photography, © Tony

oundations are playing an important The project seeks to develop a national Frole in making government services peer network of experienced and new more accessible for LEP individuals. practitioners to document effective poli- Individual grants are generally in the cies, program implementation, and eval- range of $25,000 to $75,000, although uation methods. It also aims to develop some health care initiatives are consid- ways of assessing the effectiveness of erably larger. Foundation grants have language access services to improve supported technical assistance and plan- service delivery and outcomes for LEP ning to government agencies, partnerships children and families. between public agencies and immigrant One example is a grant to the New York organizations, and implementation of City’s Administration for Children policy reforms. This section highlights Services to develop a comprehensive some of the promising practices to plan for serving LEP families, making it improve language access in government one of first public child welfare agencies agencies in the United States. in the country to do so. The grant aims to make a wide range of agency serv- ASSESSMENTS AND ices—child care and Head Start, child DEVELOPMENT OF protection, preventive services, and fos- EFFECTIVE PRACTICES ter care—available in the six major non-English languages in New York City. While an increasing number of states “Immigrant families whose primary and municipalities have adopted lan- language is not English pose a special guage access policies in recent years, challenge to public systems and a special there are relatively few resources out- burden to children who may be asked to side of the health care sector to assist provide translation services,” says Irene practitioners in implementing these new Lee, senior associate at the Annie E. requirements. In response, the Annie Casey Foundation. “The Foundation is E. Casey Foundation launched a project committed to promoting the goal that to facilitate peer-to-peer learning and vulnerable immigrant children and fami- collaboration among government lies successfully learn English and have practitioners, as well as to develop best access to high-quality, low-cost social practices publications and web-based and financial services in their native resources for public agencies serving languages, so they can become fully LEP children, youth, and families. A integrated into their communities primary goal is to build the capacity of socially, politically, and economically.” child- and family-serving agencies to design and implement high-quality language access models.

65 COMMUNITY-PUBLIC AGENCY will use to develop a new language Over a four-year period, CAA developed COLLABORATIONS access plan that is expected to serve a community coalition that worked as a model for other state agencies. with law enforcement, public housing, The Lloyd A. Fry Foundation has funded human services, public health, and a unique collaboration between the Both IDHS and the Center credit the renters’ assistance agencies to improve Illinois Department of Human Services Fry Foundation for encouraging a partner- their capacity to serve LEP populations. (IDHS) and the Sargent Shriver National ship between agencies that have not The coalition’s advocacy led these agen- Center on Poverty Law (Center) to develop always seen eye-to-eye. As Unmi Song, cies to add bilingual staff positions and a comprehensive plan for increasing LEP executive director of the Fry Foundation, develop formalized procedures and staff individuals’ access to IDHS services. observes, “Developing a plan for increas- trainings. For instance, in response to IDHS is the largest Illinois public ing immigrants’ access to health and two police shootings of LEP individuals agency, with over 15,000 employees social services requires that it be informed in 2003 and 2004, the coalition and an annual budget of over $5 billion. both by the needs of the community convinced the San Francisco Police Its seven divisions provide most of the and government institutions… Because Department to develop a curriculum and state’s safety-net and self-sufficiency these parties were willing to collabo- video training to instruct officers on services, including welfare, mental health rate, there was an opportunity to develop how to interact with persons with lim- programs, alcoholism and substance a process and plan that everyone could ited English skills. Under this program, abuse treatment and prevention services, support.” The Community Memorial all patrol officers are given a multilin- programs for people with developmental Foundation and Michael Reese Health gual card that allows LEP persons to disabilities, health services for women Trust have also provided support for identify their native language. Officers and children, prevention services for this project. are also required to use telephone domestic violence and at-risk youth, interpretation services when no Shortly after San Francisco became one and rehabilitation services. bilingual police staff is available. of the first municipalities in the United The Fry Foundation’s $50,000 grant to States to adopt a local language access According to Lina Avidan, program the Center has allowed a team of experts ordinance in 2001, the Zellerbach executive at the Zellerbach Family to conduct a demographic analysis and Family Foundation provided Chinese for Foundation, “This project demonstrates assessment of IDHS’s language capaci- Affirmative Action/Center for Asian that language access is essential for the ties. IDHS has given the Center’s staff American Advocacy (CAA) a multi-year timely integration of newcomers into and experts access to departmental doc- grant to monitor implementation and local communities. Beyond the impact uments and made senior staff available provide technical assistance to govern- of its work with immigrants, CAA has for interviews. The Center will make ment agencies which faced challenges helped elected and appointed officials detailed recommendations, which IDHS in meeting the new mandates. recognize that the entire community benefits when all residents have access to essential services and understand their rights and responsibilities as community members.” The Zellerbach Family Foundation has since expanded its funding to provide support for similar work in Oakland, California.

With support from The Minneapolis Foundation, the Southeast Asian Community Council (SACC) developed and distributed interpreter request cards to Hmong-speaking individuals who use the card when they come into contact with police officers. Each card lists the telephone numbers of an English- speaking family member, SACC, and interpreter telephone services, so that police officers have several options for finding interpreters to communicate in Hmong. Three local police departments in the Minneapolis/Saint Paul metropolitan area and the state police agency have trained officers to respond to the usage of this card. © Jupiter Images

66 COST-EFFECTIVE METHODS OF SERVING LEP INDIVIDUALS

The potential high costs of improving language access can present significant challenges to government agencies. Yet, more and more public agencies are developing innovative, cost-effective approaches that can be replicated in other communities. These approaches include utilizing volunteer interpreters, hiring bilingual workers, and using communication technologies to provide multilingual information. Many of the following cost-effective practices were developed in established gateways that have extensive experience serving LEP populations. © David Bacon

• Utilizing Community Interpreters. • Using Communications The volunteer interpreters program, Technology. New York City has been operated by the City of Oakland’s Equal a national leader in developing a 311 Access Office (EAO), provides language telephone system that allows residents assistance to city departments that do to obtain information about local gov- not have sufficient bilingual staff. ernment programs and non-emergency Volunteers receive basic training on how services. Calls to 311 are answered by to interpret and are tested for language a live operator, 24 hours a day, seven competency by EAO staff before they days a week. Through a contract with are referred to city agencies. Volunteer the AT&T Language Line, interpreters are interpreters are only used in situations available in 170 languages. Similarly, that do not require specialized vocabu- Oakland has established a cost-efficient lary and where health and safety issues method of providing basic information are not at stake. After each session, the on city services through a multilingual volunteers are evaluated, and those who telephone system that gives recorded fail to provide competent interpretation information on 500+ city services in receive further training or are removed English, Spanish, Mandarin, Cantonese, from the volunteer pool. The program and Vietnamese. For some departments, currently has approximately 65 volun- applications and information documents teers who speak nine languages. These can be faxed or e-mailed to the caller volunteers assist more than 500 LEP upon request. individuals per year.

• Hiring Bilingual Staff. In response to a lawsuit filed in the early 1990s, San Francisco Human Services Agency developed effective outreach efforts to increase its hiring of bilingual staff, recognizing that such an approach would be the most cost-efficient and effective way to communicate with its growing immigrant caseload. By 2004, 31 percent of the agency’s public contact staff was bilingual, far exceeding the percentage of LEP individuals in the county’s caseload.

67 COMMUNITY AND ith a three-year grant from • Providing technical assistance to Wthe William Penn Foundation, the City’s Global Philadelphia program. LEGAL ADVOCACY Community Legal Services created the This initiative, in accordance with Language Access Project (LAP) in 1999 the mayor’s executive order, provides to increase the access of low-income technical assistance and centralized LEP individuals to legal services in resources to help increase LEP individu- Philadelphia and to help make local als’ access to government services. government programs more responsive LAP has also received substantial support to this population. In a short period of from the Samuel S. Fels Foundation and time, the project has become a recog- several grants from the Pennsylvania nized national leader in advocating for IOLTA (Interest on Lawyers’ Trust innovative language access policies Accounts) program. through the filing of complaints, negoti- ating with government agencies, lobby- The Rosenberg Foundation has a long ing for legislative changes, and provid- history of supporting community-based ing trainings to public agencies, courts, and legal organizations to advocate for and legal service groups. Its accom- improved language access in public plishments include: services. For example, Rosenberg provided multi-year funding to the Legal • Reforming government welfare Aid Society/Employment Law Center’s agencies. After documenting language Language Rights Project to combat dis- barriers at the state and city welfare crimination against language minorities agencies, LAP filed a series of adminis- through litigation, policy advocacy, trative complaints under Title VI of and public education. The Project’s the 1964 Civil Rights Act. Following an activities include: investigation, the U.S. Department of Health and Human Services found these • Legal advice and counseling. agencies to be out of compliance with The Project provides individualized federal laws, and LAP is currently working assistance and legal counseling to with the state Department of Public Welfare callers via a toll-free, nationwide to develop new procedures that are Language Rights Information Line expected to increase LEP families’ partici- (services provided in Spanish, pation in critical income-support programs. Cantonese, Mandarin, and English).

• Developing innovative law • Community outreach and enforcement language policies. LAP education. To educate language- worked with an immigrant coalition to minority communities and others about advocate that the Philadelphia Police language rights, the Project promotes Department improve its capacity to public service announcements and other serve LEP residents. Working in conjunc- media coverage of relevant issues, as tion with a U.S. Department of Justice’s well as distributes fact sheets and self- review of the police agency, LAP’s help materials in Chinese, Spanish, advocacy efforts resulted in a detailed and English. departmental directive issued in December 2005 requiring police to pro- • Technical assistance to community vide language-appropriate services to groups and lawyers. Language rights LEP people. The directive establishes attorneys provide free technical assis- procedures for providing free language tance to other advocates and service assistance, specifies how police officers providers interested in developing are to interact with both LEP victims policies and/or lawsuits to promote and suspects, and calls for the transla- language access. For instance, the tion of many forms and documents Project worked with immigrant advocates into the most commonly encountered to draft the first local language access languages. To ensure proper implemen- ordinances enacted in the United States tation, the directive requires that all (in Oakland and San Francisco). officers be trained on how to interact • Litigation. The Project has also with LEP residents. litigated a number of language cases in the areas of employment, education, and access to government and business services. 68 EVALUATING LANGUAGE ACCESS PROGRAMS

Research has shown that high-quality policy that will ensure meaningful com- translated forms (e.g., applications, translation and interpretation services, munication via interpreters, bilingual medical histories, education materials, coupled with improved understanding staff, language lines, community volun- consent forms for parents). of the immigrants’ cultural traditions and teer interpreters and translation of writ- • Use of bilingual staff and/or inter- practices, can help immigrant access ten materials. preters at all points of contact with the services that can improve their health, • Training of staff. The organization organization. self-sufficiency, and other qualities that has taken steps to ensure that its staff lead to better integration into the • Service providers’ knowledge about understands the policy and is trained receiving community. service recipients and consumers (e.g., accordingly to carry it out. ethnic background, language used, reli- Foundations can utilize the following • Vigilant monitoring. The organiza- gious practices). measures to assess the quality of tion conducts regular oversight of the • Advertisement of translation/inter- language access for LEP individuals, language assistance program to ensure pretation services in culturally appropri- including measures such as effective that LEP persons have meaningful ate venues (e.g., ethnic media, ethnic communication and the degree to which access to the program. services and systems are accessible to grocery stores, distribution of informa- immigrants:6 Foundations can also utilize the follow- tion at cultural festivals). ing indicators to assess the degree to • Assessment. The organization • Policies and procedures pertaining which services and systems are conducts a thorough assessment of the to language access (e.g., mandatory use accessible to immigrants and other language needs of the population to be of certified interpreters). LEP individuals: served. • LEP clients’ understanding of the • Presence of bilingual signs, • Development of comprehensive available services. telephone and service menus, images written policy on language access. that portray people and symbols from The organization has developed and different cultures in facilities, and implemented a comprehensive written

OUTCOMES

• Increased use of services IMMIGRANT INTEGRATION among immigrants, leading These outcomes LANGUAGE AND CULTURAL to improved health, self- encourage COMPETENCE IN PUBLIC sufficiency, etc. integration, and AGENCIES THAT PROVIDE as integration SERVICES CONTRIBUTE TO • Improved interaction between gradually occurs, public agencies and immigrants. (e.g., education, health, these outcomes will also become human services) • Higher quality services offered more widespread. by public agencies and systems.

6. Office for Civil Rights. 2000. Title VI of the Civil Rights Act of 1964; Policy guidance on the prohibi- tion against national origin discrimination as it affects persons with LEP. Federal Register: Department of Health and Human Services, 65(169). August 30.

69 70 Promising Practices in Language Acquisition

“ or…immigrants to be successful, they must learn to speak English, Fimprove their education and job skills, and understand the law and what is expected of them.” —Michael E. Alpert, Chairman Little Hoover Commission, Sacramento, California

INTRODUCTION 73

INTERGENERATIONAL FAMILY LITERACY PROGRAMS 75 Elements of Effective Programs Developing and Supporting Family Literacy Programs

VOCATIONAL ENGLISH AS A SECOND LANGUAGE PROGRAMS 78 Elements of Effective Programs English and Vocational Training for Farmworkers Language Training for High School Graduates Advanced English and Vocational Training for Health Care Careers

EFFECTIVE ADVOCACY TO INCREASE RESOURCES 81

EVALUATING LANGUAGE ACQUISITION PROGRAMS 82

71 72 INTRODUCTION or immigrants, learning the English From society’s standpoint, helping F language is an important pathway to immigrants learn English also has integration, opening the door to new many other benefits. It facilitates the worlds and opportunities and expanding integration of newcomers into the local their contributions to U.S. society. community, helps them become more economically productive, and allows Although most immigrants arrive in the them to participate more fully in and United States with limited English skills, contribute to society. they recognize the benefits of English proficiency and are highly motivated to Despite the large growth in the U.S. learn. Increased English proficiency in immigrant population and the benefits immigrant families is highly correlated of promoting English proficiency, federal with economic and social well-being. It and state funding for English as a Second can lead to increased income for wage Language (ESL) classes has not kept earners, greater school readiness for pace. In many localities, immigrants children, and improved intergenerational face long waiting periods for enrollment. communications within immigrant Massachusetts, for example, has more families.1 According to the 2000 Census, than 180,000 residents on waiting lists fluent English-speaking immigrants earn for ESL classes, with an average wait nearly double that of non-English of six months to two years.4 Similar speaking workers (see Figure 1) and shortages of ESL courses exist in a number have substantially lower unemployment of other communities.5 The lack of rates.2 While differences in educational funding for ESL also means that many background and immigration status classes are overcrowded and lack updated contribute to this income gap, develop- curriculum and equipment. ing English fluency by itself generally leads to increased household income.3

1. Martinez, Tia Elena and Ted Wang. 2005. Supporting English Language Acquisition: Opportunities for Foundations to Strengthen the Social and Economic Well-Being of Immigrant Families. Sebastopol, CA: Grantmakers Concerned with Immigrants and Refugees and the Annie E.

© Jupiter Images Casey Foundation. 2. Gonzalez, Libertad. 2004. Nonparametric Bounds on the Returns to Language Skills. IZA Discussion Paper No. 1098. 3. Mora, Maria. 2003. An Overview of the Economics of Language in the U.S. Labor Market: Presentation Notes. Denver, CO: American Economic Association Summer Minority Program. 4. Redell, Peter. 2005. “Study: ESL Funding Badly Needed.” MetroWest Daily News, June 20. 5. Gozdziak, Elzbieta and Susan F. Martin, eds. 2005. Beyond the Gateway: Immigrants in a Changing America. Lanham, MD: Lexington Books.

73 RECOMMENDATIONS TO FOUNDATIONS $20 $18 $17 Although foundations alone cannot fully address the growing demand for high- $16 $13 quality English programs, they can play $14 $14 several important roles in making such $12 $10 programs, particularly vocational ESL $10 $9 (VESL) and family literacy, more widely $11 $8 available to immigrants. Specifically, $8 foundations can: $6 $7 $4 Men • Serve as a catalyst in bringing $2 Women together different community institutions—government, community colleges, $0 job-training programs, and nonprofit organizations—to develop high-quality Does not Speaks Speaks Speaks English acquisition programs. speak English English English English not well well very well • Fund programs that integrate at all vocational or adult basic education within ESL or family-literacy classes. Figure 1: Hourly Wages of Immigration Workers by English Language Proficiency, 2000 • Leverage government funding for adult ESL and family-literacy programs by supporting supplemental wraparound services, such as job counseling, case management, and supportive social services.

• Support policy advocacy to make adult education and related services more responsive to the educational needs of limited English proficient (LEP) adults.

74 INTERGENERATIONAL ELEMENTS OF EFFECTIVE parents how to advocate effectively PROGRAMS within public schools for their children’s FAMILY LITERACY education needs. The non-economic benefits of English PROGRAMS • Activities for parents and children acquisition—potentially greater school to practice shared language learning. readiness for the children of immigrants, Effective programs usually bring the increased parental participation in adults and children together to participate children’s education, and improved in shared literacy and other educational parent-child relationships—are also activities, with the goal of increasing important to the well-being of immigrant such behavior at home. By watching families and their integration into U.S. instructors model ways to support communities. Intergenerational family children’s learning, parents learn how literacy programs can address multiple to interact with their children during needs of immigrant families by improving everyday routines that enhance the the language skills of both immigrant development of literacy, cognitive, and parents and their children while helping social skills. parents learn how to support their children’s educational development. Research of family literacy programs Successful family literacy program for suggests that high-quality programs are immigrant families usually have four key effective in increasing adult English program components: proficiency and academic learning relative to stand-alone ESL or adult • ESL and adult education as education programs.6 Similarly, these needed. Depending on the educational programs can also increase the cognitive needs of participants, family literacy and social development of children and programs for immigrants frequently help them be better prepared to learn provide both ESL and basic adult education in school.7 “The most impressive thing instruction. Successful programs generally about family literacy,” says Sharon use participatory or learner-centered Darling, President of the National Center curriculum that draw upon parents’ for Family Literacy, “is that it strengthens experiences. Just as in the VESL context, a family and builds a learning team. We having state-of-the-art adult ESL materials are not just changing one generation, and well-trained teachers is critical to but all that follow.” the overall success in helping adults learn English. Although there are multiple government sources that support family literacy • Early childhood education. While programs—e.g., Even Start, Head Start, the parents are learning English and and Title I funds—foundation support is other subjects, family literacy programs important to these programs’ success. also provide early childhood education As discussed above, funding for supple- to bolster the skills young children need mental activities can increase program to succeed in school. The primary focus effectiveness by tailoring services to the is on developing literacy and language needs of the target population. Even skills, while fostering cognitive, social, relatively small grants can help with and emotional development. professional development, publicity and • Teach parents how to support the outreach, and translation of documents.

© Jupiter Images educational growth of their children. Such grants can also help create an This component helps parents increase inviting environment for newcomers and language-related and educational activi- provide important wraparound services ties with their kids. The curriculum that address the full range of assistance usually includes topics such as parenting needed by low-income families. practices, nutrition, the importance of literacy learning for their children, information about the public school system, and community resources. Some programs also introduce parents to the 6. Hayes, Andrew. 2002. High-Quality Family Literacy Programs: Adult Outcomes and Impacts. Louisville, U.S. school system, provide strategies KY: National Center for Family Literacy. for increasing parental participation in 7. Hayes, Andrew. 2001. High-Quality Family Literacy Programs: Child Outcomes and Impacts. Louisville, their children’s education, and show KY: National Center for Family Literacy.

75 Educators have long urged that family literacy programs be extended to adolescents, government funding is limited to serving families with young children (usually up to age eight). As a leading literacy expert has observed, intergenerational programs with adolescents can also strengthen families by “encouraging the development of mutual languages between children and adults (including native languages for children), weaving oral history and culture stories into the fabric of educational work, and inviting children to learn from their community elders.”8 Without government funding to serve families with adolescent youths, foundation support in this area is especially important. © David Bacon

DEVELOPING AND SUPPORTING The Institute currently offers family Dorcas Place oversees classroom FAMILY LITERACY PROGRAMS literacy programs in approximately 30 instruction for 80 participating families sites across 10 cities.9 It combines in three elementary schools. The family National Center for Family Literacy NCFL’s extensive knowledge of program literacy program uses NCFL’s four- Louisville, Kentucky and curriculum development with local pronged model that provides (1) literacy www.famlit.org school districts and service-based and adult education to the parents, agencies that have developed compre- (2) age-appropriate educational instruc- The National Center for Family Literacy hensive programs to serve low-income tion for children, (3) instruction to parents (NCFL) has been an important leader in Latino families. The results are well-run on early childhood development, and the development of the family literacy programs that bring about literacy and (4) “parent and child together time” for model and helped create the four- academic gains for both parents parents to practice how to support their component model described above. NCFL and children. children’s development through various advocates for government policies to activities. While the organization has support literacy development, provides An example of this success can be experience operating family literacy training and technical assistance to seen in Providence, Rhode Island, one programs, its CEO, Dr. Brenda Dann- hundreds of local family literacy programs of the first cities in which the Institute Messier, observed that the NCFL collabo- each year, conducts research and evalua- worked. Providence was selected because rative has been especially effective for tion to identify effective family literacy of its fast-growing Latino population several reasons: programs, and offers professional (which tripled between 1980 to 2000), development opportunities for practi- a school district with a majority Latino • Integrated Curriculum. The tioners. While NCFL’s work targets many student population, and a Latino curriculum for the parents’ and children’s communities, it operates a number of population in which 30 percent of the classes is integrated so that both are programs to help LEP immigrant families adults have limited literacy skills. Like studying similar subjects, and parents gain English literacy skills and make all of the Toyota program sites, the can immediately begin to support their vital connections to their child’s Providence project is a collaboration children’s learning and development education and school. among NCFL, the local school district, during class and at home. and community organizations, with The Hispanic Family Learning Institute • Adult education curriculum. While Dorcas Place Adult and Family Learning (Institute) was established by NCFL some family literacy programs focus Center (www.dorcasplace.org) playing to expand and enhance family literacy primarily on children, NCFL’s curriculum the lead role. Although the Toyota services for the educational, social, and draws on years of work in adult education program provides each site with a economic advancement of Latino and and offers immigrant parents a strong three-year grant, both the school other immigrant families in need. It curriculum for learning English as a district and Dorcas Place are leveraging has received more than $6 million of second language. the grant with federal Title I funds as support from the Toyota Foundation well as support from local foundations. since 2003, as well as leveraged federal and local funding.

8. Weinstein-Shr, Gail. Undated. “Learners’ Lives as Curriculum” in Look at Even Start Newsletter. 9. These include Chicago, Washington, D.C., Los Angeles, New York, Providence, Chelsea, Denver, Detroit, Santa Paula, and Shelby County.

76 • Professional Development. NCFL Family Literacy Aprendiendo, provides training to all literacy staff Mejorando, Educando (FLAME) funded by the Toyota program and Chicago, Illinois brings them together regularly for www.uic.edu/educ/flame conferences and meetings to discuss Based in Chicago, FLAME (Family challenges and best practices. Literacy: Learning, Improving, Educating) • Case Management and Wraparound operates a two-year, family literacy Services. All of the participants have a program that (1) promotes the literacy case manager who is responsible for and civic skills of LEP parents and (2) ensuring that each family’s situation is improves the home literacy environments stable and its members are capable of of their young children. FLAME activities using the literacy classes as a first step are conducted in English or Spanish, towards achieving other economic or depending on the participant’s level of educational goals. Participants, for English proficiency, but they are supple- example, have full access to all of mented by participatory ESL courses. Dorcas Place’s vocational and educational The program has three basic modules: services.10 The case manager also refers © Harry Cutting Photography 1. Parents as Teachers consists of 14 families to other agencies for health bimonthly classes, attended by both Approximately two-thirds of the parents care and social services as the need parents and children, that teach parents complete the first year and return for arises. These services are supported by about book sharing, book selection, the second. The cost for providing the local grants and are critical to the libraries, the alphabet, songs and games, program is approximately $500 per program’s success. “Without wraparound math, home literacy centers, and family per year. services and case management,” says community literacy. Parents also learn Dr. Dann-Messier, “even the best family Although begun in Chicago, FLAME how to provide homework help, visit literacy programs would have difficulty has been successfully adopted by 29 their child’s classroom, interact with helping participants achieve their goals. organizations that serve 54 sites in teachers, and speak with administrators These families need intensive and California, Illinois, Nebraska, New to ensure their child’s needs are addressed. ongoing support.” Mexico, South Carolina, Texas, and 2. Parents as Learners consists of British Columbia (Canada). While • Partnership between the school biweekly ESL classes and activities Spanish-speaking families make up most district and the community. By holding aimed at improving literacy skills. For of the participants in FLAME’s programs, the family literacy classes at their example, parents may write stories or the model has also been used in children’s elementary school and having develop books for their children. Parents other immigrant and African-American a school parent liaison staff member can also attend basic skills or GED classes. communities. Materials produced by help support the participants, the FLAME staff in Spanish and English have program has also had the effect of 3. Parents as Leaders offers a three- been translated into Chinese, Korean, making parents more comfortable with day summer leadership institute to and Vietnamese by other organizations. their children’s schools. This, in turn, increase parents’ awareness of existing has led to increased parental participa- community services and to empower them tion in school activities and given to advocate for their children in school parents the confidence to interact with settings. The training curriculum teachers and administrators. includes how to recognize effective school programs, the importance of The total costs of the Providence parent-teacher relationships, and the program, including federal Title I role of advocacy, as well as an overview funding and in-kind support from the of bilingual education, immigration law, school district and Dorcas Place, is and parents’ rights. approximately $350,000 over three years, or an average of $1,450 per As families participate in the FLAME family annually. The initial data from program, their children demonstrate the first two years suggest that the significant gains in cognitive develop- program is both helping adults increase ment, pre-literacy and literacy skills, literacy skills and helping participating and vocabulary development in both children, as rated by their teachers, Spanish and English. Results further 10. Dorcas Place has a staff of over 40 employees indicated that parents became more who offer a wide range of literacy, workplace perform better in school than comparable training, college preparatory, and employment students.11 This initial success suggests comfortable teaching their children at services to low-income adults. home and also became more proficient 11. National Center for Family Literacy. 2005. that family literacy programs hold great Teacher Report on Student Performance, Year 2: The in English as shown by significant gains promise in providing the education and Results. Louisville, KY: National Center for Family in the Language Assessment Scales. Literacy. services that immigrant families need to thrive in their new communities. 77 VOCATIONAL ELEMENTS OF EFFECTIVE verbal proficiency without improvement PROGRAMS in basic literacy and math skills is unlikely ENGLISH AS A to lead to better jobs. As illustrated by SECOND LANGUAGE VESL courses provide instruction on the El Paso program described below, English vocabulary commonly used in literacy programs can be combined with PROGRAMS the workplace while helping newcomers adult education to help participants become better prepared to work in jobs learn other skills as they become that require English proficiency. The proficient in English. courses vary depending on the target • Provide job counseling and population, but most promising placement services. Research indicates programs share several characteristics: that even after immigrants develop English skills, they often continue to • Teach English vocabulary used in work in low-wage jobs in part because the workplace. All programs teach they do not know how to find and apply general workplace English, and a growing for mainstream employment.13 Many number of occupation-specific courses VESL programs have responded by also teach specialized vocabulary to providing participants with employment help immigrants become better prepared counseling and placement services for certain types of jobs. Examples of to help them find and retain better occupation-specific programs include paying jobs. those in the construction, nursing, food services, and child care sectors.

• Teach basic computer and soft ENGLISH AND VOCATIONAL skills. In addition to English instruc- TRAINING FOR FARMWORKERS tion, many programs teach participants Motivation, Education and Training, about job search and interview skills, Inc. and El Paso Community College customs and norms in the U.S. workplace, El Paso, Texas and how to communicate effectively www.metinc.org with co-workers. As computer skills become increasingly required even in This collaborative program provides entry-level positions, high-quality literacy and job training to former programs also try to help participants farmworkers interested in working in the become familiar with basic computer construction trades or retail businesses. software programs. The program targets Spanish-speaking individuals who have limited English • Provide basic adult education skills and little or no formal schooling. as needed to supplement English The eight-week, 40-hour-per-week instruction. An estimated 32 percent program provides participants with of adults enrolled in ESL programs lack Spanish-language GED and computer literacy skills in their native language.12 skills instruction followed by 20 weeks For these individuals, increased English of VESL and vocational training in either construction or retail sales. Basic-skills classes are taught bilingually, while vocational skills are taught primarily in English. Participants receive stipends while enrolled in training and have access to medical care, housing and other social services. Upon graduation, participants are placed with a local employer who provides continuing on- the-job training for an additional 12

12. Fitzgerald, N.B. 1995. ESL Instruction in Adult Education: Findings from a National Evaluation. ERIC Digest. Washington, DC: National Center for ESL Literacy Education. 13. Martinez and Wang, 2005. © Jupiter Images

78 ciation. Students also are required to ADVANCED ENGLISH AND take accompanying career readiness and VOCATIONAL TRAINING FOR computer education classes. As an affili- HEALTH CARE CAREERS ate of Oakland’s workforce development system, the Center operates a One Stop International Institute of Minnesota office that provides vocational counseling, St. Paul, Minnesota internship and job placement services to www.iimn.org complement its intensive English program. Even after immigrants learn enough The average class size is only 13 students, English to go about their daily lives, which allows participants to receive they often need additional language greater attention from instructors and training to be successful in the more opportunities to interact with workplace. Growing numbers of adult other class members. As of 2006, the educational providers are offering program had 109 students, with approxi- advanced, industry-specific VESL courses mately 44 percent Latino, 39 percent to address this need. An example is the Asian, and 17 percent European. © Jupiter Images Medical Careers Project, operated by the International Institute of Minnesota. weeks. Ninety-six percent of participants Yearly tuition for the program is The Project provides three language and complete the training, and eighty-four $8,480, but because most students are vocational training programs to help percent were still employed six months low-income, most of the funding comes newcomers secure entry-level positions after completing the program with wages from government workforce development and opportunities for career advance- ranging from $6.50 to $9.75. The funds or federal financial aid programs. ment in the state’s fast-growing health program is funded through a combina- In addition, CAP receives a grant from care field. tion of federal and private foundation the American Express Foundation to support its computer and financial grants, with the latter used to support • Nursing Assistant Training literacy training components. accompanying social services. The total Program. The Institute offers four cost of training, support services, Eighty-four percent of CAP’s 2005 programs to prepare newcomers to stipends, and job placement and graduates found jobs or continued their become either a nursing assistant or retention services is approximately education at a higher education institu- home health aide. Participants attend $11,000-13,000 per participant. This tion. Typical job placements include six hours of classes each day in programs model has been replicated in Louisiana, office administrative work, home-health that range from six to eleven weeks, North Dakota, and Minnesota. care and food services jobs, or program depending on a participant’s English assistant positions in schools, businesses, level and any previous work experience in the health care field. Students are LANGUAGE TRAINING FOR or local service agencies. Participation in CAP helps graduates achieve signifi- screened to ensure that they can speak, HIGH SCHOOL GRADUATES cant wage gains. The average hourly read, and write basic English prior to English Center for wage for 2005 graduates was $10.70 per beginning the program, so that the International Women hour, which was 35 percent higher than course can focus on intensive English Oakland, California what participants earned before they instruction on medical vocabulary, along www.eciw.org enrolled in CAP. with state-mandated instruction for nursing assistants, life skills, and The Career Advancement Program workplace cultural issues. (CAP), offered by the English Center for International Women in Oakland, California, integrates English acquisition, computer literacy, and career readiness into a program designed for newcomers, women and men, who have completed high school or have comparable skills. Participants receive approximately 20 hours of classroom instruction per week, typically for a 32-week period. The program offers six sessions each year, during which students can advance to a higher-level class. The program provides instruction in grammar, reading/writing, speaking/listening, vocabulary © Jupiter Images development, and idioms and pronun-

79 Participants also receive support services as well as job counseling and placement services throughout the program. The Institute works with the local refugee and immigrant communities, and more than 95 percent of the students in this program are from Africa—primarily Ethiopia, Somalia, Liberia and Nigeria.

Between 1990 and 2005, the program enrolled 1,147 students, 91 percent of whom graduated. Ninety-eight percent of these graduates were certified as nursing assistants or home health aides. The average wage of 2005 program graduates was approximately $10.75 per hour, representing a 22 percent increase over their earnings before they enrolled in the training. Graduates are encour- © Jupiter Images aged to pursue further study through the Institute’s other medical career Between 2002 and 2005, 84 out of programs once they have been employed 141 students enrolled in the program for over six months. successfully upgraded their jobs, with • Academic Skills for Medical approximately 60 becoming either a Career. This 10-week ESL preparatory Registered or Licensed Practical Nurse. program is designed to help immigrants The Institute’s Medical Careers Project is in nursing assistant or other entry-level primarily supported by grants from the positions develop their reading, writing, local United Way, refugee resettlement grammar, listening, and computer skills programs, and a number of local so that they can enroll in technical foundations, including The McKnight college programs and advance to more Foundation, The Phillips Foundation, skilled positions, such as becoming a F.R. Bigelow Foundation, Otto Bremer technician or nurse. Students spend four Foundation, and The St. Paul hours per day in this intensive ESL Foundation. “Foundation grants have course to improve their English and been essential,” says Michael Donahue, studying skills. This course is offered at Director of the Nursing Assistant four English levels to 140 students at Training Program. “They allowed us to any one time. offer not just VESL classes but to create • Medical Career Advancement a career ladder program that helps Program. This program helps immigrants immigrant and refugees enter the create a career path by helping them field, improve their English skills, and develop an educational plan, identify grow their careers through additional financial resources (including part-time education.” jobs), provide referrals to tutoring and academic support programs, and offer job counseling and placement services when they complete their education.

80 EFFECTIVE n addition to supporting English While both the federal and state Iacquisition programs, foundations can governments provide dislocated workers ADVOCACY TO also help immigrant organizations bring with special benefits and re-training INCREASE more resources to this area through programs, these programs were severely policy advocacy and reform. Observers underutilized by the laid-off garment RESOURCES have long noted that one reason why workers because few were aware of their ESL courses are consistently underfunded rights, and there were only a small is that the constituency benefiting from number of training programs suited for these programs—LEP immigrants—has their language and vocational needs. little political power, and their needs With support from the Levi Strauss are often invisible to or not relevant for Foundation, two immigrant advocacy policymakers. Immigrant advocates can groups—Chinese for Affirmative highlight the importance of providing Action/Center for Asian American high-quality English acquisition programs, Advocacy and Chinese Progressive pointing out that such programs help Association—teamed up with local labor integrate newcomers socially and unions and the community college to economically and that they will advocate that state and local govern- ultimately benefit society as a whole, for ment agencies develop a coordinated example, through increased earnings. program to serve garment workers who lost their jobs due to plant closures. LANGUAGE AND VOCATIONAL They advocated for: RESOURCES FOR LEP • Closer coordination between state IMMIGRANTS and local government agencies responsi- Collaboration to Support ble for administering dislocated workers Laid-Off Garment Workers programs to ensure that laid-off garment San Francisco, California workers are informed of and can participate in the full range of re-training and International and local economic forces income support programs. caused more than half of the 400+ garment factories in the Bay Area to • Reduced language barriers through close between 1998 and 2004, resulting translations of documents, bilingual in thousands of workers losing their staffing, and culturally competent jobs. The overwhelming majority of the administration of employment programs laid-off workers were LEP immigrant for this target population. women with limited vocational skills. • The development of ESL and re- training programs specifically designed to help make this population employ- able in other industries.

Using existing sources of public funding, the local and state government agencies responsible for serving dislocated workers agreed in 2005 to create a $1.15 million Garment Worker Re-Training Initiative to provide 100 LEP, dislocated garment workers with up to 18 months of unemployment insurance and income support, intensive VESL, options for © Garment Worker Center © Garment Worker

81 vocational skills training in five workers with the training expertise industries,14 re-employment services, of the local community college, this transportation, and child care funds. project could be a model for other City College of San Francisco provides localities facing similar challenges in VESL and vocational training, while serving displaced immigrant workers. Chinese for Affirmative Action, Chinese Its success in creating a program with Progressive Association, and the San existing workforce and adult education Francisco Labor Council offers case funds demonstrates that advocacy at management and job placement services the state and local levels is important to participants. In connecting to providing LEP immigrants with access community and labor organizations to high-quality VESL programs. already serving dislocated garment

EVALUATING LANGUAGE ACQUISITION PROGRAMS

As the figure below illustrates, high-quality English acquisition programs can lead to outcomes that facilitate the social, economic, and civic integration of LEP newcomers. Foundations seeking to evaluate such programs can develop a wide range of indicators to measure progress against these outcomes.

OUTCOMES

• Improved English proficiency among immigrants.

• Better job prospects and increased earnings for immigrants. IMMIGRANT INTEGRATION • Improved dynamics in immigrant families.

• Increased access to services These outcomes among immigrants. encourage HIGH-QUALITY ESL, integration, and VESL, AND FAMILY CONTRIBUTE TO • Improved interaction between as integration LITERACY PROGRAMS gradually occurs, immigrants and service providers. these outcomes will also become • More responsive systems and more widespread. services due to improved capacity among immigrants to express and advocate for their own needs.

• Increased interactions with receiving community members and institutions.

• Increased engagement in community life.

14. These industries include hospitality, health care, early childhood development, horticulture and gardening, and janitorial and housekeeping.

82 Promising Practices in Education

“ ducation has always been a pathway to social and economic E integration for every generation of immigrants and their U.S-born descendants. The United States must make a commitment to ensure that all students, including those from an immigrant background, have access to a high-quality education that will prepare them for success in today’s knowledge-based economy. Educating immigrants and their children is vital to our ability to remain strong and prosperous as a nation.” —Andrés Henríquez, Program Officer, Education Carnegie Corporation of New York, New York, New York

INTRODUCTION 85

EDUCATIONAL CHALLENGES 86

ELEMENTS OF PROMISING PRACTICES 88

PROMISING PRACTICES: EARLY CHILDHOOD EDUCATION 90 Creating a Welcoming Environment Working with Immigrant Parents Helping Immigrant Families and Their Child Care Providers Become Teachers Promoting Family Literacy

PROMISING PRACTICES: K-16 PUBLIC EDUCATION 93 Helping Schools Communicate with Immigrant Families Transforming Schools through Community Participation Improving Teacher Training Promoting the Success of English Language Learners Developing a Path to College for Latino Students Leveraging Community Colleges

EVALUATING EDUCATION EFFORTS 101

83 84 INTRODUCTION he demographic impact of immigration system helps them acquire English, Tis especially visible in the children academic knowledge, vocational skills, and youth population. Children of immi- and the history and values of their new grants make up nearly one out of five homeland. For many immigrants, educa- K-12 students in the United States.1 tion provides the raw materials to build Their growth has been rapid, going from a better life, work toward the American only six percent of the school-age pop- Dream, and become full members of ulation in 1970 to 19 percent by 2000. U.S. society. Given the size of this population, how our educational institutions receive, This section explores the challenges of treat, and teach children of immigrants serving newcomers’ educational needs, not only affects immigrant families but from pre-school through college, and will determine our country’s long-term identifies successful strategies and economic and social well-being. programs to address them. The primary focus will be on children of immigrants The U.S. education system, from who live in low-income households and preschool through college, plays an whose parents have relatively limited especially important role in integrating education. immigrants and their children. The © Tony Armour Photography, Inc. Armour Photography, © Tony

1. Capps, Randy, Michael Fix, Julie Murray, Jason Ost, Jeffrey Passel, and Sinta Herwantoro. 2005. The New Demography of America’s Schools: Immigration and No Child Left Behind Act. Washington, D.C.: Urban Institute. 85 EDUCATIONAL hile children of immigrants share United States: 77 percent of LEP Wthe general challenges faced by all elementary school students and 56 CHALLENGES children in obtaining a high-quality percent of LEP middle and high school education, there are several unique students are American-born. These high factors that affect newcomer families. percentages are due to the fact that many U.S.-born LEP students live in • Most live in “mixed status” “linguistically isolated households,” families with limited access to support a term defined by the U.S. Census services. Over three-quarters of children Bureau as families in which no person of immigrants are born in the United aged 14 or over speaks English at least States and have the same rights and very well. access to government services as other citizens. However, most (85 percent) • Children of immigrants are more live in families with at least one non- likely to live in low-income and less- citizen parent, and an estimated three educated households. Twenty-one percent of chil- Studies show that without intervention, children of immigrants are dren in immigrant families live in significantly less likely than other low-income children to be exposed poverty compared to reading and writing activities during the first five years of life.4 with 14 percent of those in U.S.-born million live in households headed by families.3 About a third of children of at least one undocumented adult.2 immigrants and half of LEP children live Immigrant parents often have limited with at least one parent who has less English skills, minimal knowledge of the than a high school education. This fact, U.S. education systems, and less access combined with limited literacy skills in to crucial services. The combination of both English and their first language these factors means that children of and limited parental involvement in immigrants often must overcome multi- education, can affect the development ple barriers to succeed in school. of children in immigrant families.

• Many have limited English skills. • Immigrant families have strengths About one-third of children in immigrant that can erode over time. Most immigrant families are limited English proficiency families arrive with multiple strengths: good health, intact families, strong (LEP). The largest LEP population is in work ethic, and high aspirations for the elementary schools. As children move future. But research suggests that many through the school system, the size of of these strengths dissipate the longer this population declines but does not the family stays in the United States. disappear altogether. Interestingly, For children of immigrants, the length most LEP students are born in the of residence is correlated with declining academic motivation and achievement.5 Effective programs, however, can reverse this trend and help children of immigrants stay on the positive path to success.

2. Passel, Jeffrey. 2005. Estimates of the Size and Characteristics of the Undocumented Population. Washington, D.C.: Pew Hispanic Center. 3. Hernandez, Donald. 2004. “Demographic Changes and Life Circumstances of Immigrant Families.” The Future of Children 14(3) 17-47. 4. Yarosz, Donald and William Steven Barnett. 2001. “Who Reads to Young Children? Identifying Predictors of Family Reading Activities.” Reading Psychology, 22:67-81. 5. Portes, Alejandro and Ruben G. Rumbaut. 2001. Legacies: The Story of the Immigrant Second Generation. Berkeley, CA: University of California

86 THE NO CHILD LEFT BEHIND ACT AND CHILDREN OF IMMIGRANTS

The No Child Left Behind Act of 2002 • Have highly qualified teachers in all same time, they expressed concern (NCLB) was passed with the goal to classrooms, including those providing that the Act’s accountability require- ensure that all children, including LEP English language instruction or bilingual ments are inflexible and do not pro- students, receive a high-quality edu- education. vide enough time for these students cation. With respect to disadvantaged to become proficient in English. The • Communicate with parents in their students, including immigrant and survey also found that fewer schools native language about their children’s LEP students, NCLB requires each were teaching LEP students in their academic performance and the school’s school to: native language because of the law’s performance as measured by the stan- emphasis on learning English.6 • Identify and report scores on dards of the Act. standardized tests separately for LEP, For more analysis of how the Act low-income, and minority students Implementation of this law has been affects children of immigrants, see (including Latinos and Asian highly controversial, and several states Capps, Randy et al. 2005. The New Americans). have sued the federal government, alleg- Demography of America’s Schools: ing inadequate funding as well as chal- • Help these identified populations Immigration and No Child Left Behind lenging its authority to impose certain make progress in learning English Act. Washington, D.C.: Urban requirements on local schools. The Act’s and other academic subjects. Institute. impact on children of immigrants is not • Offer students the right to trans- yet fully understood. Some experts see fer or receive additional educational the potential for NCLB to hold schools 6. Center for Education Policy. 2005. From the Capitol to the Classroom: Year 3 of the No Child services if the school does not meet accountable to immigrant and LEP chil- Left Behind Act. Washington, D.C.: Center for state test standards. dren, helping them improve academic Education Policy. performance. A recent survey of state • Close or restructure if the and district school officials confirmed school’s student population performs that educators believe the law has poorly on standardized tests over sev- brought increased attention to the chal- eral years. lenges faced by LEP students. Yet at the

87 ELEMENTS OF PROMISING PRACTICES © Tony Armour Photography, Inc. Armour Photography, © Tony

xperts on early childhood and to increase access, including hiring Eeducation have identified the multilingual staff, conducting outreach following elements as critical for help- to increase participation by immigrant ing children of immigrants succeed in families, holding events to celebrate school and beyond. immigrant cultures, developing programs that specifically Early intervention is critical: Studies have shown that children’s skills in address the inter- kindergarten can predict their educational achievement level in third grade, est and needs of and their achievement at the end of the third grade is highly correlated newcomers, and with future school success.7 forming partnership with immigrant parents or newcomer organiza- • Provide early intervention tions to help create a more inclusive through high-quality family literacy environment. or preschool programs. Well-designed early educational programs can help • Increase parental involvement children of immigrants, especially those in their children’s schools. Research with limited English skills and less consistently indicates that academic access to services, develop literacy, achievement of children will increase if problem-solving, and social skills, while parents or family members are involved showing parents how to become teach- in their education. Promising practices ers for their children. Two promising in this area include developing multilin- early educational approaches for this gual outreach information, hiring bilingual target population include high-quality staff, and forming partnerships with family literacy and preschool programs immigrant-serving organizations to pro- designed to serve newcomers. vide language assistance, parent liaison, and leadership training to immigrant • Make educational programs acces- parents. These approaches allow immi- sible to immigrant families. Successful grant parents to actively participate programs are linguistically and culturally in school programs and engage in competent, located at convenient sites, advocacy to help improve their and offer a welcoming environment. children’s education. These programs use a variety of methods

7. Tankanish, Ruby. 2004. “Leveling the Playing Field: Supporting Immigrant Children from Birth to Eight.” The Future of Children 14(3) 61-79.

88 • Provide training to teachers and administrators to help them become familiar with the background of immigrant families and to develop effective teaching methods. Schools in new immigrant destinations are especially short of personnel who are familiar with different cultural backgrounds and who have training and experience in teaching English learners.8 To address this gap, foundations can support documentation of promising teaching methodologies, innovative continuing education and professional development programs for teachers, and efforts to bring more bicultural and bilingual teachers and administrators into the field. © Jupiter Images • Provide age- and developmentally appropriate support programs that help children of immigrants succeed at all levels of education, from early childhood through higher education. Tutoring, mentoring, college preparation, counseling on college and career options, and other support programs can help children of immigrants achieve educational success. In many cases, these children may be the first in their family to graduate from high school or attend college.

• Help immigrant families and organizations advocate for better education. Improving academic achievement among low-income children of immigrants requires more than good programs. In many low-income school districts, the problems are much larger. Schools in such districts are often underfunded; their facilities are in poor conditions; they may lack up-to-date text books or computers; and the curriculum may not be sufficient to prepare students for college. Helping immigrant communities become active participants and leaders in developing and monitoring policy changes is often needed to make significant reforms, whether within a single school or across a school system.

8. Wainer, Andrew. 2004. The New Latino South and the Challenge to Public Education: Strategies for Educators and Policymakers in Emerging Immigrant Communities. Los Angeles, CA: Tomas Rivera Institute.

89 PROMISING CREATING A WELCOMING the staff. The Village also has an agree- ENVIRONMENT ment with the local school district to PRACTICES: provide interpretation and translation EARLY CHILDHOOD The Village for Early services in other languages as needed. Childhood Education EDUCATION Littleton, Colorado • Distributing non-English books http://village.littleton.publicschools.net to immigrant families so that parents can read to their children in their Started as a small preschool in an native language. While the Village uses abandoned building provided by the an English immersion curriculum, it rec- local school district, the Village for Early ognizes that children benefit from being Childhood Education is a community read to at home regardless of the lan- preschool open to the general public. It guage. Providing parents with native- serves 350 children from ten different language materials makes it easier for countries through a variety of programs, them to help children learn and develop including Head Start, state-funded pre- literacy skills. school, and special education. The program is center-based, with full-time and • Incorporating cultures and part-time class options, and its curricu- traditions of enrolled families into the lum is aligned with the local school classroom curriculum and into special district to help children prepare for events that promote cross-cultural kindergarten. learning and understanding among the enrolled families. The Village believes that families are the foundation for each child’s education • Offering a variety of bilingual and actively supports and encourages a courses (English/Spanish) for parents, partnership between home and school. including parenting classes to help As the number of English Language families reinforce their children’s class- Learners (ELLs) has grown to almost 20 room learning, as well as financial liter- percent of its school population, the acy classes to help newcomers learn Village has taken steps to make these financial management skills. families feel comfortable and respected. • Making available ESL and citizen- These steps include: ship classes to immigrant parents. • Hiring bilingual Spanish-speaking The Village originally offered ESL classes teachers and aides to communicate at its site, but as the demand for the with its largest LEP family population. classes grew, it approached the city to The Village has a Spanish-language find other locations for an expanded hotline that provides information about program. The City of Littleton now offers school activities and allows Spanish- multiple ESL and citizenship classes at speaking parents to leave messages for the city library and local churches, and many of the participants are families whose children attend the Village.

Despite working with a large low-income and immigrant student population, the Village has been effective in helping children become school ready. The public school district found that entering kindergarteners who had at least two years of schooling at the Village performed 35 percent higher on English literacy assessments than children who did not attend pre-school. © David Bacon

90 WORKING WITH SPARK Georgia and United Way worked IMMIGRANT PARENTS with the families to obtain a grant from the Primerica Citicorp Foundation to SPARK Georgia and La Escuelita provide an onsite early education program Atlanta, Georgia for three- and four-year-olds. Overseen www.sparkga.org by a parental advisory committee, the program (1) hired a professional, bilin- SPARK Georgia, a project of Smart Start gual teacher to provide six hours of Georgia and United Way of Metropolitan early education weekly to 32 children; Atlanta, uses a community-based (2) developed a bilingual curriculum to © La Escuelita approach to help immigrant families strengthen language, cognitive, and learn about early education opportuni- social skills; (3) helped families apply offers the opportunity to grow parents’ ties and develop skills for participating for and transition into either the state- leadership skills and help them develop in their children’s education over the funded preschool program or the local a voice in their community.” long run. Funded through a multi-state elementary school; and (4) maintained initiative of the W.K. Kellogg Foundation,9 active parental involvement through The results from the first year of the SPARK Georgia works with six community holding regularly scheduled community La Escuelita program suggest that it is agencies and in partnership with local meetings and encouraging parents to having this effect. Dion Jones, the elementary schools to provide early attend the school with their children. At principal of the nearby Rockbridge childhood assessment, information, and the same time, SPARK Georgia worked Elementary School, observes that the other assistance to 1,000 children and with local preschools and the public La Escuelita children were well prepared their families in predominately low- elementary school to organize teacher for kindergarten and, equally important, income neighborhoods. trainings and meetings between educa- their parents are participating in his tors and immigrant parents to help these school’s activities. Rockbridge held its The formation of La Escuelita (“The institutions become better prepared to annual International Day celebration in Little School”) in the City of Norcross— teach Spanish-speaking children. the fall of 2005, and Mr. Jones notes a small Atlanta suburb where approxi- that many of the parents who have mately 80 percent of the public school SPARK Georgia’s community approach in been active with SPARK Georgia helped children receive free or reduced lunches- Norcross has not only increased the organize the event and have transferred is a good example of SPARK Georgia’s number of immigrant children enrolled their energy from La Escuelita to their collaborative approach. Following home in the state’s preschool program, includ- new school. visits and community meetings in a ing a significant number from families mostly Spanish-speaking neighborhood, with undocumented members,10 but it residents of two nearby apartment com- has also helped parents learn how to plexes asked if the project could help actively support their children’s education. them start a program to prepare their As SPARK Georgia’s Project Coordinator children for formal education. Lacking Roberta Malavenda explains, “La Escuelita funds for child care and transportation, is not only intended to provide critical many of these residents had little choice early education to children, but it also but to leave their children in the care of relatives or neighbors while they worked.

9. SPARK (Supporting Partnerships to Assure Ready Kids) is a W.K. Kellogg-funded initiative to support multi-sector efforts to prepare children for school. SPARK projects involve partnerships among community-based organizations, state agencies, and schools to provide comprehensive support to youngsters and high-quality early learning experiences required for success in school. 10. Approximately 90 percent of the eligible children in 2005 La Escuelita program were enrolled in a state-funded preschool.

91 HELPING IMMIGRANT FAMILIES reach and to assure participants that • Increase in providers’ knowledge of AND THEIR CHILD CARE GBNE is not a licensing organization how to facilitate children’s social and PROVIDERS BECOME TEACHERS that will report conditions to authori- emotional development. ties. GBNE also uses a variety of incen- Good Beginnings Never End tives and gifts to attract and maintain Long Beach, California participation in its programs, including PROMOTING FAMILY LITERACY distributing children’s books, house- Research has documented the importance Although child care and preschool plants, and other useful items. Under of rich parent-child language interactions education are increasingly provided in the Knight Foundation grant, GBNE is during early childhood. A preschooler’s center-based facilities, a large number working with 35 family providers over a language experiences at home lay the of children in immigrant families do not three-year period. use such care.11 For many low-income or groundwork for developing more sophis- LEP immigrants, leaving their children • Trainings to become licensed ticated literacy skills during elementary with relatives, neighbors, or family- providers. As the trainer for the St. school. Family literacy is a strategy that based providers (defined as someone Mary Medical Center’s Families in Good can help both immigrant adults and who cares for two or more unrelated Health program, GBNE offers a child children learn English and literacy skills, children in her home) is often the most development course to help low-income while teaching parents how to support affordable and accessible form of day- refugee women become licensed child their children’s cognitive and social care. However, many of these providers care providers. The course provides par- development in their everyday lives. As have little or no early childhood train- ticipants with extensive information described in the English Acquisition ing and also face language and cultural about early childhood development and section of this toolkit, successful family barriers themselves. how to facilitate children’s cognitive, literacy programs for immigrant families emotional and social growth. In its first usually have four components: With support from the John S. and James year, the program trained 42 Cambodian • ESL and adult education for immi- L. Knight Foundation and First Five LA, refugee women, 11 of whom became grant parents, as needed. Long Beach City College has been oper- licensed providers, the largest group of ating the Good Beginnings Never End Southeast Asian women to become • Early childhood education to children (GBNE) project, which uses several licensed at one time in Long Beach. to bolster skills needed to succeed in strategies to help family-based providers, school. grandparents, and other informal care- • Linking providers to community takers in low-income, largely immigrant resources. A key element of GBNE’s • Training for parents to support the neighborhoods provide better child care. program is linking the clientele to com- educational growth of their children. These include home visits and coaching, munity resources, including programs trainings to become licensed child care operated by nonprofits, libraries, and • Giving parents and children the providers, and helping the providers public schools. For instance, all of the opportunity to practice shared language take advantage of community resources. participants in GBNE’s home visit pro- learning and activities with the goal of gram also participate in the Long Beach increasing such activities at home. • Home visits. A bilingual staff mem- Public Library Summer Reading and ber, or one accompanied by an inter- “Raising a Reader” book exchange pro- Research indicates that high-quality preter, visits and conducts assessments grams. In addition, GBNE provides par- family literacy programs can increase based on the Family Day Care Rating ticipants with information about the the cognitive and social development of Scale12 and then works with providers to availability of children’s health insur- children and help them become better improve their quality of care. Some of ance and offers classes on homeowner- prepared to learn in school.13 See the the frequently addressed issues include ship and small business development. “Promising Practices in Language improving home-safety conditions, pro- Acquisition” section of the toolkit for more viding school-readiness information, Three years into its home visit program, information about family literacy as well ensuring that children receive immu- GBNE has improved the quality of care as descriptions of successful programs. nizations, and increasing literacy and provided by its participating family education projects such as reading, art, providers, as demonstrated by: music, and field trips to libraries, A reduction in the amount of time • 11. Brandon, Peter. 2004. “The Child Care schools, parks, and museums. children spent watching television and Arrangements of Preschool-age Children in an increase in literacy activities. Immigrant Families in the United States.” Home visits require a high level of trust, International Migration Review 42(1):65-87. 12. The Family Day Care Rating Scale assesses the and GBNE has developed a number of • Increase in the number of children quality of child care provided by a family child-care practices for conducting successful home enrolled in Head Start and other early program. It assesses a provider in seven areas: childhood programs. space and furnishings for care and learning, basic visits with immigrant family daycare care, language and reasoning, learning activities, providers. These include partnering with social development, adult needs, and provisions for • Increase in immunizations and exceptional children. For more information, go to trusted community organizations and providers’ awareness of nutrition, dental www.fpg.unc.edu/~ecers. ethnic media outlets to conduct out- hygiene, and home safety issues. 13. Hayes, Andrew. 2001. High Quality Family Literacy Programs: Child Outcomes and Impacts. Louisville, KY: National Center for Family Literacy. 92 PROMISING HELPING SCHOOLS COMMUNICATE The School Liaison program has also WITH IMMIGRANT FAMILIES been instrumental in creating two new PRACTICES: K-16 programs to serve the district’s growing PUBLIC EDUCATION Refugee Family Services’ immigrant and refugee population: The Bilingual School Liaison Program Refugee Early Childhood Learning Clarkston, Georgia Initiative, through which refugee moth- www.refugeefamilyservices.org ers learn how to help their children become school-ready, and the Youth One of the most common barriers to Special Services Program serving at-risk increasing parental engagement among refugee youths. immigrants and refugees is the difficulty many parents have communicating with The program has expanded to two addi- educators in English. In addition, many tional school districts. Eight liaisons parents come from cultures in which currently serve newcomers in 60 schools parental involvement with schools is and Head Start/preschool programs in not the norm. Refugee Family Services the Atlanta metropolitan area, providing (RFS), a nonprofit organization that services in Spanish, Somali, Vietnamese, assists newcomer families in the Atlanta Amharic, Arabic, Bosnian, Farsi, Urdu, Watch the DVD area, has developed an innovative inter- Kurdish, Oromo, Pashto, and Russian. By Rain in a Dry Land: preter program that serves parents in serving as a bridge between schools and The Supermarket multiple languages by rotating trained immigrant families, the School Liaison The children of newly arrived program only improves the academic immigrants must learn the ropes of parent liaison/interpreters across differ- American life quickly. They often must ent schools. With funding from the achievement of immigrant children, but assume the roles of translator, advisor, Goizueta Foundation and the federal it demonstrates that language assistance advocate, and protector for their LEP par- Office of Refugee Resettlement, RFS can be provided in a cost-effective way ents. The learning curve can be difficult, started the Bilingual Liaison project in through creative collaborations that as witnessed when a newly arrived share resources across schools. The refugee teen and his father struggle 1999 through a partnership with the with a supermarket DeKalb County school system. Four Ruddie Memorial Youth Foundation has transaction. bilingual liaisons were initially assigned funded an evaluation of the program to to 15 DeKalb schools that had the high- assess whether it can be disseminated est concentration of English learners. as a model for other communities. Each liaison worked with LEP families to facilitate communication with teachers and administrators, as well as to iden- TRANSFORMING SCHOOLS tify difficulties or challenges faced by THROUGH COMMUNITY children of immigrants and refugees. PARTICIPATION By sharing resources across different schools, the Bilingual Liaison Program Logan Square Neighborhood has been able to provide assistance in Association numerous languages. During the first Chicago, Illinois five years of the program, RFS liaisons www.lsna.net assisted over 1,000 families. Serving a mix-income Chicago neighbor- Equally important, RFS liaisons have hood in which Latinos make up more identified and worked with schools to than two-thirds of the population, the address systemic issues affecting new- Logan Square Neighborhood Association comer children by participating in the (LSNA) has led an extraordinary organ- school district’s International Task izing effort to change local schools from Force, created to address gaps in educa- isolated institutions to community part- tional services for foreign-born students. ners for learning and empowerment. Their involvement has led to the creation LSNA first became involved with the of education/parenting workgroups as local education system during the early part of a year-long strategic planning 1990s when its members organized a effort to prepare multiple service sectors campaign for new schools to relieve for the incoming Somali Bantu refugee overcrowding. Their efforts resulted in population. In addition, the liaisons the construction of five elementary participated in the district’s Diversity school annexes and two middle schools, Roundtable, designed to give voice to as well as strong relationships with the multiethnic community served by local educators. Recognizing that the county. © Harry Cutting Photography 93 adding new schools was only the first At the same time, their presence centers provide free child care, parents step to improving education in a neigh- allowed teachers and principals to learn can improve their skills while their chil- borhood where 90 percent of the public more about the needs of local families dren learn and play in a safe, enriching school students were from low-income and to develop relationships based on environment. The centers are also a families, LSNA developed collaborative mutual trust and respect with the grow- place where immigrant parents can programs with local schools to improve ing newcomer community. teach and experience their own culture. the quality of education. This program’s success has led the local Building upon the success of the Parent school district to open evening learning For over a decade, LSNA has operated Mentor program and recognizing that centers in schools throughout the city. a parent mentor program that brings schools are critical institutions for help- parents into the classroom—from pre- ing immigrants become self-sufficient, • Nueva Generacion (“Grow Your school through eighth grade—to provide LSNA has worked with educators to Own”) Bilingual Teacher Preparation tutoring. LSNA trains parents (the vast develop other projects, including: Program, in which parents who have majority of whom are immigrants), participated in the Parent Mentor pro- provides each with an annual $1,200 • Literacy Ambassador Program, in gram and want to become teachers can stipend, and places them into class- which teams of teachers and parents enroll in a six-year instructional program rooms to help teachers for two hours hold house meetings to increase com- provided by Chicago State University. At each day. Spanish-speaking parents are munity awareness and participation in the end of the program, participants placed in bilingual classes and are able schools. These meetings, held in the receive a four-year college degree and to participate in the same activities as homes of neighborhood families, high- become certified, bilingual teachers who other parents. LSNA coordinates the light school resources and discuss how can work in neighborhood schools. program and holds weekly workshops to families can help their children develop Approximately 60 percent of the initial allow participants to share experiences literacy and reading skills. The program class of 30 students is expected to and discuss challenges. pairs a teacher with a parent mentor to graduate in 2007. bridge any communication difficulties Observers note that the program has between newcomer families and LSNA’s programs have not only changed not only provided students with extra educators. the school’s dynamic with the local attention and resources, but it has community, but it has helped raise transformed the relationship between • Community Learning Centers, reading and math test scores in the six parents and schools. The program has in which six public schools become schools that have had the Parent Mentor attracted large numbers of immigrant evening community learning centers program for over five years. Test scores women who have had no previous con- offering a wide range of adult education have increased by over 35 percent, and tact with schools even when their chil- classes (ESL, family literacy, GED, com- the percentage of students who scored dren were enrolled. Immigrant parents, puter, and citizenship) and children’s in the lowest quartile on these achieve- who were intimidated by the education activities (tutoring, arts, culture, and ment tests have been cut in half. system or felt their status as Spanish sports). Most of the classes are free and Equally important, LSNA’s work has also speakers prevented participation in their are taught by outside agencies, commu- transformed many of the people who children’s education, found ways to help nity college instructors, school teachers, participated in its programs. Many of their schools through this program. parents, and volunteers. Because the LSNA’s education project staff—including managers of the Parent Mentor, Literacy Ambassador, and Community Learning Centers programs—are immigrant women who initially participated in the Parent Mentor program and have since become neighborhood leaders who regularly speak to policymakers, legislators, or reporters about educational issues. As LSNA’s lead education organizer Joanna Brown observes, “They can say with confidence that parental and community involvement matters—it has improved their schools and their neighborhood.” © Tony Armour Photography, Inc. Armour Photography, © Tony

94 IMPROVING TEACHER TRAINING

Center for Latino Achievement and Success in Education Athens, Georgia www.coe.uga.edu/clase

Responding to the rapid growth of the local Latino population, the University of Georgia’s Center for Latino Achievement and Success in Education (CLASE) has developed an innovative project that provides high-quality professional development and technical assistance to local school districts. Started with a grant by the Goizueta Foundation in 2002, CLASE trains over 100 educators each year in a week-long summer institute that pro- © Tony Armour Photography, Inc. Armour Photography, © Tony vides participants with information on best practices for teaching English lan- achievement. In addition to its summer guage learners, model curriculum and PROMOTING THE SUCCESS OF institute program, CLASE organizes con- strategies for instructing immigrant chil- ENGLISH LANGUAGE LEARNERS ferences on specific subject areas and dren in different academic subjects, cul- leads Georgia teachers and administrators The PROMISE Initiative tural background on Georgia’s emerging in summer trips abroad to learn about Southern California Latino communities, and effective ways language, education, and culture. www.promise-initiative.org to increase parental involvement. Surveys combined with follow-up More than one in every four students in CLASE selects multiple teams of partici- observations of individual projects California is an English language learner pants from school districts or individual illustrate that CLASE has had a signifi- (ELL), the largest population in the schools through a competitive process. cant impact in helping local educators country. And 65 percent of these stu- Applicants propose specific projects for develop new programs to serve the dents—over one million youngsters— improving Latino student educational state’s growing Latino population. Over are enrolled in six Southern California achievement and must demonstrate that 90 percent of its summer program par- counties: Los Angeles, Orange, Riverside, they have the capacity and resources to ticipants indicate that the CLASE training San Bernardino, San Diego, and Ventura. implement the project in the upcoming and technical assistance had a medium Of this number, less than seven percent school year. Following the summer insti- to large influence in improving class- presently have access to both targeted tute, CLASE provides technical assistance room instruction, attitudes, and pre- English language development and the to these teams throughout the academic paredness for working with Latino full demands of the core curriculum. Gaps year. Typical projects include developing students. As described more fully at its in achievement are evident at every grade trainings for teachers, increasing Latino web site, CLASE has also documented level and on every standardized test. parent engagement, and implementing the benefits of the projects undertaken new program ideas such as providing by its summer institute participants, To address these growing disparities, bilingual kindergarten instruction or including those that increase student the offices of education in the six modified science instruction for English Southern California counties have part- achievement.14 learners. By combining training with nered with California Tomorrow, a follow-up assistance, CLASE helps edu- statewide organization that has been cators put to use their newly acquired promoting cultural equity for 20 years, knowledge to improve Latino educational to create the PROMISE Initiative.

14. The analysis can be found at www.coe.uga.edu/clase/professional_development.htm.

95 Pursuing Regional Opportunities for • Challenging and Relevant Although it does not prescribe particu- Mentoring, Innovation, and Success for Curriculum that is cognitively complex lar curricular approaches, PROMISE pro- English Learners, known as PROMISE, and coherent enough to develop the vides planning tools to the school seeks “to marshal the expertise and mental flexibility, problem-solving skills, teams, as well as access to almost 30 resources of the six counties by devel- and capacity for divergent thinking that successful research-based programs that oping a powerful infrastructure for the future will demand. embody the core principles. conducting research and development, Notwithstanding these rich resources, building capacity, and providing high- • High-Quality Instructional the creation of PROMISE as a six-county quality sustained support to schools, Resources aligned with relevant stan- collaboration to promote the success of teachers, and providers.” dards yet enriched with graphics and accessible formats to foster active ELL students, in and of itself, is an PROMISE’s unique approach does not engagement. impressive accomplishment. The first attempt to implement a particular new phase of PROMISE is a three-year pilot curriculum or instructional program • Valid and Comprehensive study focusing on systemic school developed outside the schools. Rather, Assessment integrated into learning reform, involving teams of three schools it relies on “principles-based reform,” and teaching, designed to promote in each of the districts. The pilot will helping schools reach a deep under- reflective practice and data-driven test the implementation of the eight standing of current research and— planning. core principles, honing in on what through networked reflection, dialogue, works and what doesn’t. The findings • High-Quality Professional assessment, and planning—design their will shape the five-year field test that Preparation and Support intended to own programs for student success. The will involve up to 100 schools. foster learning communities among aspiration of PROMISE is transformative administrators, teachers, and staff. in nature: To create a learning environment in which bilingualism, biliteracy, • Powerful Family and Community and multiculturalism will actively Engagement to build leadership among engage the experiences, skills, cultures, parents, actively educating them and and languages of students in their drawing them into their children’s learn- English learning. ing, while helping teachers and administrators develop cross-cultural skills. Distilled from the best of current research on English learning and school change, • Advocacy-Oriented Administrative PROMISE is built upon eight interrelated and Leadership Systems to integrate Watch the DVD core principles: and coordinate structures and mechanisms Rain in a Dry Land: in support of the needs of ELL students Algebra Class • Enriched and Affirming Learning systemically throughout the school’s Public schools in America have different Environments that promote a sense of ways of integrating immigrant students programs. community, self-determination, trust, into the classroom. Sit in on a fast-paced respect, and democracy among students. high school algebra class as a caring teacher observes the capabilities of a recently arrived refugee boy and • Empowering Pedagogy, with key wonders how to grade and support structural components that promote him when they don’t share interaction among students, build stu- a language. dent and family voice, and provide opportunities for leadership.

96 DEVELOPING A PATH TO COLLEGE FOR LATINO STUDENTS

The ENLACE Initiative of the W.K. Kellogg Foundation Battle Creek, Michigan www.wkkf.org

In 1999, the W.K. Kellogg Foundation launched a national initiative to strengthen the educational pipeline for Latino youth and to increase the number of Latino high school and college graduates. Known as ENLACE or “Engaging Latino Communities for Education,” the initiative is designed to

be a comprehensive, community-based © Minneapolis Public Schools Adult Basic Education Program collaborative effort among colleges and universities, public schools, businesses, Los Compañeros Mentoring it had successfully helped students and community organizations. The Program New Mexico ENLACE remain in school and improve their initiative supports 13 partnerships in grades.16 Of the original cohort of 90 seven states that provide a wide range In Albuquerque, New Mexico, a primary students who had started in the program of activities to keep Latino students ENLACE project has been to develop a during sixth grade, only four had engaged in education from preschool all holistic, culturally relevant mentoring dropped out by the end of the ninth the way through college. Although many program to promote academic and per- grade. Depending on the school, between projects are service oriented (e.g., sonal success among middle and high 47 and 72 percent of the original par- 15 tutoring and mentoring), the collabora- school Latino students. Called the Los ticipants achieved a GPA that was at tion among educational institutions and Compañeros, the program is open to least equal to or higher than their community groups has facilitated changes all students but works primarily with entering GPA. The mentoring program in local and state educational policies. youths who are having difficulty with also reduced behavior referrals and school. Its goal is to improve their disciplinary actions and increased The Kellogg Foundation is expected to academic performance and help them students’ academic expectations. The contribute more than $35 million to plan for college. ENLACE staff attributes the program’s ENLACE by the end of 2007. While few success to several factors: foundations have the resources to Started in 2001, Los Compañeros program undertake such a large project, the lessons has trained Latino college and graduate • Cultural competence. The mentors learned and promising practices devel- students to provide one-on-one mentor- come from the same community as the oped by ENLACE projects at the local ing to middle- or high-school students. younger students and are bicultural and level can inform other philanthropic The mentor, who receives college work bilingual. They are aware of the challenges efforts and be replicated on a smaller study, meets with the younger student Latino students face and understand scale. This section includes several on a daily basis to help improve school how to communicate with students and examples of promising projects that performance, as well as to assist with their families. These shared similarities were developed by ENLACE partners. personal, emotional, and psychological make it easier for mentors to build the For more information, see reports and challenges. While mentors spend about trust needed to play an important role promising practices on the ENLACE half of their time tutoring students on in the lives of the youths. website at www.wkkf.org. homework and basic skills, they also work with the students on improving • Intensive mentoring. Each mentor interpersonal skills, intervene with must spend a minimum of 20 hours per teachers or school administrators as week in the program during the school needed, and engage parents in their year, with the majority of the time children’s education, including providing devoted to one-on-one interactions 15. Three separate ENLACE grants were provided in interpretation when meeting with with students. New Mexico: Albuquerque, Northern New Mexico, teachers or school administrators. A and Southern New Mexico. The shared goal of these programs is to empower the community, students, recent evaluation of the program found and educators in the state to work together to improve the public education system and increase student success. For more information, go to www.enlaceinnewmexico.com. 16. Carrillo-Cruz, Lynn. 2005. “ENLACE Los Compañeros Mentoring Program Evaluation Report.” Albuquerque, NM: ENLACE New Mexico.

97 pass, the Santa Ana Partnership recog- nizes that there needs to be financial resources to help these students access higher education.

For the Partnership, it is part of the larger problem of helping low-income immigrant students attend college even if they have very limited resources. As Sara Lundquist, Vice President of Santa Ana College and a coordinator of the local ENLACE project, stated, “We do not want youths to lose the opportunity to become professionals and become productive members of society… If they don’t go to college now, their lives could turn out dramatically different,

© Minneapolis Public Schools Adult Basic Education Program and our communities will have lost out • Working with the entire family. The Santa Ana Partnership on an educated, promising group of Mentors are trained to work both with Santa Ana ENLACE young immigrants.” the individual students, as well as Santa Ana, California To help raise resources for these address the conditions in their families college-qualified youths, the Santa Ana that inhibit learning and academic The Santa Ana Partnership—a collabora- Partnership has developed fundraising progress. Many of the mentors work tion of higher education institutions programs and actively encourages busi- closely with ENLACE Family Centers, and the local school district—originally nesses, foundations, and even small staffed by Latino parents and commu- came together in 1983 in response to donors to contribute to privately funded nity organizations, to provide families the rapidly changing demographics of scholarships and education funds that with the educational and social services the Santa Ana Unified School District. do not exclude individuals based on needed to help their children succeed. Recognizing that the school population immigration status. As Ms. Lundquist was growing and becoming increasingly explained, “These funds are not set • Collaboration. Los Compañeros Latino and LEP, the Partnership developed aside for any particular group, but they collaborates with educators at middle educational policies and programs to allow all college-eligible students to schools, high schools, and higher edu- address newcomer student needs. Over compete based on their academic cation institutions to address systemic the years, Santa Ana schools have achievements and financial need.” issues and propose policies that can changed their curriculum and graduation improve student learning (e.g., better requirements, expanded supplemental The Santa Ana Partnership has success- school communications with LEP par- educational activities, and developed fully worked with a growing number of ents and supplemental educational 16 innovative parental involvement programs. local foundations and philanthropists to instruction activities). By having repre- provide college scholarships to immi- sentatives of local educational programs Although the quality of education for grant youths. While their specific goals at the table, the ENLACE program helps immigrant children in the district has vary, all of these funds are designed to students, parents, community members, improved, finding ways to provide supplement federal and state financial and educators work together to address financial support for students who qual- aid programs by helping students who their shared interest in improving ify for college but do not have the otherwise cannot go to college. With student performance. resources remains an ongoing challenge. few limited exceptions, these scholar- This challenge is especially daunting for ships do not exclude students based on Because the mentoring program is undocumented students who make up a their immigration status. The local almost exclusively staffed by college significant segment of the Santa Ana funds include: work-study students, its other costs are school-age population. Most of these low as $128 per student annually or an students came to the United States years • Santa Ana 2000 Scholarship, average of $0.70 per student per school ago as children; they grew up in this which was established by the City of day, according to the Los Compañeros country, stayed in school, and worked Santa Ana, Santa Ana Unified School project director. hard to earn a high school degree. District, and Rancho Santiago Community College District’s Santa Ana College in If passed, the proposed bi-partisan legislation, known as the DREAM Act, will

improve access to higher education for 16. For more detailed description of the partner- undocumented students.17 As this legis- ship accomplishments, go to www.sac.edu/community/partnerships/enlace/index.htm. lation is debated and even if it were to 17. For more information about the DREAM Act, go to www.nilc.org/immlawpolicy/DREAM/index.htm.

98 THE DEVELOPMENT, RELIEF & EDUCATION FOR ALIEN MINORS (DREAM) ACT

At the national level, an estimated 65,000 students graduate from high school each year but are ineligible for financial aid because they are undocumented. The majority are young people who have lived in the U.S. most of their lives, having come to the United States with their parents when they were young. While they are ready to attend college, become professionals, and contribute to society, they face a number of barriers. They often do not have © Harry Cutting Photography the financial resources to attend college, 1994 as part of an ambitious, long-term As these fundraising efforts expand, the are unable to work because of their initiative to make higher education Santa Ana Partnership hopes to work undocumented status, and live in fear of accessible to all local high school grad- through the ENLACE project to develop being detected by immigration officials. uates via Santa Ana College. The city statewide models that leverage private A bipartisan supported bill, known as appropriated $900,000 in seed money sector resources to help bring higher the DREAM Act, would provide immi- to launch the program, which is comple- education within the reach of more gration relief to these students if they mented by individual contributions from immigrant students. attend college. The proposed law would employees at the city, school district, allow students brought to the United and college. Approximately 50 scholar- States more than five years ago when ships are awarded annually, providing LEVERAGING COMMUNITY they were 15-years old or younger, and each student with $1,000 over two years. COLLEGES can demonstrate good moral character, to apply for a conditional immigration • The Hispanic Education City College of San Francisco status that would provide six years of Endowment Fund, which is a regional San Francisco, California legal residency. During the six-year resource that provides scholarships for www.ccsf.cc.ca.us period, they must (1) graduate from a Latino students attending higher educa- two-year college, (2) complete at least tion institutions. Formed by a coalition Community colleges are particularly two years towards a four-year degree, of educational, community, faith-based, important educational institutions for or (3) serve in the U.S. military for at and business groups, and administered immigrant adults. They help integrate least two years. Students who meet by the Orange County Community newcomers by providing English-as-a- these requirements would be eligible to Foundation, it administers a portfolio of Second-Language (ESL) courses, apply for permanent-residency status. 28 sub-funds that makes approximately vocational training, basic adult education, A similar version of the bill, introduced 350 scholarship grants totaling over and access to other education opportu- in 2004, was sponsored by 48 U.S. $700,000 annually. nities. Research suggests that newcom- Senators and 152 U.S. representatives, ers are 20 percent more likely than but as of spring 2006, neither the • The Santa Ana Education Fund, U.S.-born college students to begin House nor the Senate has had a floor which holds monies raised by the local their higher education experience at a vote on this important bill. school district to assist academically community college.18 In many states, talented and motivated college students. immigrants are rapidly becoming a large Approximately $100,000 in direct schol- segment of the community college arship assistance is provided annually to student population. the district’s graduates.

• The Santa Ana College Foundation awards more than a quarter of a million dollars annually to incoming, continu-

18. Woodlief, Blaze, Catherine Thomas, and Graciela ing, and transferring Santa Ana College Oroaco. 2003. California’s Gold: Claiming the students who otherwise cannot afford to Promise of Diversity in Our Community Colleges. Oakland, CA: California Tomorrow. attend college.

99 Successful community colleges have in developing “bridge” programs that programs to address newcomer needs. responded to these demographic changes help immigrants progress toward their Students who are enrolled in credit ESL by developing new educational practices other educational or career goals while classes are eligible for individual tutoring, that help newcomers become self-suffi- learning English. Many of its vocational and the Center serves almost 12,000 cient and productive. These include: training courses, for example, require students annually. City College also only basic English skills, thereby allowing holds regular ESL workshops, provides • Providing targeted outreach, often newcomers to develop job skills while computer laboratories for students to in multiple languages, to inform new- enrolled in ESL. In addition, City College learn and practice English and voca- comers of ESL, vocational programs, and tional skills, and offers career counseling. other educational opportunities. offers a large number of courses that integrate academic content or vocational • Hiring bilingual staff in public training into ESL classes. These include • Working with the local community contact positions, support programs, ESL citizenship classes to help newcom- to address immigrants’ education and counseling. ers naturalize, intensive vocational ESL needs. A characteristic of City College that especially stands out is its willing- • Developing strong English acquisi- immersion courses to help low-income ness to collaborate with community tion programs and linking vocational newcomers find mainstream employment, organizations, government agencies, and training and educational programs so and occupational-specific vocational ESL that newcomers can develop other skills programs that help immigrant workers businesses to address the community’s as they are learning English. prepare for jobs in the fields of health education needs. As discussed in the care, child care, construction, hotels, “Promising Practices in English • Providing class schedules and curric- and the food industry. Recognizing that Acquisition” section of this toolkit, ula that respond to the realities of City College responded to large-scale working immigrants’ lives. many immigrants already have valuable vocational skills, City College also works closures of local garment factories in • Developing programs and procedures with community organizations and busi- 2005 by collaborating with immigrant that encourage immigrant students to nesses to help foreign-born health workers, organizations and unions to re-train pursue higher education opportunities doctors, and engineers improve their hundreds of displaced workers. Similarly, (e.g., moving from ESL courses to voca- English, obtain professional credentials, when a community health organization tional training, noncredit to credit and receive training so that they can fully asked City College to help train bilingual classes, certificate to full-time study, utilize their skills in the United States. workers, it initially created a course and two-year to four-year institutions). that taught students basic health terms • Building partnerships with businesses, • Providing courses that easily fit so that they could work alongside pro- government agencies, and immigrant into the lives of immigrant workers. fessional medical staff. However, as the organizations to address the educational Because many immigrant adults work demand for bilingual health workers needs of this fast-growing community. long hours or multiple jobs, finding time continued to increase in the Bay Area, to attend classes is often challenging. the College developed both a certificate City College of San Francisco has been a City College has made special efforts to program for community health workers national leader in providing innovative “fit” their courses into the lives of and a transfer program that allows bilin- education to newcomers. With approxi- immigrants by offering frequent evening gual students to earn up to a master’s mately 106,000 students, eight major and weekend classes and making them degree in public health. Many of these campuses and over 150 classroom sites available at satellite campuses or com- innovative programs require City College located in community centers, churches, munity centers in neighborhoods where to seek funding from foundations, public schools, and government offices, immigrants live or work. For instance, private donors, and other alternative City College makes extensive efforts to the college’s Chinatown campus holds sources. Private foundation grants have its educational programs be broadly the largest group of ESL classes on received by City College for immigrant available. About half of the students Sunday mornings because many students related program include The California pursuing associate degrees are immi- work six days a week and cannot attend Endowment and MetLife Foundation. grants. Forty percent of City College’s class at any other time. City College also new students take the ESL placement tries to make it easier for ESL students These programs have not only helped test, and ESL is its largest department, to further their education and pursue tens of thousands of newcomers improve with almost 25,000 students. To serve certificates or degrees as they learn new their English and find better employment, its large newcomer student population, skills by offering both noncredit and but they have opened the door to City College has taken a number of steps credit classes at most campuses. advance education. The number of the to address their educational goals: college’s ESL students who transfer to • Providing support to immigrant four-year colleges has increased 63 • Developing curricula that address students. City College’s Learning percent since 1999. the needs of immigrant adults. In Assistance Center provides academic addition to offering basic ESL classes, support to all students but has specific City College has been a national leader

100 EVALUATING EDUCATION EFFORTS

Education is crucial to immigrant inte- Further, a good education from early The following figure provides sample gration because it helps put the immi- childhood will better prepare children of outputs and outcomes that funders can grant on a path towards economic sta- immigrants for the next level of educa- utilize to evaluate the effectiveness of bility, which in turn allows the immi- tion and, eventually, post-secondary and education programs serving immigrant grant to have access to additional higher education. families. opportunities and resources.

OUTPUTS

• Parent involvement.

• Parent/student bonding with school. OUTCOMES • Family norms that value IMMIGRANT INTEGRATION education. For all immigrants, regardless of immigration status: • Community support. These outputs These outcomes encourage civic • An inclusive school encourage • Culturally competent participation, and environment. integration, and educators. as participation as integration increases, these • Increased school readiness. gradually occurs, • Academic support and outputs will also these outcomes appropriate curriculum become more • Improved academic will also become for LEP students. widespread. performance. more widespread.

• Provision of high-quality • Higher aspirations and hope. college and career counseling. • Increased access to higher education. • Access to scholarships and other opportunities and resources.

• Students’ participation in extracurricular activities.

101 EVALUATING EDUCATION EFFORTS

Indicators associated with school • Frequency of interaction between of scholarships and other opportunities readiness among young immigrant immigrant parents and their children’s and resources available to their children, children, improved academic achieve- teachers. follow-up with immigrant students who ment for immigrant children and youth sought post-secondary education and • Percentage of immigrant parent of all ages, and higher aspirations for track their academic progress, or work who belong to the Parent Teacher high school immigrant students include: with children and youth to document Association or any parent associations their hopes and aspirations. • Percentage of children with age- and actively attend meetings. appropriate developmental skills and • Events that celebrate academic positive behaviors (e.g., little to no dif- achievement (e.g., graduation ceremonies) ficulty following directions, recognition SOURCES: and role models among immigrant Consultative Session on Increasing English of basic shapes and the relationship students and graduates. Language Learning By Low-Income Immigrant between letters and sounds). Parents And Children, November 30-December 1, • Inclusion of the culture and history 2005. Sponsored by the Annie E. Casey • Improved standardized test scores Foundation. of different immigrant groups in the and grades. Rhode Island KIDS COUNT. 2005. Getting Ready: school curriculum. Findings from the National School Readiness • Increased graduation rates (high Indicators Initiative. Report sponsored by The • Percentage of teachers who share David and Lucile Packard Foundation, Kaufman school and college). the same cultural background or speak Foundation, and Ford Foundation. • Increased GED completion rate. the same language as their immigrant Martinez, T.E. and Ted Wang. 2005. Supporting English Language Acquisition: Opportunities for students. Foundations to Strengthen the Social and • Percentage of graduates going to Economic Well-Being of Immigrant Families. vocational training programs or higher • Receipt of scholarships and other Sebastopol, CA: Grantmakers Concerned with education institutions. opportunities and resources among Immigrants and Refugees and the Annie E. Casey Foundation. immigrant parents and students. Examples of indicators associated with an inclusive school environment include: There are many ways to collect the above data, depending on what • Percent of immigrant parent resources are available for the evalua- volunteers in school. tion. For example, an evaluator could track grades, conduct a survey of immigrant parents to gauge their knowledge

102 Promising Practices to Improve Immigrants’ Health and Well-Being

“ ealth is a cornerstone of immigrant integration as much as education Hand learning English. If a family has health insurance for their children, then those children are in school learning and not home sick. Their parents don’t have to miss work as often and can stabilize their family financially. Medical bills are the number-one cause for bankruptcy, so this is also about protecting the family against the financial difficulty that comes along with being uninsured.” —Laura Hogan, Program Director, Access to Health Services The California Endowment

INTRODUCTION 105

BARRIERS TO HEALTH AND WELL-BEING 106

STATE-FUNDED INSURANCE PROGRAMS 107 Securing State-Funded Services Restoring Health Insurance for Low-Income Immigrants Promoting Coverage for All Children OUTREACH AND EDUCATION PROGRAMS 113 Elements of Promising Practices Multimedia Health Outreach Campaign Increasing Enrollment in Public Health Insurance Programs Increasing Access to Reproductive Health Care Providing Accurate Health Information LANGUAGE ACCESS AND CULTURAL COMPETENCE 118 Elements of Promising Practices Health Interpretation Services in Rural Areas Effective Health Interpretation Systems Increasing Workforce Diversity Responding to Demographic Change, Driven by Community Need

EVALUATION 124

103 104 INTRODUCTION hen immigrants arrive in the United often face a variety of language, cultural, W States, they are generally healthier and immigration-related barriers that than native-born residents. However, over limit their access to quality care. time, their health conditions converge Maintaining good health is a critical element with those of the of immigrant integration. It is fundamental to general population. newcomers’ ability to find and keep jobs, learn Acculturation to English, and contribute to the vitality of their American lifestyles new communities. and dietary habits Foundations can support programs that may account for part of this change, but expand both eligibility and access, as well immigrants also face a number of barriers as reduce barriers to health care for new- to maintaining good health. As a group, comers, including: they are much less likely than citizens to have health insurance, resulting in less • Policy and advocacy projects to access to preventive services, fewer regu- expand health insurance coverage for lar check-ups, and ultimately poorer immigrants and their children. health outcomes.1 Even when newcomers are eligible for health insurance, they • Outreach and informational campaigns to educate immigrants about the U.S. health care system, their eligibility for health care services, and healthy behaviors.

• Efforts to deliver health services to immigrants in a linguistically and culturally competent manner.

By supporting these strategies, foundations will promote good health for immigrant families and enable newcomers to contribute to the overall well-being of the broader community. © Tony Armour Photography, Inc. Armour Photography, © Tony

1. Grantmakers In Health. 2005. For the Benefit of All: Ensuring Immigrant Health and Well-Being. Washington, D.C.: Grantmakers In Health. Available at www.gih.org.

105 BARRIERS TO HEALTH AND WELL-BEING

This section provides a brief overview preventive services.4 Although few studies • Providing sensitive information of the health care barriers faced by have examined the long-term effects of about family members that could lead many newcomers, as well as promising being uninsured among immigrant popu- to deportation or other negative immi- practices to overcome these challenges. lations, research on Latinos participating gration consequences. The verification in SCHIP and Medicaid consistently finds and reporting requirements in some LOWER RATES OF HEALTH INSURANCE that enrollment, even for short periods of states’ application processes raise Immigrant families are much less likely time, leads to better health outcomes.5 concerns that confidential informa- than citizens to have health insurance tion will be shared with immigration ACCESS BARRIERS TO HEALTH SERVICES for a number of reasons: enforcement officials. While providing health insurance is the • Less coverage from employers. • Language and cultural barriers. first step to improving immigrants’ health, While over 80 percent of immigrants Approximately half of all foreign-born the availability of insurance coverage, have families that include at least one adults in the United States speak by itself, does not automatically lead to 8 full-time worker, a disproportionate English with some limitations, and greater utilization of health services. number is employed by small firms or many come from cultures that have Newcomers also face access barriers related low-wage sectors which are less likely very different attitudes toward illnesses specifically to their status as immigrants to offer health benefits. and medicine. These differences can or their limited English proficiency. create barriers to applying for health • Ineligibility for federal health These include: coverage and communicating with insurance programs. The 1996 federal • Confusion about program eligibility health care providers.9 welfare and immigration laws bar most and how to use the U.S. health care legal immigrants from Medicaid and system. Health systems in immigrants' the State Children’s Health Insurance home countries often differ significantly Program (SCHIP) in their first five years from the U.S system. Different eligibility in the United States. (The few excep- requirements for various federal and state tions to this bar include refugees and 2. For details on health programs for which health programs add to the confusion, undocumented immigrants qualify, see National political asylees). After five years, most particularly in mixed-status families, in Immigration Law Center. 2004. Guide to remain ineligible due to “sponsor Immigrant Eligibility for Federal Programs. Los which some members may be eligible for deeming,” which adds the income of Angeles, CA: National Immigration Law Center. coverage and others may not, depending Available at www.nilc.org. the person who sponsored the immi- 3. Staudt, Kathleen and Randy Capps. 2004. on their immigration or citizenship status. grant to that of the immigrant in “Con la ayuda de Dios? El Pasoans at the Border.” In Philip Kretsedemas and Ana Aparicio, determining eligibility. • Fears about consequences for eds. Immigrants, Welfare Reform, and the Poverty immigration status. Many immigrants of Policy. Westport, CT: Praeger. • Very limited access to public 4. Fremstad, Shawn and Laura Cox. 2004. are reluctant to use any publicly funded health insurance for undocumented Covering New Americans: A Review of Federal health programs because they are afraid and State Policies Related to Immigrants’ immigrants. Although some states of adverse immigration consequences Eligibility and Access to Publicly Funded Health have begun to offer prenatal care and Insurance. Washington, D.C.: Henry J. Kaiser even though most of their concerns are Family Foundation. children’s coverage to this population, unfounded. Common fears include: 5. Shone, Laura, Andrew Dick, Jonathan Klein, federal and state laws generally bar Jack Zwanziger, and Peter Szilagyi. 2005. “Reduction in Racial and Ethnic Disparities After undocumented residents from • Being labeled a “public charge,” Enrollment in the State’s Children’s Health Medicaid and other programs except which can result in difficulties obtain- Insurance Program.” Pediatrics 115(6): 697-705; for emergency care.2 ing permanent residency (“green card”), Ku, Leighton. 2005. Medicaid: Improving Health, Saving Lives. Washington, D.C.: Center on re-entering the country, or sponsoring Budget and Policy Priorities. • Unfamiliarity with public health a relative. This concern deters many 6. Fremstad and Cox, 2004. insurance programs. This unfamiliarity 7. National Immigration Law Center. 2005. from seeking care, despite the fact that results in low rates of participation even Overview of Immigrant Eligibility for Federal receipt of non-cash benefits, such as Programs. Los Angeles, CA: National Immigration among those eligible, particularly the Law Center. Available at www.nilc.org. Medicaid and other publicly funded citizen or legal-resident children of 8. Capps, Randolph, Michael Fix, Jeffrey Passel, Jason Ost, and Dan Perez-Lopez. 2003. A Profile 3 health programs, are not a factor in immigrants. 6 of the Low-Wage Immigrant Workforce. public charge. Washington, D.C.: Urban Institute. For immigrants, this low rate of cover- 9. A more detailed overview of the impact of • Making an immigrant’s sponsor age means that they are less likely to these barriers, related language access legal financially liable for the immigrant’s use requirements, and strategies for overcoming have a usual source of care, have vis- of public health programs. No state has these barriers can be found in the “Promising ited a doctor during the previous year, Practices in Language Access” section. prioritized seeking reimbursement from or receive immunizations and other sponsors in these situations.7

106 STATE-FUNDED ecognizing that a growing uninsured Foundation-supported policy advocacy Rpopulation undermines public health, has been critical to the development INSURANCE stretches already scarce emergency room and preservation of these programs, PROGRAMS services, and increases health care costs especially in the states where the pro- for everyone, a number of states are grams have come under attack from using their own funds to offer health anti-immigrant forces or from state law- insurance to low-income immigrants makers facing a budgetary crisis.10 While who are ineligible for Medicaid or SCHIP. all of the traditional immigrant gateway As of 2004, 22 states and the District of states have enacted various state- Columbia were using state funds to pro- funded health programs for immigrants, vide health coverage to some or all of relatively few states in the South and these immigrants (See Figure 1). Almost Midwest have done so, creating oppor- all of these state programs provide tunities for foundations to support pol- coverage to immigrants with legal icy advocacy efforts in these new gate- status, including low-income immigrant way states. children and pregnant women, and about two-thirds cover seniors, people Supported by both foundation and gov- with disabilities, and the parents of ernment funding, universal health insur- immigrant children. Seven states use ance programs for children have greatly federal SCHIP funds to cover prenatal expanded over the past five years. As of care for all women, regardless of early 2006, New York, Washington, D.C., immigration status. Massachusetts, Rhode Island, Washington State, Illinois, and a growing number of counties in California offer programs that cover children without regard to © Jupiter Images citizenship or immigration status.

Figure 1: State-Funded Health Coverage for Immigrants Ineligible for Medicaid or SCHIP, May 2004

22 states provide state-funded coverage

28 states do not provide state-funded coverage

SOURCE: Fremstad, Shawn and Laura Cox. 2004. Covering New Americans: A Review of Federal and State Policies Related to Immigrants’ Eligibility and Access to Publicly Funded Health Insurance. Washington, D.C.: Henry J. Kaiser Family Foundation.

107 created new food and cash assistance programs for immigrants who lost eligibility for federal Food Stamps and Supplemental Security Income (SSI), as well as a state-only cash assistance program for legal immigrants who became ineligible for federal Temporary Assistance for Needy Families (TANF). CIWC also helped preserve prenatal care for low-income women regardless of immigration status.

CIWC’s success is especially striking in that it came shortly after the passage of the anti-immigrant state ballot measure Proposition 187,13 which proposed to restrict immigrants’ access to education and public benefit programs. However, rather than allowing Proposition 187 and federal welfare laws to paralyze immigrant communities, CIWC and other advocates used these harsh measures to build and mobilize support for newcomers. A key strategy was to increase the visibility and involvement of affected communities in policymaking. Several factors contributed to CIWC’s success:

• Rapid response and multi-year support by funders. Early recognition by funders of the developing crisis cre-

Tenants and Workers United, © Rick Reinhard and Workers Tenants ated by the 1996 laws made it possible for CIWC to launch a rapid, large-scale SECURING STATE-FUNDED response. And multi-year foundation Foundation made it possible for a core support gave CIWC the opportunity to SERVICES group of legal and community-based advocate for incremental expansions of organizations (Asian Pacific American California Immigrant Welfare replacement programs that, over time, Legal Center, Coalition for Humane Collaborative came to cover most immigrants who were Immigrant Rights of Los Angeles (CHIRLA), Los Angeles, California no longer eligible for federal programs. National Immigration Law Center, www.caimmigrant.org and Northern California Coalition for • Combining policy analysis with 11 The work of the California Immigrant Immigrant Rights) to form CIWC. In its community-based advocacy. CIWC has Welfare Collaborative (CIWC), a partner- first years, CIWC documented the harm- been effective because its members ship among four organizations, has ful effects of these federal restrictions have diverse and complementary skills, made California a model for providing and developed into a statewide network include broad-based immigrant rights health and social service programs for that successfully advocated for the con- low-income immigrants. The 1996 fed- tinued provision of public health care eral welfare and immigration laws and social services to immigrants. restricting newcomers’ access to public Over the course of several years, CIWC 11. The current organizational members of CIWC health and social service programs had a have changed slightly with Services Immigrant played a pivotal role in securing what Rights and Education Network (SIREN) joining in particularly harsh impact on California. the Urban Institute has described as the early 2000s after the Northern California While an estimated 40 percent of the Coalition for Immigrant Rights discontinued opera- one of the most “generous” and “com- tions. immigrants affected by the new restric- prehensive” state-funded safety nets for 12. Zimmerman, Wendy and Karen Tumlin. 1999. tions resided in the state, no single Patchwork Policies: State Assistance for Immigrants immigrants who lost eligibility for fed- under Welfare Reform. Washington, D.C.: Urban organization had the capacity to develop eral programs.12 With state funding, Institute. a statewide response. Funding from The 13. Proposition 187 was an initiative approved by California’s Medicaid and SCHIP pro- California voters in 1994 that, among other things, California Endowment, The California grams have remained available to all prohibited undocumented immigrants from attend- Wellness Foundation, the Ford Foundation, ing public schools and limited their access to pub- immigrants who would have been eligi- lic benefits programs. Proposition 187 never took and the David and Lucille Packard ble prior to 1996. In addition, the state effect; it was immediately enjoined by a federal court, which eventually ruled that the measure violated the U.S. Constitution. 108 that the public was generally supportive of providing children with health services, Children’s Alliance and other advocacy groups developed a multi-year campaign to restore the cuts through the following strategies:

• Developing a broad coalition of organizations and institutions that supported restoring health insurance for immigrants, including local governments, community-based organizations, clinics, hospitals, and private businesses.

• Working with health providers to identify individual stories that put a human face to the cuts. These stories © David Bacon included children who were no longer able to receive preventive care or could coalitions in Northern and Southern Ten years after its inception, CIWC not afford needed medical procedures. California, and have access to a wide continues to protect access and services range of institutions and communities for immigrants. With its extensive net- • Providing legislators and govern- that can mobilize public support. work and policy advocacy experience, ment officials with analysis of the CIWC emerged as the leading pro- cuts’ impact. Children’s Alliance began • Extensive outreach to affected immigrant voice in the state capital. publishing policy bulletins immediately populations. In its first three years, after the cuts took effect, showing high CIWC project staff traveled throughout numbers of children losing coverage. It the state and provided training on leg- also worked with researchers on a report islative changes to over 1,000 commu- RESTORING HEALTH INSURANCE (supported by the Henry J. Kaiser Family nity organizations, ranging from large FOR LOW-INCOME IMMIGRANTS Foundation) that provided detailed service providers to small, emerging analysis of the cuts’ harmful effects and immigrant groups. Staff also conducted Children’s Alliance true costs.15 The report showed that the workshops and presentations to more Seattle, Washington “cuts” actually resulted in substantial than 10,000 immigrants, where they both www.childrensalliance.org cost shifting to county public health educated community members and brought agencies and local clinics. them into the policymaking process. In 2002, the Washington State legislature responded to a budgetary crisis by • Developing public messages that • Empowering community groups cutting some of its health care programs, promoted coverage for immigrant and immigrant leaders to participate including eliminating three insurance children as part of an overall campaign in policymaking. This began in 1997 programs for low-income individuals to increase health care coverage for with an annual “Immigrant Day” that whose immigration status made them all children. Children’s Alliance found brought up to 1,000 people to the state ineligible for Medicaid. These cuts that its message resonated better with capital to share their concerns directly affected over 28,000 people, 90 percent policymakers and the public as part of with policymakers. “The large size of of them children. While individuals who an effort to help all children, including these initial events,” recalls Susan Drake, lost coverage were eligible for the state’s U.S. citizens, who were losing health then executive director of the National Basic Health program, less than half insurance because of recent budget cuts. Immigration Law Center, “made a deep enrolled because the program required impression on policymakers, as many monthly premiums and significant co- As a result of this campaign, the legis- were only beginning to recognize that pays, offered fewer medical services, and lature and the governor restored the 14 newcomers were a growing part of their provided few language access services. previously cut health insurance cover- constituencies.” age for all children, including programs Although the cuts initially caught health for immigrant children, regardless of These activities, combined with growing advocates by surprise, they quickly immigration status. Research and advo- representation of minority communities developed a campaign to restore cover- cacy played a key role in convincing in the state legislature, created oppor- age for tens of thousands of children. tunities to build long-lasting support for Recognizing that Washington State has increasing immigrants’ access to public traditionally been a leader in expanding 14. Gardner, Mark and Janet Varon. 2004. Moving health and economic security programs. public health insurance coverage and Immigrants from a Medicaid Look-Alike Program to Basic Health Insurance in Washington State: Early Observations. Washington, D.C.: Henry J. Kaiser Family Foundation. 15. Ibid.

109 policymakers to reverse these cuts. As It became clear to these leaders that Liz Arjun of Children’s Alliance observes, the County needed to create a more “They may have initially thought their efficient, better coordinated system to cuts would have minimal effect. But increase both coverage and enrollment when we showed them that tens of of qualified children. After more than a thousands of children were no longer year of planning, the Children’s Health receiving regular medical care and the Initiative (CHI) was launched in 2001. cost savings were minimal, they realized CHI has three components: (1) health that taking health insurance away from coverage for all children in Santa Clara immigrant children and children in gen- County whose family income was under eral was a bad decision.” 300 percent of the federal poverty level and who were not currently eligible for existing Medicaid or SCHIP coverage; (2) expanded and coordinated outreach to PROMOTING COVERAGE increase enrollment; and (3) significant FOR ALL CHILDREN streamlining of enrollment processes across multiple public programs. County and Statewide Approaches in California “What people inside the health system www.insureallkids.org saw was that a lot of children who were © Jupiter Images eligible for programs were not enrolling because the system was so tough to that the tobacco money would be “ n polling, we’ve discovered that navigate. They felt they had a responsi- coming in and quickly drew up a plan Ipeople understand that health bility to simplify the system and create to provide health coverage to children whose family income and immigration coverage for all children is both the an enrollment program that would really work,” says Laura Hogan, director of status left them uninsured. right thing to do and the smart thing Access to Health Services at The California to do.” Although Medicaid and SCHIP cover Endowment. In December 2005, The children under 250 percent of the fed- California Endowment awarded $7.5 —Laura Hogan, Program Director, eral poverty level, there was nothing for million in grants to local Children’s The California Endowment children in families who earned more Health Initiatives in counties through- than that threshold yet too little to out California as part of its ongoing afford private health insurance. Ineligible support of such efforts. In 2000, government and community for any publicly funded health coverage, leaders in California’s Santa Clara The initial idea in Santa Clara County undocumented children also fell through County came together to determine the originated at the grassroots. Two local the cracks. best way to allocate new monies that advocacy groups—Working Partnerships To implement the program, Working would be arriving from the Tobacco USA, a labor-based research group, Partnerships USA and PACT partnered Settlement Fund. After considering vari- and the faith-based People Acting in with the County Health Department, ous options, they identified a key prior- Communities Together (PACT)—knew the First Five Commission, the Social ity: to make fundamental changes in Services Agency, the Santa Clara Health the fragmented and confusing system Plan, and officials at both the county that prevented many eligible children and city levels. From the very begin- from enrolling in publicly funded health ning, the Children’s Health Initiative in insurance programs. Santa Clara has been a partnership The system was especially difficult for between the private and the public sec- immigrant families, the majority of tors. While the proportion varies from which have mixed immigration status. county to county, all counties with a Depending on the children’s citizenship Children’s Health Initiative are public- or immigration status, an immigrant private partnerships, supported by pub- family could have one child eligible for lic funds as well as foundation grants Medicaid, one child eligible for the and other private donations. State Child Health Insurance Program “In just about every county, it’s been a (SCHIP), and one child eligible for no cooperative and collaborative effort on the publicly funded health coverage at all. part of a lot of different sectors, and that’s what makes it so powerful,” notes Rebecca Stark, program coordinator at PICO California, which is working to promote

© Juan Miranda statewide health coverage for children. 110 and assisted in enrolling another 80,000 in the public’s mind when considering “ t’s a program for all kids, so in Medicaid and SCHIP. As of 2005, 90 the benefit of this policy change. The Iimmigration status doesn’t percent of all children in California were feeling is that they didn’t come here of become an issue.” insured, either through public or private their own choosing, they are in society insurance programs. In pioneering Santa now, and they are here to stay.” —Linda Baker, Program Officer Clara County, this statistic reached an David and Lucile Packard impressive 98 percent. In addition to addressing ethical Foundation and societal responsibility, having a Planning of similar initiatives in a number Children’s Health Initiative provides of other counties is underway. “The practical economic benefits. Under the CHI guidelines, all children most important thing for a county to do up to the 300 percent of the federal when starting an initiative is to build “Investing in insurance for children, poverty level are guaranteed health the right coalition of people, and it has especially undocumented children, pro- coverage, meaning that in 2006, a to be a broad coalition that includes vides them with greatly improved access household of four can earn up to business, teachers, health providers, and to care. And, the fact that CHI brings $60,000 and still qualify. CHI, unlike others,” advises Hogan. “You have to insurance to nearly all children pulls the state’s Medicaid and SCHIP pro- have champions who really want to into the system many children who have grams, also covers undocumented chil- achieve this goal and believe in what’s been eligible for insurance but were not dren. “It’s a program for all kids, so happening.” previously enrolled. This is smart fiscal immigration status doesn’t become an policy,” Baker says. She also notes that issue,” says Linda Baker, program officer Hogan further explains, “In polling, in 2001 and 2002, the evaluation of the at the David and Lucile Packard we’ve discovered that people understand Santa Clara initiative showed that the Foundation. that health coverage for all children is 28 percent increase in enrollment in the both the right thing to do and the state’s Medicaid and SCHIP programs has The Children’s Health Initiatives that smart thing to do. Issues related to brought nearly $25 million in federal many California counties have adopted immigration status do not weigh heavily and state dollars into the county, which also streamline a daunting application local officials appreciate and need. process. Under such programs, all income-eligible families, even those “ hen Santa Clara gave families Although the initiatives vary slightly that include children in mixed-status from county to county, they remain a simple message that they families, fill out a single application W largely similar for pragmatic and long- with the assurance that all of their could enroll in one place with one term fiscal reasons. But their compre- children will be enrolled in a health application, families did come in and hensive approach to coverage—and the care program. Moreover, children in one enroll.” high level of demand for coverage— family are able to see the same providers means that the initiatives cannot be regardless of the program in which they —Laura Hogan, Program Director sustained in the long term by local dol- are enrolled. The California Endowment lars alone. Funding, especially for small rural counties, is a major challenge. “When Santa Clara gave families a simple message that they could enroll in one place with one application, families did come in and enroll,” Hogan says.

This strategy eliminated the confusion and intimidation that prevented many families from applying in the first place, significantly increasing enrollment in all three public health insurance programs. In its first two years alone, Santa Clara’s Children’s Health Initiative increased enrollment in Medicaid and SCHIP in the county by 28 percent.

Santa Clara County’s success helped spur the creation of similar programs in 17 other counties, including, significantly, Los Angeles County which started an initiative in 2003 and already has enrolled 43,000 children. In all, these © Jupiter Images initiatives have provided coverage to more than 80,000 children in California

111 policy,” Baker says. She also notes that Supporters of universal health coverage in 2001 and 2002, the evaluation of the for children in California continue their Santa Clara initiative showed that the efforts to win public support for the 28 percent increase in enrollment in the ballot initiative and the bill under con- state’s Medicaid and SCHIP programs sideration in the General Assembly, has brought nearly $25 million in fed- while also advocating for state funding eral and state dollars into the county, for county-level initiatives. This multi- which local officials appreciate and need. strategy approach is particularly important because several counties have Although the initiatives vary slightly started to freeze their Children’s Health from county to county, they remain Initiative enrollment due to insufficient largely similar for pragmatic and long- funding. term fiscal reasons. But their comprehensive approach to coverage—and the n 2006, Illinois became the high level of demand for coverage— first state in the nation to means that the initiatives cannot be I sustained in the long term by local dol- provide universal health coverage lars alone. Funding, especially for small for all children through age 18, with rural counties, is a major challenge.

© Tony Armour Photography, Inc. Armour Photography, © Tony graduated premiums based on family income. The All Kids program, “Each county has used a different strategy for funding,” Baker explains. “They effective July 1, 2006, provides all use First Five, tobacco settlement coverage for preventive care, dental money, county general funds, private and vision services, hospital costs, donations, and foundation dollars, but and prescription medicine. at this point, the demand for services is so high that waiting lists are forming, With the number of uninsured and the and fundraising has become a chal- cost of health care skyrocketing, afford- lenge. It’s not easy.” able health coverage is vital to the well-being of low-income families. The hope, says Baker, is that eventually Hogan sums it up this way, “Health is Watch the DVD all the programs in each county can California Healthy Kids a cornerstone of immigrant integration become one statewide initiative. Most of us agree that all children, as much as education and learning regardless of their immigration status, English. If a family has health insurance deserve to be healthy. Be inspired by A coordinated advocacy effort is under- an energetic and wide cross-section of way to make this hope a reality. This for their children, then those children grassroots and grass-tops stakeholders effort is led by PICO California and the are in school learning and not home as they raise the long-term 100% Campaign, which is a coalition of sick. Their parents don’t have to miss implications—and the short-term three children’s advocacy organizations: work as often and can stabilize their urgency—of universal health family financially. Medical bills are the care for every child. Children Now, The Children’s Partnership, and Children’s Defense Fund. number-one cause for bankruptcy, so this is also about protecting the family Two strategies are simultaneously in against the financial difficulty that play: working through the budget and comes along with being uninsured.” legislative process in the California General Assembly and passing a statewide tobacco-tax ballot initiative. If either the legislation or the initiative were to pass, statewide universal health insurance for low-income children would become a reality. California would join six other states in the country that offer such coverage.

112 OUTREACH AND Helping immigrants become more famil- • Provider-based outreach. Trusted iar with the U.S. health care system and and accessible clinics and health center EDUCATION PROGRAMS the services for which they are eligible workers can be very effective in com- is an important first step toward self- municating information and encourag- sufficiency. ing enrollment in public health programs. In Los Angeles, for instance, 40 percent of all applications to the state ELEMENTS OF PROMISING SCHIP program come through health PRACTICES providers, more than twice the number from any other single source.18 Successful health outreach and communication campaigns that target newcomers • School-based strategies. require addressing the immigrant- Promising practices include programs specific barriers discussed above (e.g., that link enrollment of children in pub- language, culture, and perceived and lic health programs with the application real immigration consequences), help- process for subsidized school lunches. ing them understand how to access and receive medical services, and communi- Although these general strategies can cating the information through multiple be utilized with most immigrant popu- sources that are trusted by the targeted lations, differences in beliefs and back- community. General elements of an ground need to be taken into account. effective health outreach effort target- For instance, focus groups reveal that ing newcomers include: some ethnic groups are less likely to enroll in health programs because of • Culturally appropriate materials immigration concerns, while the pri- and messages. Simply translating mary barriers for others are language materials into other languages is not capacity or misunderstandings of eligi- enough; messages and materials need to bility requirements.19 Outreach needs to be developed specifically for the targeted take into account these differences and audience. Public health campaigns are should incorporate media outlets and increasingly using market research, community-based groups that are focus groups, and community discus- trusted by each targeted group. sions to identify appropriate messages and messengers. “ MULTIMEDIA HEALTH • Targeted campaigns that utilize OUTREACH CAMPAIGN ethnic or foreign-language print and electronic media. Many immigrant fam- North Carolina Division of Public ilies rely upon media sources in their Health and North Carolina Healthy native language for information and Start Foundation news. Research suggests that health Raleigh, North Carolina outreach efforts conducted through eth- www.ncpublichealth.com nic media can be less costly and more www.nchealthystart.org effective in reaching newcomers than mainstream media campaigns.16 In 2000, North Carolina officials launched an outreach campaign to pro- • Community-based strategies. mote awareness of the state’s publicly Effective strategies include distributing funded children’s health insurance pro- information at neighborhood fairs, mak- grams among Latino families. Rather ing presentations at community meet- than simply translating materials into ings or churches, and going door-to- door in immigrant enclaves. Combining a targeted media campaign with community-based outreach is an especially 16. USC Division of Community Health. 2006. Reaching Out and Reaching In: Understanding Efforts 17 © Jupiter Images promising approach. to identify and Enroll Uninsured Children into Health Insurance Programs. Los Angeles, CA: The California Endowment. 17. USC Division of Community Health. 2006. Reaching Out and Reaching In: Understanding Efforts to identify and Enroll Uninsured Children into Health Insurance Programs. Los Angeles, CA: The California Endowment. 18. Ibid. 19. Ibid. 113 toll-free, bilingual hotline that provides The popular “Ana Maria” now appears in information and referral on material and materials on other health topics, such child health. The campaign included as obtaining preventive health care for print materials, advertisements, and children, reducing the risk of Sudden radio programming featuring “Ana Maria,” Infant Death Syndrome, the dangers of a trustworthy Mexican woman and secondhand smoke, and the importance of her family. folic acid for women of childbearing age.

One highlight of the campaign is a col- To expand its efforts, the Foundation orful “fotonovela,” or picture book, fea- launched a Spanish website turing Ana Maria’s family. The book (www.nchealthystart.org/enespanol) in explains complicated information in a early 2006 with information on child format that is familiar to the intended health insurance, the state’s health care audience. Bilingual state and system, infant mortality reduction, Foundation staff held focus groups to women's health, pregnancy, and infant understand what information could help care. All materials can be easily down- “bridge” Latinos from their previous loaded or ordered from the site. health care systems to the one in the United States. This research was used to Although the program’s impact is still design and distribute the fotonovela being assessed, observers note that the Latino community’s contact with public Spanish, the state’s Division of Public and other bilingual materials to communities across the state through a net- health programs has increased signifi- Health entered a unique public-private cantly. More than 25 percent of the calls partnership with the North Carolina work of community service providers, clinics, businesses, and outreach work- to the state’s health resource hotline in Healthy Start Foundation to develop 2005 were made by Spanish-speaking appropriate messages and strategies tar- ers. Nearly 500,000 copies of Spanish outreach materials were distributed in individuals, and 77 percent of these geting Latinos through a broad media callers inquired about the state’s and community outreach campaign. 2005. The materials were reinforced through the placement of news stories child health insurance program. The success of this on-going campaign and advertisements in Spanish media. is due in large measure to the partners’ collective vision, cooperation, and willingness to build on each partner’s strengths and expertise. The project began by convening an advisory panel of Latino advocates, holding consumer focus groups, and hiring one of the state’s first Latino public relations firms. The result was a multi-faceted campaign to promote a state-run,

114 INCREASING ENROLLMENT IN PUBLIC HEALTH INSURANCE PROGRAMS

GEM: Get Enrollment Moving A project of Citrus Valley Health Partners Covina, California www.cvhp.org/gem

Another approach to increasing immigrants’ enrollment in public health programs is face-to-face outreach. Although this type of outreach can be labor intensive, it can help alleviate fears, build trust, and provide accurate © Jupiter Images information to families who otherwise east of Los Angeles. The promotoras for public health insurance programs. would be hard to reach. also work with GEM staff to provide According to Silvia Rodriguez, executive information and enrollment opportuni- director of GEM, “The promotoras play a Over the last five years, Citrus Valley ties at churches, schools, health clinics, critical role in outreaching and identifying Health Partner’s Get Enrollment Moving community centers, nonprofits, and people who are eligible. Our staff has a (GEM) project has successfully utilized businesses. GEM estimates that its out- complementary role in answering the this approach to enroll nearly 30,000 reach program makes contact with technical questions and helping identi- people into California’s Medicaid, SCHIP, approximately 18,000 families each year. fied individuals enroll in a health plan.” and public health programs for children and pregnant women. GEM estimates Several factors have contributed to the • Providing personal support and that approximately 85 percent of the success of GEM’s promotora program: professional development opportuni- enrollees are Latino, three-quarters have ties for promotoras. The promotora limited English skills, and nearly 35 per- • Recruiting volunteers from the program helps volunteers develop health cent live in a family headed by at least community. Volunteers share the cul- care knowledge and communication one undocumented adult. ture and language of community mem- skills, build self-esteem, gain work bers and face some of the same chal- experience, and access professional GEM started in 2001 in response to the lenges (e.g., limited English skills, training courses. In fact, several current growing number of immigrant families in poverty, and undocumented immigration GEM staff originally started as promo- the San Gabriel Valley that lacked health status). Volunteers can build trust with toras. Rodriguez notes that being sup- insurance. GEM recognized that residents and help them overcome fears portive of volunteers encourages long- a successful outreach program required of enrolling in public health programs. term participation and strengthens the not only educating immigrants about program. “These women are becoming • Making volunteers partners in their health insurance options but also empowered and are taking it as their program development. GEM looks to addressing deep-rooted fears and mis- mission to start addressing other issues the promotoras for leadership in devel- perceptions about the immigration con- in their community,” she says. “Their oping outreach strategies. The coordina- sequences of using public programs. activities will not only make a huge dif- tor of the promotora program describes ference in their own lives but ultimately, The result was the creation of a program her approach as “helping to lead the it will benefit their communities.” of volunteer health educators, “promo- program from beside.” The GEM staff toras de salud,” who go door-to-door in meets with the volunteers weekly to The GEM’s promotora program is being low-income neighborhoods to personally gather and incorporate feedback, ideas, evaluated by researchers at the USC urge eligible families to enroll in public and concerns. GEM also holds an annual Division of Community Health. GEM health programs. The volunteers, trained retreat with volunteer leaders to discuss receives funding from The California and supervised by GEM staff, visit fami- challenges facing the program, as well Endowment, Kaiser Permanente, First 5 lies, provide health care information, as to offer an opportunity for respite, LA, and L.A. County Department of and identify individuals who are eligible education, and camaraderie. Health Services. for coverage. At GEM’s central office, multilingual staff members provide • Providing volunteers with an application assistance. As of early 2006, appropriate level of training and GEM had over 300 volunteers in the pro- encouraging collaboration with health motora program covering 27 zip codes workers. GEM provides all volunteers training on the U.S. health care system and eligibility requirements

115 PROVIDING ACCURATE relationships with specific communities, HEALTH INFORMATION provide services and advocacy in neighborhood centers, and have the language Immigrant Health Access and and cultural expertise to communicate Advocacy Collaborative effectively. All eight community organi- A project of the New York zations receive training and technical Immigration Coalition assistance from the policy and legal New York, New York organizations, and each employs at www.thenyic.org least one part-time bicultural, bilingual health advocate. The Collaborative’s Addressing barriers to low-income activities include: immigrants’ access to health care in New York City is the mission of the • Conducting community education Immigrant Health Access and Advocacy and outreach to raise the awareness © Jupiter Images Collaborative. Begun in 2000, the and confidence of immigrants and Collaborative involves the New York refugees interacting with the health Immigration Coalition, New York Lawyers care system. Community workshops, • Developing the skills of immi- for the Public Interest, and eight com- public education materials, and outreach grant-serving organizations through munity organizations that serve new- through the ethnic media inform immi- ongoing capacity-building partner- comers. Together, these orgainizations grants of their rights to health care, ships. This project has developed the provide outreach, training, individual their eligibility for insurance and afford- capacity of relatively small immigrant- assistance, and systemic advocacy on able payment options, and any potential based organizations to provide accurate public health care.21 immigration consequences. and timely health information to community members. The community part- According to Project Director Adam • Providing direct assistance to ners, in turn, are able to implement Gurvitch, nearly two-thirds of uninsured immigrants and refugees who have broad public education in multiple lan- adults in New York City are immigrants, been unable to access or pay for guages and can mobilize their communi- and the rate of uninsured immigrant health care. With technical assistance ties to support public policy reforms. children is five times higher than the provided by the policy and legal organi- city average, even though all children zations, the community health advo- The Collaborative has an annual budget are eligible for the state’s SCHIP pro- cates help address problems involving of approximately $250,000, with fund- gram. These disparities are due in large lack of access to services, health covering from Elebash Fund, United Hospital part to conflicting messages about age, hospital payments, or discrimina- Fund, Alman Foundation, New York immigrants’ rights to public health care tion. The initial four community groups Community Trust, Long Island Community and the risks of using such services. in the Collaborative assisted over 1,100 Foundation, and Westchester Community Since September 11, 2001, newcomers clients annually. The numbers have Foundation. “All of the organizations in have only become more fearful of the increased with the addition of four new the Collaborative are responding to their immigration consequences of using pub- community groups in 2005. communities’ need for accurate health lic health resources. As The New York information and advocacy, and they • Using knowledge gained from Times observed, “More and more immi- devote considerably more resources to interaction with individual immigrants are delaying care or retreating health care work than what they receive grants to develop recommendations into a parallel universe of bootleg reme- through these grants,” Gurvitch points for policy reform. With the information dies and unlicensed practitioners.”22 out. “But what the grants have done is provided by the community partners, allow them to go deeper on these issues, The Collaborative has been successful the Collaborative has been able to pro- work together, learn from each other, and in addressing these misunderstandings vide feedback to hospitals and other develop a coalition that has addressed because the partners are trusted com- public agencies on improving their serv- shared challenges far beyond what any munity groups that have longstanding ices (as well as file civil rights complaints single group could do by itself.” when agencies have been unresponsive). The Collaborative is also bringing immigrant voices to health policy debates at the state and national levels.

21. The eight community organizations are Haitian Americans United for Progress, Korean Community Services of Metropolitan New York, Latin American Integration Center, Shorefront YW-YMHA of Manhattan-Brighton Beach, Council of Peoples Organization, Filipino American Human Services,

© Jupiter Images Make the Road by Walking, and Reconciliation and Culture Cooperative. 22. Bernstein, Nina. 2006. “Recourse Grows Slim for Immigrants Who Fall Ill,” The New York Times, March 3. 116 INCREASING ACCESS TO La Promesa promotoras typically connect that primarily serve Latinos, Haitians, REPRODUCTIVE HEALTH CARE with their Spanish-speaking clients at and African-Americans to recruit parents outreach events, including health fairs, from those communities to participate La Promesa and Adult Role Models after-school programs, and presentations in the program and organize trainings in Planned Parenthood at faith-based organizations. They also English, Spanish, and Creole. ARM also Southeastern Florida go door-to-door to homes, markets, and provides 75 hours of training to parent www.plannedparenthood.org businesses in Latino communities. volunteers on information about sexual- ity. Topics include contraception, Responding to the fast-growing Latino To encourage Latina women to seek puberty, sexual orientation, prenatal and immigrant communities in south- health services, La Promesa offers free care, HIV/AIDS, and more. eastern Florida, Planned Parenthood of Pap smears and linguistically and cultur- Greater Miami, Palm Beach, and Treasure ally appropriate services. “We started “The curriculum is designed to provide Coast Area (Planned Parenthood)23 this knowing that Latina women proba- the Adult Role Models with current, established two programs, La Promesa bly are one of the worst groups at seek- accurate information on these topics. and Adult Role Models, to increase these ing care for themselves. We wanted to There is a pre- and post-test completed communities’ awareness and access to do outreach to promote the health cen- at each session to let us know if they reproductive health. ter, let them know that this was afford- have increased their knowledge… able. The program just took off and Additionally, at the end of the training La Promesa’s goal is to “break down bar- became a lot larger than anyone had sessions, the [role models] have to riers to reproductive health care for the anticipated,” Kulp says. design and present a workshop to the Hispanic population,” says Maria Kulp, group that is taped to be able to give vice president of education of the local When women call to make an appoint- them feedback,” Kulp explains. Planned Parenthood. The program uses ment at a Planned Parenthood health bilingual community health workers, center, they are asked for their language After their training, these parents return known as “promotoras de salud,” to preference. If their response is Spanish, to their communities and train other conduct outreach and communicate with a La Promesa staff person will usually parents on how they can talk to their Spanish-speaking individuals, primarily greet the person on arrival to the office, children about sex. These sessions can women, served by its health centers. help with the completion of forms, and be either formal or informal in nature, Reflecting the area’s ethnic diversity, follow-up with the individual after the depending on the experience of the par- the promotoras include women from the medical appointment as needed. Kulp ents who have finished their ARMs Caribbean, Mexico, and Central America. estimates that about 3,000 women are training. While some, particularly those served through La Promesa each year, who were professionals in their native In addition to increasing the access of and the program has increased requests countries, teach at churches and com- Latina immigrants to Planned Parenthood for contraception at Planned Parenthood munity groups, others prefer to teach services, La Promesa works to heighten offices in southeastern Florida by in their homes. In 2005, the project their awareness of reproductive and 129 percent. trained over 70 parents, who in turn family health issues, promote early have reached another 5,000 parents. detection of and reduce the mortality Planned Parenthood also operates Adult rate for breast and cervical cancer, and Role Models (ARM), a unique trilingual Although the ARM program, which has a assist families in communicating effec- program that utilizes parent volunteers staff of three, is funded solely by the tively about sexual and reproductive to educate youth and the broader com- Children Services Council of Palm Beach health. munity about sexual health and teen County, La Promesa has received founda- pregnancy. It works with three agencies tion support, including grants from the Quantum Foundation and the Picower Foundation. The success of these programs has led funders to urge that Planned Parenthood expand them to nearby counties. Planned Parenthood chapters in St. Lucy County and Martin County have both adopted La Promesa programs. St. Lucy County also has an ARM program, and Martin County is considering launching one as well.

23. Planned Parenthood of Greater Miami, Palm Beach, and Treasure Coast Area operates eight health centers in six counties. In 2005, the eight © Jupiter Images centers served more than 30,000 individuals, approximately 17 percent of whom were Latino.

117 LANGUAGE ACCESS roviding newcomers with access to While new immigrants frequently experi- Phigh-quality health care requires ence communication problems in their AND CULTURAL that service providers and insurance daily lives, language and cultural barri- COMPETENCE programs be able to communicate with ers can be much more harmful when them effectively. Because nearly half of immigrants are seeking medical services. all immigrant adults speak English with Miscommunications between medical some limitations24 and 40 percent have personnel and patients can have costly resided in the United States for less and tragic consequences for both indi- than 10 years,25 reducing language and vidual immigrants and the broader com- cultural barriers is critical to increasing munity. A report by Grantmakers in Health access to good health care. identifies some of the harmful effects of language barriers in health care:27 The “Improving Language Access in Government Services” section of this • Reduced access to health insurance, toolkit provides a general overview of preventive care, and specialty services. the language barriers faced by new immigrants, describes the legal obliga- • Compromised patient understanding tions of federal contractors and grantees of diagnosis and treatment plans. (including public health agencies and • Lower patient satisfaction. medical service providers) to provide linguistically accessible services, and • Lower quality of care, which can highlights promising practices. The lead to serious complications and general elements of a successful lan- adverse clinical outcomes. guage access policy for assessment, plan development, bilingual staffing, transla- • Higher costs to the health care sys- tion of written materials, training of tem through unnecessary testing as well staff, evaluation, and outreach apply in medical complications resulting from the the health care setting as well. Health lack of treatment or misdiagnoses. care organizations that receive federal funds are required to make reasonable Conversely, there are a number of stud- efforts to offer free language assistance ies showing the positive health effects © Jupiter Images services to limited English proficient of providing LEP patients with language (LEP) individuals.26 services. A review of these studies found that: In addition to language, culture plays an important role in determining the …[P]atients with limited English quality of an individual’s interaction proficiency who are provided with... with the health care system. Recent interpreters make more outpatient visits, immigrants often bring traditions and receive and fill more prescriptions, do practices unfamiliar to U.S. health care not differ from English proficient professionals, and they often have lim- patients in test costs or receipt of ited experience with Western medicine. intravenous hydration, have outcomes among those with diabetes that are

TITLE VI OF THE 1964 CIVIL RIGHTS ACT 24. Capps, Fix, Passel, et al., 2003. 25. Moran and Petsod. 2004. Newcomers in the American Workplace: Improving Employment This federal law requires states, counties, improving language access to their Outcomes for Low-Wage Immigrants and Refugees. and private health providers receiving programs, as well as issuing specific Sebastopol, CA: Grantmakers Concerned with Immigrants and Refugees and Neighborhood federal funds to make reasonable guidance on how recipients of federal Funders Group. efforts to provide language assistance funding should implement Title VI’s 26. For a detailed analysis of relevant federal laws to limited English proficient individuals. requiring language access, see: Perkins, Jane, Mara language access requirements. This Youdelman, and Doreena Wong. 2003. Ensuring This longstanding requirement gained order has been affirmed by the Bush Linguistic Access in Health Care Settings: Legal significant public attention after administration, which has set up a web- Rights and Responsibilities, 2nd Edition. Los Angeles, CA: National Health Law Program. President Clinton issued Executive site to provide guidance, best practices, 27. Grantmakers In Health. 2003. In the Right Order 13166 in 1999, requiring federal and resources at www.lep.org. Words: Addressing Language and Culture in Providing Health Care. Washington, D.C.: Grantmakers In agencies to develop procedures for Health. 28. Ku, Leighton and Glenn Flores. 2005. “Pay Now Or Pay Later: Providing Interpreter Services In Health Care.” Health Affairs 24: 435-444.

118 superior or equivalent to those of • Assessing community needs and English-proficient patients, and have developing administrative infrastruc- high satisfaction with care. LEP ture for providing language services. patients with bilingual providers ask Each agency begins with an assessment more questions, have better overall of the language needs of its service information recall, and are more com- population and its capacity to serve fortable discussing sensitive or embar- these individuals. This is followed by rassing issues; those with hypertension the development of a plan for communi- or diabetes have less pain and better cating both verbal and written informa- physical functioning, psychological tion. Providing funding for these initial well-being, and health perceptions and steps can encourage health care institu- have high patient satisfaction…28 tions to make the changes needed to serve LEP individuals.

ELEMENTS OF PROMISING • Increasing the number of PRACTICES bilingual/bicultural medical staff members. Research suggests that the The health care sector has been a leader best way to provide medical services to in developing promising practices to newcomers is through bilingual medical

reduce language and cultural barriers. providers who are familiar with the © Jupiter Images There is federal funding available to culture of their patients. Foundation- patient populations. Ideally, translated support language assistance in health supported projects in this area include written materials should reflect the cul- programs serving low-income families. (1) language and cultural training to tural nuances of the target population In addition, several foundations have existing medical staff; (2) resources to and be at the appropriate educational funded projects that provide advocacy, recruit bilingual health workers, nurses, and literacy levels. technical assistance, and research sup- and physicians; and (3) programs to port to help states seek federal match- train immigrants to become health • Promoting advocacy and policy ing funds and develop long-term fund- 30 workers. reform. As with efforts to expand immi- ing streams for this purpose.29 The grant eligibility for state public health health care sector has also been well • Increasing interpretation programs, advocacy is important in ahead of other fields in developing resources. In recent years, a number of developing policies that lessen language standards for providing linguistically third-party interpretation models have and cultural barriers to health care. and culturally competent services. emerged, including (1) dedicated staff Foundation-funded advocacy efforts interpreters at a specific hospital or have included projects to urge federal Improving communications between clinic; (2) private or non-profit in- agencies to enforce existing language health care providers and recent immi- person contract interpreters; and (3) access laws, advocate that states seek grants in the service delivery setting remote, third-party interpretation. federal reimbursement for language has been the focus of most efforts to Support for research in using innovative service costs, educate policymakers on increase access. Because of the diversity new technologies has helped make the importance of language access, and of health care providers (ranging from remote interpretation services—tele- negotiate with state or local health small clinics to large public hospitals), phonic, videoconferencing,31 and remote agencies to develop effective access varying demographics of local communi- simultaneous medical interpreting using plans. In some communities, founda- ties, and differences in culture and lan- wireless technology32—increasingly tions can also play a convening role in guage among immigrant communities, a viable. Initial research suggests that bringing various stakeholders together to wide range of practices have been devel- these approaches can enhance access to address language and cultural barriers. oped over the years. They include: medical interpretation because there is no wait for interpreters to be physically present, and they may be more cost- Watch the DVD efficient than in-person interpretation. Hold Your Breath: The Doctor’s Office • Supporting translation of written 29. See examples discussed in Grantmakers In Health, 2003. Health care is a challenge for many documents. Written materials are criti- 30. See profiles of the International Institute of Americans, and particularly problematic for cal to communicating health-related Minnesota’s Medical Careers Project in the immigrants who may lack English skills, access information. Patient care instructions, “Promising Practices in English Acquisition” section to care, and familiarity with Western medicine. and the Welcome Back Initiative in the “Promising consent forms, medical history forms, Practices in Economic Mobility” section. Hear from both “sides,” as an immigrant 31. Health Access. 2002. Videoconferencing Medical family faces confusing, possibly devastating and health education materials are all Interpretation: The Result of Clinical Trials. Oakland, information, about their cancer-stricken vital documents that should be language- CA: Health Access. father, and as their American-born 32. Youdelman, Mara and Jane Perkins. 2002. accessible. Health care organizations Providing Language Interpretation Services in the physician struggles with his own need to identify and prioritize the most Health Care Settings: Examples from the Field. Los cultural limitations. important documents for translation Angeles, CA: National Health Law Program. into languages commonly spoken by 119 HEALTH INTERPRETATION telephonic interpretation for doctors, EFFECTIVE HEALTH SERVICES IN RURAL AREAS dentists, nurses, and other medical INTERPRETATION SYSTEMS staff. In 2004-05, its staff provided El Puente (The Bridge) interpretation for approximately 5,150 Cambridge Health Alliance Jackson, Wyoming medical appointments. Cambridge, Massachusetts www.challiance.org Like many rural communities, Teton By all accounts, El Puente provides a County, located on the Wyoming-Idaho critical service to both the local Latino Providing language access in large border, is undergoing dramatic demo- community and health agencies. hospital settings requires more than graphic changes. The availability of Although providers have increased hir- qualified interpreters. Well-designed agricultural and service jobs has drawn ing of bilingual personnel and use of systems are needed to enable providers newcomers to the region, and the contract interpreters, El Puente contin- and patients to utilize interpreters mostly Latino immigrant population has ues to play a major role in making quickly and effectively. Research indi- grown fourfold since 1995, to 2700 resi- health services accessible. “The interpre- cates that patient and provider satisfac- dents. And these newcomers are seeking tation services provided by El Puente for tion with language services depends in services from the local health care sys- our non-English speaking patients are part on how easily interpreters are tem. In 1990, the primary local hospi- extremely important for safe and effec- available. When requests for interpreta- tal—St. John Medical Center—did not tive patient care,” explains Becky tion lead to delays, providers and LEP deliver a single Latino baby. By 2005, Kimmel, executive director of St. John patients often try to communicate over 24 percent of the babies born there Medical Center. “Both patients and without assistance, and over the long- were Latino.33 Local health care providers the medical community benefit from term may be discouraged from request- have struggled to make their services increased understanding, which enables ing interpreters altogether. accessible to this fast growing population. us to deliver efficient and compassion- ate care.” Cambridge Health Alliance (CHA), which El Puente was started in October 2003 operates three large hospitals and 20 to help address these challenges by pro- El Puente’s success suggests that it primary care sites in the area north of viding interpreter services and health could serve as a model for other immi- Boston, has developed an innovative care education for immigrants. El Puente grant communities located in regions system of language services. Key elements offers medical interpreting services at where bilingual medical resources are include (1) development of a centralized hospitals and medical offices free of scarce and health care providers have dispatch system; (2) training of medical charge to both patients and health care little experience serving newcomers. The staff on how to best utilize interpreters; providers. It also works with individual project has also played a role in easing (3) outreach to hospitalized LEP patients; patients to help them navigate the local potential tensions between native-born and (4) ongoing monitoring and evalua- health care system, enroll in insurance residents and the growing Latino com- tion of the program. programs, and receive care as needed. munity. According to El Puente execu- With an annual budget of only $200,000 tive director Vida Day, the rapid growth In May 2005, almost three decades and a staff of four full-time trained in the Latino population had caused after it first started providing language medical interpreters and six part-time some residents to perceive new immi- assistance to LEP patients, CHA adopted interpreters, El Puente provides almost grants as a “drain” on the local health new “one number calling” for all inter- 400 hours per month of in-person and care system. “The nonprofit model pretation requests. Providers can allows us to demonstrate the Latino request face-to-face or telephonic inter- community’s commitment to finding a pretation in the three languages pro- solution to this challenge, while also vided by CHA staff (Portuguese, drawing resources from local foundations Spanish, and Haitian Creole), as well as and individuals.” As of 2005, El Puente in over 40 languages that are provided received about half its revenues from by “per diem” interpreters.34 If staff or over 10 local foundations, with per diems are unavailable, the system the remaining coming from individual refers providers to the telephonic inter- donors. “Funders should understand that pretation services of a third party con- their support is absolutely critical in tractor. Prior to this system, CHA med- rural communities,” says Day, “where ical staff had to call different numbers resources are scarce and their contributions can make a tremendous difference in improving the health of immigrants.”

33. All of the demographic information was provided by El Puente. © Jupiter Images

120 based on their location and the language needed. The new system, which utilizes automatic call distribution queues staffed by Portuguese, Spanish, and Creole interpreters at 10 sites, not only makes it easier for providers to request assistance, it also helps CHA utilize its interpreter staff more efficiently. Interpreters at the three hospitals and seven health centers provide telephone interpreting to all 23 CHA sites, as well as face-to-face interpreting at their own sites. The new system automatically connects a caller to an available interpreter. These changes have resulted in significantly less waiting time for LEP patients and more efficient use of CHA’s resources. © Harry Cutting Photography, Inc. © Harry Cutting Photography, To implement the new system, CHA has provided orientation and training to its the program, while expenditures medical personnel. Equally important, increased by less than half that amount. CHA’s interpretation unit and the nurs- Telephonic interpretation expanded by ing staff have worked to identify situa- an astounding 82 percent, suggesting tions in which interpretation is under- that providers were becoming more com- utilized. For instance, requests for inter- fortable with the service. “While we still preters are less likely to occur for hospi- have a lot to learn and evaluate,” Saint- talized patients, who may then have dif- Louis notes, “the bottom line is that ficulty communicating discomfort, symp- these changes have made it easier for LEP toms, or other important information to patients to obtain accessible health care.” inpatient care providers.

With support from the Blue Cross Blue INCREASING WORKFORCE Shield of Massachusetts Foundation, DIVERSITY CHA is installing dual handset speaker phones in its inpatient facilities near Welcome Back Initiative each patient bed. CHA will train nursing San Francisco, California staff to identify situations that require www.e-welcomback.org interpretation, address the reluctance Providing accessible medical services to of some staff to utilize telephonic inter- newcomers requires hiring providers with pretation, and provide orientation to relevant cultural backgrounds and lan- patients on how and when to request an guage skills. An innovative approach is interpreter. Staff interpreters will also the Welcome Back Initiative, which conduct daily visits to each inpatient- builds on the skills of internationally care facility, speak directly with LEP trained immigrant health professionals. patients, and record relevant informa- This California-wide project has helped tion in the individual’s medical records. thousands of immigrant health workers According to Director of Multilingual become oriented to the U.S. health care Interpreting Loretta Saint-Louis, the system, enroll in English classes and new system’s centralized nature allows health care courses, obtain required managers to monitor performance and licenses and credentials, and find jobs identify and respond to problems. in the health field. The project is help- “Overall,” says Saint-Louis, “the changes ing immigrants improve their economic have made the system easier to use and situations, while also making health have maximized our productivity.” The services more accessible to newcomers. 34. “Per diem” staff members are on-call employees average wait time for interpreter serv- The Welcome Back Initiative is described who only come in when there is need for their services. ices in the three most common non- in detail in the “Promising Practices in English languages is now less than one Economic Mobility” section. minute. CHA’s interpreting volume grew by 14 percent in the first six months of 121 RESPONDING TO DEMOGRAPHIC CHANGE, DRIVEN BY COMMUNITY NEEDS WHITE MEMORIAL MEDICAL CENTER WWW.WHITEMEMORIAL.COM

and other specialty procedures. But by DIVERSIFYING THE HEALTH “ hite Memorial is a story of the 1980s, White Memorial, like other CARE WORKFORCE safety-net hospitals that provided a sizable W how an institution that was Developing a diverse workforce, White amount of uncompensated care, was increasingly becoming irrelevant Memorial recognized, would be critical facing a financial crisis and the possibility in the neighborhood transformed to meeting the area’s health care needs. of closure. itself by reaching out to the To increase the number of qualified One reason for the hospital’s financial health professionals, the hospital estab- immigrants and refugees that are decline was its slowness to adjust to the lished the Family Medicine Residency now there. The way indigenous area’s changing demographics. Before program to (1) recruit medical residents leadership emerged to broker World War II, East Los Angeles was pre- from East Los Angeles, as well as others relationships between the hospital dominantly home to immigrants of who plan to practice in underserved and the community in all different Japanese and European descent. But by areas; (2) provide them with the skills the 1980s, working-poor Latino immi- and understanding to be successful in kinds of ways could be applied grants, most of whom spoke Spanish as working with the health problems they to integration strategies beyond their primary language, made up the vast encounter in underserved areas; and the health arena.” majority of the area’s population. Largely (3) equip them with the knowledge uninsured patients began using the hospi- and networking needed to have a –Ignatius Bau, Program Director tal primarily for emergency services, leav- successful practice. The California Endowment ing its specialty service underutilized. And Developing local talent is a top priority despite the increase in Latino patients, the for the residency program. Four of the Opened in 1913 in East Los Angeles by hospital had very few Latino or Spanish- seven founding members of the private the Seventh Day Adventist Church, speaking staff who could effectively serve family practice group, who also serve White Memorial Medical Center started its new patient population. as faculty for the Family Medicine as a medical clinic and slowly grew into A STRATEGY FOR SURVIVAL Residency program, grew up uninsured a major teaching hospital. Today, it is in East Los Angeles. With their leader- the flagship facility for Adventist Health, In the wake of its financial crisis, White ship, White Memorial developed a a nonprofit that operates a number of Memorial recognized that its future exis- multi-faceted strategy to prepare and health facilities on the West Coast. tence depended on its ability to adapt to recruit neighborhood residents to work this new demographic reality. It devised a More importantly, White Memorial has at the hospital. By expanding primary strategy to build a closer relationship with emerged as a powerful example for care services to meet local needs, for the growing Latino community by becom- how integrating newcomers into the example, the hospital also created an ing a community-based hospital focused health care system—as patients, health opportunity to hire a number of new on the area’s most critical health need: the professionals, vendors, leaders, and physicians who were local residents or severe shortage of primary care providers, stakeholders—can reap enormous ben- had the necessary language and cul- especially for Spanish-speaking patients. efits for the receiving community. tural skills to serve Latino patients. White Memorial eliminated several of White Memorial, says Ignatius Bau, a According to Dr. Hector Flores, co- its specialized residency programs and program director at The California director of Family Medicine Residency, shifted its focus to building the capacity Endowment, is a story of “how an insti- these changes “immediately increased to provide culturally competent primary tution that was increasingly becoming the hospital’s opportunity to connect care to Latino patients. Over time, the irrelevant in the neighborhood trans- with the community. It opened the hospital recruited a diverse professional formed itself by reaching out to the door to the immigrant population. staff, instituted effective training and immigrants and refugees that are now They began to feel that not only was retention programs, and learned how to there. The way indigenous leadership [White Memorial] a good place to go incorporate neighborhood residents into emerged to broker relationships between if you needed emergency care, but it all aspects of the medical center’s activi- the hospital and the community in all was also a good place to go for all your ties—as patients, employees, vendors, different kinds of ways could be applied medical needs, for keeping yourself board members, and future health profes- to integration strategies beyond the well, managing a chronic condition, sionals. In developing this successful strat- health arena.” and so on.” egy, White Memorial transformed itself Over the course of its history, White into an invaluable community health As part of its long-term strategy, the Memorial experienced both lean times resource whose services and contributions private family practice group also sup- and periods of expansion. In the decades go well beyond providing traditional ports pipeline programs to provide after World War II, the hospital flour- medical services. mentoring and increase interest in ished as a pioneer in open-heart surgery higher education, especially the health

122 Significantly, all hospital departments are Beyond their work within their practice now easily accessible to Spanish speakers group, family practitioners also have onsite, via telephone, and on the Web. All worked to direct the $100 million that hospital staff receive training in cross-cul- White Memorial contracts with vendors tural interaction; many more community to businesses in East Los Angeles. Not residents are on staff; and the hospital has long ago, the hospital did no business increased community representation on with any East Los Angeles vendors, but its governing board. as of 2004, between $22 and $25 million a year of White Memorial contracts RESPONDING TO COMMUNITY NEEDS was staying in East Los Angeles. This has In the same spirit of responsiveness, had an unexpected positive impact on White Memorial has looked to community increasing health coverage for commu- needs to drive its service priorities. For nity residents. As local businesses thrive,

© Jupiter Images example, it expanded its maternal and they began to offer employees health child health care facilities and services to care benefits, and increasing numbers professions, among local high school reflect the needs of the area’s demograph- of local employees are going to White students. It also developed partnerships ics, even though some of these services, Memorial for their health care needs. with two science magnet schools that like neonatal care, are very expensive. The A VALUED COMMUNITY RESOURCE bring students and residence staff hospital also put in place other programs together regularly. Cultivating the inter- that provide community members with Nearly 20 years ago, White Memorial est of area students serves multiple information about how to access health changed with its patient population. goals: It increases the number of physi- and related services that may be available The choice has required the disman- cians interested in working in under- to them. Such programs, delivered in tling of barriers, active outreach, and served areas; creates career paths and Spanish, demystify an otherwise compli- an infusion of ingenuity. Today, White expands economic opportunity for cated medical system for both immigrant Memorial is thriving in the midst of the young people in the community; and and U.S.-born Latinos. immigrant community it serves. For increases minority representation and Ignatius Bau of The California Endowment, THE HEALTH INDUSTRY cultural and linguistic competency in this success was due to “a pretty AS AN ECONOMIC ENGINE the health field over the long term. unique confluence of factors, but the As of early 2006, the Family Medicine The family medicine practitioners at White lesson for others is how the organiza- Residency Program had 86 graduates: Memorial understand that the health care tional transformation happened.” industry can be an engine for neighbor- 70 percent are working in underserved On April 9, 2006, White Memorial hood economic growth, and they strive areas, and 40 percent have remained in celebrated the opening of a brand-new to benefit the community when they hire East Los Angeles. $200 million state-of-the-art facility. Among employees and contract out services. BUILDING CULTURAL COMPETENCE those celebrating the event were the For example, local residents account for mayor of Los Angeles, a congressional Although many young physicians have over half of hospital’s 1500-person work- representative, a city councilmember, the a personal commitment to serving low- force—from physicians and health educa- consul general of Mexico, and a number income communities, they may shy tors to clerks and janitors. Within the fam- of local celebrities. They had gathered to away from the work because they are ily practice group, which serves 45,000 celebrate not just a hospital but the not trained in the skills those environ- patients annually, about 95 percent of the lifeblood of the community itself. ments require. With funding from The employees are women, many of whom California Endowment, White Memorial’s are from immigrant backgrounds and “ he beautiful $200-million Family Practice Residency program cre- about half of whom are single heads of ated the Cultural Competence Initiative households. For many nonprofessional Tstate-of-the-art building we to broaden the understanding of cul- employees, working for the family prac- now have makes a statement to tural competence beyond language tice group is their first job, and the group the community that they are and ethnicity. Through the initiative, is deliberate about providing support to welcome and that they deserve medical residents learn about cultural, help them achieve financial stability. For gender, educational, and economic example, it provides training in financial the best of care, even if they are issues that have an influence on patients’ literacy and offers access to interest-free poor. It is also a tribute to the health and the challenges the residents loans that employees have used to pay off physicians who work here. And may face in delivering care to such debt, purchase homes, or send their chil- it is all about this community patients. White Memorial’s family medi- dren to college. As the practice has grown, and its demographics.” cine clinic has served as a “living labo- it has also offered educational scholar- ratory” for developing this curriculum, ships to employees and their family mem- —Dr. Hector Flores, Co-Director drawing on the real-life challenges that bers who want to improve their careers. Family Medicine Residency health professionals experience on a White Memorial Medical Center daily basis.

123 EVALUATING HEALTH PROGRAMS

Family health and well-being play an • Number and percent of immigrant • Number of agencies and services important part in the successful inte- adults and children participating in benefit that provide translation and interpreta- gration of immigrants. However, it is programs (e.g., Food Stamps, SCHIP, tion assistance. Samples of assessment sometimes difficult to achieve due Medicaid, other publicly funded health questionnaires are available from: both to the structural barriers dis- insurance programs). • Andrulis, D., Delbanco, R., cussed in this section and the stress Avakian, L., Shaw-Taylor, Y. caused by the migration and the inte- • Number and percent of immigrants “Conducting a Cultural Competency gration process itself. who get regular blood pressure and cho- Self-assessment.” lesterol screenings, mammograms, Pap • Dana, R.H., Behn, J.D. & Therefore, evaluating efforts to pro- smears, and dental check-ups. Such data Gonwa, T. 1992. “A Checklist for mote health and well-being should can be obtained at health fairs and/or the Examination of Cultural focus both on program design and from local clinics. Competence in Social Service implementation and the physical and Agencies.” Research on Social Work • Number and frequency of visits to the mental health outcomes for immigrant Practice, 2, 220-233. emergency room. Data can be obtained families. • Goode, T.D. 2005. Promoting from the Agency for Healthcare Research Cultural and Linguistic Competency: In order to determine if a health initia- and Quality’s Medical Expenditure Panel Self-assessment Checklist for Personnel tive leads to outcomes illustrated in the Survey and the National Health Interview Providing Services and Supports in chart below, foundations can collect Survey. Early Intervention and Early Childhood the following data: • Recruitment and retention of staff Settings. Washington, D.C.: and/or volunteers who are familiar with Georgetown University National the immigrant’s culture and language. Center for Cultural Competence.

OUTCOMES

Newcomers:

• Increased access to effective OUTPUTS health education and services.

• Increased food security. IMMIGRANT INTEGRATION • Analysis of health-related policies. • Improved physical and mental health outcomes. • Community-based These outputs lead • Improved child well-being. These outcomes advocacy for improved encourage health access and services. to the following outcomes, which • Improved familial relationships integration, and in turn encourage (e.g., reduced intergenerational as integration • Increased allocation of local tensions). these outputs to gradually occurs, and state funds for health these outcomes become more • Increased economic security. programs. widespread. will also become more widespread. Receiving community: • Culturally and linguistically appropriate outreach, • Culturally and linguistically com- education, and services for petent services. immigrant families. • Accessible, affordable, quality systems and services.

SOURCE: • Healthier communities. Annie E. Casey Foundation. “Family Economic • Increased benefit from the Success: Building Strong Financial Futures for Families and Communities.” Retrieved from contributions of immigrants. www.aecf.org/initiatives/fes/fes/ on March 17, 2006.

124 Promising Practices in Promoting Economic Mobility

“…[F]ull economic integration of immigrants requires that they have access not only to the informal financial sector but also to the formal one, including banking, insurance, pension funds, and other institutions. Only by using such institutions will immigrants successfully expand their range as entrepreneurs, become homeowners, build credit histories, save for retirement, and insure against financial and other risks.” —Ben Bernanke, Chairman, Board of Governors of the United States Federal Reserve, “Financial Access for Immigrants: Learning from Diverse Perspectives” Conference, April 16, 2004

INTRODUCTION 127

IMPROVING IMMIGRANTS’ EMPLOYMENT PROSPECTS 129 Challenges and Funding Opportunities Providing Accessible Workforce Development Services Helping Immigrants Use Previous Training and Experience Mounting Public Campaigns to Improve Wages and Work Conditions

SUPPORTING IMMIGRANT ENTREPRENEURSHIP 133 Newcomers as Engines for Community Development Cooperatives: Economic Mobility Strategy for Immigrant Women

INCREASING IMMIGRANTS’ ACCESS TO FINANCIAL SERVICES 138 Challenges Elements of Promising Practices Diversifying the Workforce of Financial Institutions Developing Immigrant-Serving Financial Institutions

USING TAX SERVICES AND CREDITS TO INCREASE FAMILY INCOME 143

EVALUATION 145

125 126 INTRODUCTION ost newcomers, whether they Mvoluntarily left their native countries or were forced to migrate, come to America in search of economic opportunities and the chance to build a better life. While the prospect of higher wages and better educational opportunities has drawn many immigrants to the United States, their ability to realize these aspirations depends on a combination of their own skills, experience, and determination as well as the opportunities and services offered by receiving communities.

Economic success and mobility are not © Jupiter Images only motivators for immigrants, but they are also key benchmarks of how well Indeed, because the U.S. immigration immigrant integration is occurring in system favors legal migration by highly receiving communities. Higher wages and skilled individuals, nearly one-quarter of financial stability are often required before the foreign-born population holds pro- immigrants can develop stronger ties to fessional or managerial jobs,3 and some the broader community. Moreover, eco- ethnic groups have household incomes nomic success for newcomers is usually that are significantly higher than the accompanied by other indicia of integra- national average. tion, such as However, these success stories cannot In many urban areas, small businesses operated English acquisition, hide the economic challenges faced by by immigrants have played an important role in higher education attainment, citi- the fastest-growing segment of the revitalizing neighborhoods and providing jobs and newcomer population, which includes stability to local residents. zenship, and civic engagement. individuals with relatively limited education or English skills and large num- Newcomers’ economic motivations, bers of undocumented immigrants. For combined with U.S. employers’ strong these immigrants, most of whom work demand for foreign workers, have made in low-wage industries, current eco- immigrants an increasingly important nomic trends and existing government force within the U.S. economy. Immigrants policies present numerous barriers that make up one in eight workers in the impede their economic mobility. United States1 and are expected to account for most of the nation’s workforce growth between 2006 and 2035. But their economic contributions reach beyond 1. Schmidley, Diane. Profile of the Foreign-Born Population in the United States: 2000. U.S. Census the workforce. In many urban areas, Bureau, Current Population Reports, Special Studies small businesses operated by immigrants No. P23-206. December 2001. 2. National Academy of Sciences. 1997. The New have played an important role in revital- Americans: Economic, Demographic, and Fiscal izing neighborhoods and providing jobs Effects of Immigration. Washington, D.C.: National Academy of Sciences. The same study also found and stability for local residents. Immigrant that immigrants’ contributions will play a huge role workers also provide critical support to in keeping the Social Security system viable for all Americans. The net benefit to the Social Security the U.S. tax base. For instance, a 1997 system if immigration levels remain constant is study by the National Academy of expected to be $500 billion between 1998 through 2022 and nearly $2 trillion through 2072. A more Sciences found that immigrants paid recent study found that undocumented immigrants, more than $50 billion of taxes annually alone, contribute at least seven billion dollars annually to the social security system even though to all levels of government.2 they are not entitled to collect benefits. See Rosenbaum, David and Robin Toner. 2005. “To The growth of the immigrant population Social Security Debate, Add Variable: Immigration,” The New York Times, February 16. has been accompanied by numerous 3. Moran, Tyler and Daranee Petsod. 2003. stories of individual success, consistent Newcomers in the American Workplace: Improving Employment Outcomes for Low-Wage Immigrants and with the American folklore of how new- Refugees. Sebastopol, CA: Grantmakers Concerned comers can achieve financial success with Immigrants and Refugees and Neighborhood Funders Group. through hard work and ingenuity.

127 Traditionally, immigrants achieve upward economic mobility in two ways. First, individual immigrants improve their wages over their lifetime as they gain training and experience in the U.S. job market. Second, each succeeding generation earns more than their parents, so that, over time, they come to resemble their native-born counterparts. Through high rates of workforce participation and the formation of new businesses, immigrants support their families © David Bacon as well the communities where they live by generating tax revenues. years in the United States. Congress has since made some exceptions to this But for recently arrived immigrants with rule, and a growing number of states, limited English skills and educational recognizing that such restrictive attainment, working long hours is not policies are harmful and costly, have enough to stave off poverty. Forty-three enacted their own immigrant-specific percent of immigrant families with at health and social services programs. least one full-time worker have incomes Nevertheless, low-income immigrants below 200 percent of the federal poverty generally have less access to public level compared to 26 percent of native- resources, such as health care, that born workers.4 are critical for achieving economic self- Having access mostly to low-paying jobs sufficiency. They also have few family is a primary reason many immigrants members or social networks that can live in working poverty. Nearly half of help cushion an economic blow such immigrant workers earn less than twice as job loss. the federal minimum wage,5 and 63 per- In response to cent of foreign-born workers, primarily Nearly half of immigrant workers earn less than the unique chal- from Mexico and Latin America, work in twice the federal minimum wage, and only 26 lenges facing service, manufacturing, and agricultural percent receive job-based health insurance, immigrants with occupations.6 These industries not only compared to 42 percent of U.S.-born workers. limited English pay low wages, but the jobs are often skills and low educational attainment, part-time or seasonal and generally do foundations can play an important role not provide health insurance or other in supporting programs that help increase benefits. Consequently, only 26 percent this population’s economic mobility. of foreign-born workers receive job-based health insurance compared to 42 percent This section describes how funders can for U.S. citizens. As discussed below, improve immigrants’ economic mobility the lack of employer-based health insur- by supporting programs that strengthen ance is an especially difficult barrier for immigrants’ ability to successfully enter low-income families to overcome. and advance in the labor market; increase their knowledge of financial In addition, federal policies that severely planning and how to obtain affordable restrict access to critical health and services, including credit, from banks social services such as Medicaid or Food and other financial institutions; and Stamps impede the ability of immigrant encourage their participation in tax families to achieve economic mobility. credit programs intended to support As detailed below, when Congress working poor families. passed welfare legislation in 1996, it made virtually all immigrants arriving in the United States after August 22, 1996 4. Fix, Michael E. and Jeffrey S. Passel. 2002. ineligible for major federal public bene- Immigrants and Welfare Reform. Washington, D.C.: Urban Institute. fits programs for at least their first five 5.Capps, Randy, et. al. 2003. A Profile of Low-Wage Immigrant Workforce. Washington, D.C.: Urban Institute. 6. Schmidley, 2001.

128 IMPROVING CHALLENGES AND FUNDING • Low-wage immigrant workers are OPPORTUNITIES the least likely among all workers to IMMIGRANTS’ receive job-based benefits. To increase EMPLOYMENT Despite their pivotal role in the U.S. health coverage, funders can support economy, many immigrant workers face strategies that expand immigrants’ eligi- PROSPECTS enormous challenges in the labor force. bility for and access to public health Nearly half earn less than the minimum insurance programs and health services. wage, compared to about one-third of See the “Promising Practices in Promoting native-born workers. For example, the Health and Well-Being” section for average low-wage immigrant worker details on successful program and earned $14,400 in 2001.7 Many of the policy strategies. issues facing low-wage immigrant workers are discussed in other sections of • Many low-wage immigrants suffer the toolkit; therefore, this section pro- discrimination and exploitation in the vides only a brief summary of critical workplace. Common realities include low employment barriers and how funders wages, long hours, poor working condi- can support employment mobility for tions, and denial of labor rights, such as newcomer populations.8 union representation and collective bargaining. Strategies for addressing dis- Watch the DVD Rain in a Dry Land: • Many immigrants have limited crimination and exploitation of immigrant Affordable Housing English proficiency, vocational skills, workers are described in the “Promising Safe, affordable housing can make and education. Consequently, their Practices in Equal Treatment and a critical difference in gaining an access to good jobs that pay family- Opportunity” section of this publication. economic foothold for immigrant sustaining wages and provide opportu- families. Visit the subsidized apartment • Undocumented workers, due to that brought optimism and a sense of nities for advancement are severely lim- genuine possibility into the ited. To address these challenges, fun- their lack of work authorization, have difficult lives of one ders can support innovative English limited options for moving out of refugee family. acquisition, adult education, and voca- low-wage jobs. Funders interested in tional training programs, as well as policy improving economic outcomes for this efforts to increase resources available to population can consider funding worker- help immigrants improve their skills.9 owned cooperatives, as well as policy advocacy efforts to expand legal immi- • Many job training and placement gration channels for low-skilled workers, programs are not accessible to or including guestworker programs and meet the unique needs of immigrant programs that offer pathways to perma- and other limited English proficient nent residency status and citizenship. (LEP) workers. Funders can expand the supply of programs that provide linguis- • Many skilled immigrants cannot tically and culturally competent vocational use their previous training, education, and other training programs specifically or work experience to secure employ- designed to help newcomers. See the ment in their field in the United “Promising Practices in English States. This is due to their limited Acquisition” section of the toolkit for English skills, lack of familiarity with effective program models. American workplace culture and norms, the tendency of U.S. employers to discount foreign work experience, and/or different credentialing requirements. The Welcome Back Initiative in this section offers one promising practice to help skilled immigrants find employment in their field.

7. Capps, Randy, Michael Fix, Jeffrey S. Passel, Jason Ost, and Dan Perez-Lopez. 2003. A Profile of the Low-Wage Immigrant Workforce. Washington, D.C.: Urban Institute. 8. See also Moran and Petsod, 2003. 9. Wrigley, Heide Spruck, Elise Richer, Karin Martinson, Hitomi Kubo, and Julie Strawn. 2003. The Language of Opportunity: Expanding Employment Prospects for Adults with Limited English Skills. Washington, D.C.: Center for Law and Social Policy. © Harry Cutting Photography

129 PROVIDING ACCESSIBLE WORKFORCE DEVELOPMENT SERVICES

New Iowan Centers Des Moines, Iowa www.iowaworkforce.org/centers/ newiowan

Recognizing the growing importance of immigrant workers to their local economies, some state and local gov-

ernments have begun to coordinate © Nebraska Appleseed Center for Law in the Public Interest workforce development services to newcomers to help them achieve economic about their workplace rights and assist HELPING IMMIGRANTS self-sufficiency. A good example is the workers in filing complaints with labor USE PREVIOUS TRAINING New Iowan Centers (NICs) started by enforcement agencies. All NICs have AND EXPERIENCE Iowa’s Workforce Development Agency in bilingual staff who can communicate 2001. Based at existing state Workforce with Spanish-speaking workers. Welcome Back Initiative Development Centers in eight locations San Francisco, California throughout the state, NICs provide NICs also offer services and trainings www.e-welcomeback.org “one-stop” services to immigrant workers, to employers to help them understand including assistance with immigration the benefits, responsibilities, and Many immigrants arrive in the United forms, job counseling and placement challenges of hiring immigrant workers. States with substantial vocational skills services, and referrals for housing, child These human resource services cover a and employment experience. However, care, interpretation, and legal services. wide range of issues, including the they often have difficulty putting their recruitment of new employees, immigra- experience to work due to unfamiliarity Through a partnership with local com- tion laws that apply to the workplace, with the U.S. workplace, the tendency munity colleges, several NICs offer ESL non-discrimination and labor enforce- of employers to discount foreign work ment laws, cultural experience, and the need to obtain new “Our goal is to help immigrants, employers, and the diversity issues, credentials for professional work. The community work together to achieve their goals so and the challenges Welcome Back Initiative, a California- of communicating they all benefit from the energy and productivity wide project, has successfully helped with and training that this new population brings to the state.” thousands of health professionals Spanish-speaking trained outside of the United States to employees. “Our enter the health workforce, while infusing and basic adult education courses. NICs goal,” says Barbara Bobb, bureau chief the health care system with culturally also try to protect immigrant workers of the agency’s Targeted Services, “is to and linguistically competent workers to against exploitation: They provide bilin- help immigrants, employers, and the serve the state’s growing immigrant gual (Spanish/English) information community work together to achieve population. their goals so they all benefit from the energy and productivity that this new With centers located in San Francisco, population brings to the state.” Los Angeles, and San Diego, the Welcome Back Initiative helps immigrant health professionals gain familiarity Watch the DVD with the U.S. health care system, Rain in a Dry Land: improve their vocational English, obtain Goodwill Industries required licenses and credentials, and Many immigrants, particularly those find jobs through the centers’ well- from rural countries, come to the developed relationships with employers. United States lacking the skills necessary The centers’ services, available to all to secure even basic employment. Get some on-the-job training with an foreign-trained health workers who industrious single mother, and reside in California, include: experience the triumph of her first pay day.

130 • Career assessment and plan. communication skills needed for inter- above all, I regained self-confidence. A case manager conducts an assessment acting with patients, patients’ families, Now I know what I want to do. I have of each individual’s educational back- and co-workers. In addition to offering no doubt I can work in this country, ground, English proficiency, vocational courses, the centers refer participants pursue my education, and be successful.” goals, and work history, both in the to other institutions that provide ESL United States and the country of origin, and vocational training. With funding from The California in order to develop a career path plan Endowment, The California Wellness to facilitate entry into a health care • Group support activities. The Foundation, The San Francisco Foundation, profession in the United States. centers offer various support groups and and Kaiser Permanente, among others, workshops to help participants learn the Welcome Back Initiative plans to • Case management and counseling. more about specific professions within expand its work. Beyond providing The centers help newcomers secure the health care sector. Group activities direct services, the centers have already transcripts and school records from are also intended to motivate partici- begun to engage policymakers on how abroad, obtain licensing information, pants and create a peer network that to reduce barriers that prevent skilled connect with agencies that help vali- helps them become health professionals health workers from entering their pro- date credentials, enroll in specific ESL in the United States. fessions in the United States. The centers or training programs, as well as obtain also plan to help other groups across financial aid and job counseling and Between 2002 and 2005, the centers the country start similar programs, with placement services. Case managers meet served more than 5,900 participants one such program launched in Boston in regularly with participants to problem from more than 100 countries. The par- 2005 and other projects in the planning solve, develop short-terms plans, and ticipants previously worked abroad as stages in New York City and Montgomery provide support and motivation. physicians, nurses, dentists, and other County, Maryland. health professionals. Approximately 70 • Education and training. The centers percent of them are women, and the offer various educational programs, median age is slightly above 40. Many including courses that provide an intro- participants are still studying or training duction to the U.S. health care system to re-enter their previous professions, Watch the DVD and licensing preparation courses in but the program has already helped over The New Americans: nursing and other health occupations. 1,300 participants to validate their pro- The Nwidors at Work The centers have also partnered with fessional credentials. Almost half of its The American food, hospitality, and other service industries rely heavily on community colleges and universities to clientele, approximately 2,800 individu- an immigrant workforce. Go behind the develop specific training programs to als, hold health care jobs and are play- swinging hotel doors with one refugee help foreign-trained health professionals ing a critical role in making California’s couple: a chemical engineer who transition into the U.S. workforce. For health care system more accessible washes dishes and his wife, a example, recognizing that many of its to immigrants. chambermaid who will soon enter nursing school. participants need to improve their English skills and learn health-related The program’s success can also be vocabulary, the San Francisco Welcome described in more personal terms. As Back Center, in partnership with City Maria, a physician from Morocco, said College of San Francisco, has developed upon completing the program, “I have an innovative one-year vocational ESL improved my English, I learned a lot curriculum that teaches language and about the health care workplace, but © Steven Rubin

131 MOUNTING PUBLIC CAMPAIGNS thousands of employees at Los Angeles LAANE initially helped residents halt TO IMPROVE WAGES International Airport (LAX), and passed a major commercial development that AND WORK CONDITIONS a Los Angeles Superstore Ordinance that would have displaced over 70 families gives communities more control over and is now working with LA Voice PICO Los Angeles Alliance the construction of large retail stores. to organize residents and help them for a New Economy reach consensus on possible criteria for Los Angeles, California LANNE is currently working with a future development projects. www.laane.org coalition of community, religious, labor, and education leaders to improve work- “The goal is have publicly subsidized Immigrants with limited education or place conditions and build a better development be revitalizing rather English skills often hold jobs that are economy for thousands of workers and than have a damaging effect on the low-paying, lack health benefits, and do residents along the Century Corridor area neighborhood,” explains Roxana Tynan, not have unions or other institutions near LAX. The area has 13 major hotels project director for Accountable through which they can address poor that employ more than 4,000 workers, Development at LAANE. work conditions. But in recent years, mostly immigrants who receive signifi- community organizations have improved cantly lower wages and benefits than The strong neighborhood coalition low-wage employment sectors through those of hospitality workers in other parts that formed persuaded the Los Angeles innovative community organizing and of Los Angeles County. None of the hotels Community Redevelopment Agency to advocacy. These efforts have led to the are unionized, and past organizing efforts include community-benefit requirements passage of numerous living-wage laws, have not succeeded. LAANE has been in future proposed neighborhood as well as the creation of neighborhood building a coalition to unite workers developments. Specifically, any new development projects. In localities where across various hotels with community development must generate a minimum immigrants make up an increasingly members who are concerned that these of 250 living-wage jobs, provide job large portion of the working poor, these low-wage jobs contribute to poverty and training to facilitate the hiring of local strategies have the potential to benefit other problems in their neighborhood. residents, make affordable at least 20 large numbers of newcomers. They also percent of any new housing and pay offer opportunities for immigrants to As part of its effort to improve conditions relocation benefits to displaced tenants work with other low-income residents for local hospitality workers, LAANE has and property owners. Critics who argued and communities of color to organize proposed an economic development that these requirements would drive plan to increase towards a shared goal.10 business at the “The community residents demonstrated that Founded in 1993, the Los Angeles hotels over the when they joined together and organized themselves Alliance for a New Economy (LAANE) long term so they they could have a powerful voice in decisions that has been a national leader in developing will be in better affect their community.” model campaigns to improve conditions position to raise for the working poor. Its model combines wages and provide benefits. Its proposal developers away were silenced when research, community organizing, com- asks the city to upgrade the Corridor five solid proposals were received. munications, and policy advocacy. through the creation of shops, restaurants, a mini conference center, and The ability of neighborhood leaders to “We often partner with low-wage workers other tourist sites. To build support for facilitate cooperation and respectful who are organizing in their workplace,” this idea, LAANE and community allies dialogue among Latino and African- says Vivian Rothstein, LAANE’s deputy convened a blue-ribbon commission American residents has been critical to director. “Our strategy is to connect consisting of community leaders and the project’s success. them with allies and resources, mobilize elected officials, which issued a report “The community residents demonstrated community engagement in their efforts, in February 2006 detailing recommenda- that when they joined together and and change policies to improve work- tions for creating a “win-win” solution organized themselves,” says Tynan, places over the long run.” for workers, the tourism industry, and “they could have a powerful voice in local residents.11 LAANE has helped win living wages decisions that affect their community.” for tens of thousands of workers and LAANE has also done similarly innovative negotiated development agreements work in helping immigrant communities that have created economic benefits to shape neighborhood development proj- residents throughout Los Angeles. Its ects to generate living-wage jobs and victories to date include successful cam- address community needs. The group, paigns in the late-1990s that enacted a since 2003, has been working with res- 10. In addition to the organization described in living-wage law in Los Angeles, which this section, other examples of this type of advocacy idents of the Adams La Brea neighbor- can be found in the description of Workers Centers raised wages for 15,000 municipal workers, hood, a low-income community with a in the “Promising Practices in Equal Treatment and improved wages and work conditions for Opportunity” section of this publication. predominately Latino and African- 11. The report is available at American population. www.centurycommission.net.

132 SUPPORTING NEWCOMERS AS ENGINES FOR Thai CDC’s program educates entrepreneurs COMMUNITY DEVELOPMENT on financial literacy, wage-and-hour IMMIGRANT laws, taxes, business structure, site ENTREPRENEURSHIP The Role of Ethnic-Based selection, and other topics while also Community Development providing technical assistance and www.thaicdc.org Corporations counseling. Through Thai CDC’s help, www.ledc-mn.org a new entrepreneur with $1,000 can www.vietaid.org Whether paying taxes, buying goods, obtain a 2:1 federal match and triple starting businesses, or revitalizing old that amount. Since its founding, Thai neighborhoods, immigrants contribute CDC has helped start more than 150 significantly to the U.S. economy. And small businesses. immigrant-based community organizations play a central role in promoting Viet-AID has a similar Small Business much of this immigrant enterprise. Assistance Program that has provided Watch the DVD assistance to over 40 businesses in the Maid in America: Dynamic Workers, LLC In recent years, ethnic-based community past three years, helped start seven new Despite their limited skills and work development corporations (CDCs) have businesses, and assisted in helping five experience, some newcomers are looking played a critical role in facilitating businesses secure loans and grants to entrepreneurship as a pathway to immigrants’ economic integration. Tapping totaling over $400,000. achieve economic mobility. Attend a busi- into immigrants’ entrepreneurial spirit, ness meeting of a collective of mostly “The rate of entrepreneurship is extremely Spanish-speaking domestic workers, these CDCs help newcomers develop who are reaching for the American small businesses and improve their high among immigrants, especially Asian Dream by starting a house- economic mobility. immigrants,” says Chanchanit Martorell, cleaning cooperative. the executive director of Thai CDC. “The Thai CDC in Los Angeles, the Vietnamese fact that we use anti-immigrant sentiment American Initiative for Development and bias to deny them an opportunity (Viet-AID) in Boston, and the Latino is denying ourselves economic growth Economic Development Center (LEDC) in contributed by immigrants who own and Minneapolis are three ethnic-based CDCs operate their own small business.” whose work illustrates promising strategies that improve economic mobility for LEDC holds a micro-entrepreneur training immigrants in ways that also strengthen course in which students write business economic outcomes for the broader plans and then learn about bookkeeping, community. marketing, obtaining licenses and permits, and making various economic projections. LEDC, like Thai CDC and Viet-AID, have consultants who work with would-be business owners and provide ongoing support and advice. In addition, LEDC holds English-Spanish workshops on taxes, labor laws, and other business issues.

One strategy employed by each of these CDCs is creating a commercial area where small immigrant-owned businesses have the opportunity to establish presence, fulfill a need in the neighborhood, and thrive. These areas are generally in low- income parts of the city that have become rundown over the years; new businesses and economic activity act to revitalize the community for everyone, not just immigrants but long-term residents as well. © Churchill & Klehr Photography © Churchill

133 When Thai CDC was established in 1994, it had long-term economic mobility for Thais as a core mission. Its first step was to create a Thai Town in decaying East Hollywood, which, according to the 2000 census, has a poverty rate of 31 percent compared to California’s rate of 14 percent.

“Given that the historical port of entry for Thais is the East Hollywood area, we decided we could use that as a launching pad to begin a campaign to basi- cally address all of the needs within the

East Hollywood area,” Martorell explains. © Thai CDC “The whole Thai Town idea was to Chanchanit Martorell of Thai CDC improve the amenities, the public infrastructure, and create services and really generate some capital and investments in the area.” surroundings are now bustling with “Many of these businesses are also energy. Starting with a recognition of the involved in their neighborhood and After years of campaigning and promoting demand for ethnic goods and services in business associations, which is some- this would-be cultural and tourist center, the area, LEDC helped start Mercado thing I’m proud to say,” notes Ramón Thai CDC in 1999 won official designa- Central, a business cooperative in a three- León, executive director of LEDC. tion from the City of Los Angeles for an story building that currently includes 47 “Creating this corridor was intended to official Thai Town in East Hollywood. businesses. Much is particular to Latino help fully integrate immigrants into the residents, such as Latino videos, items system, making business something that “With Thai Town, there’s a lot more foot for first communion, specialized grocery is socially responsible.” traffic in East Hollywood, more tourists options, and planning for “quinceañeras,” and pedestrians,” Martorell says. “We’ve a traditional fifteenth birthday celebra- Affordable housing development by the put the Thai community on the map. tion for Latina girls. CDCs has also revitalized the area. In This is the first and only Thai Town in 1997, Thai CDC completed a $5 million the world.” “I think that the developers of Mercado renovation of the Halifax Apartments, Central really came together and creating 46 units of affordable housing. Viet-AID has pursued community devel- believed that they could do it. They After its completion, Thai CDC began the opment in Fields Corner, a low-income looked at and built on their assets development of Palm Village Apartments, neighborhood in Boston’s Dorchester rather than focusing on the barriers. a $9 million project that will generate area, where over 70 percent of residents They saw what they could bring to the 60 units of affordable housing for seniors. are minorities. An estimated 10,000 community, not just the Latino commu- Thai CDC is also working to develop Vietnamese newcomers live in nity but the larger community,” says another 100-plus units of affordable Dorchester, giving it the largest concen- Ruby Lee, a program officer at The Saint senior housing in the Westlake area of tration of Vietnamese in Greater Boston. Paul Foundation. Los Angeles. Today, Vietnamese-owned businesses, many of which started with help from As the Mercado “Business development is one way for people Viet-AID, comprise 50 percent of the Central flourished to get integrated and accepted into society total businesses in Fields Corner and rapidly, a snowball by financially contributing.” Savin Hill (another Dorchester neighbor- effect took place: hood). Viet-AID has also created the The formerly life- Win-Win Cleaning Cooperative, a com- less Lake Street became an economic “Because low-income families are only mercial cleaning operation, which now corridor lined with restaurants, markets, paying 30 percent for rent [in these generates more than $233,000 in annual flower shops, and specialty stores. rental units], 70 percent of their income gross revenue. can be spent on children, education, and so on. That’s critical to stabilizing Lake Street, in Minneapolis, is another families,” Martorell says. example of an area that had deteriorated over the years, but thanks to efforts by LEDC and others, the street and its

134 In Fields Corner, a former drug house Co Pre-School, which ensures high-quality, training, and neighborhood develop- has been converted by Viet-AID into culturally competent early education. ment emerged as priorities [for us].” three affordable housing units. Work like this clearly reflects Viet-AID’s aim in • LEDC’s Latino Scholarship In addition to promoting self-suffi- housing development: creating affordable Program. Scholarships are offered each ciency and better living standard for housing for low-income immigrant fami- year to two students from Minnesota immigrants, economic development lies that also strengthens the community who have demonstrated financial need, helps immigrant communities gain and improves upon the physical envi- academic achievement, and leadership respect. As Jocelyn Ancheta, a program ronment of the neighborhood. Viet-AID in the Latino community. officer at the Blue Cross and Blue has just begun work on its largest prop- Shield of Minnesota Foundation, puts it: These CDCs believe that the most erty development task to date: developing effective way newcomers can improve “Mainstream Americans see that as long a mixed-use commercial and residential their quality of life is to integrate eco- as the refugees and immigrants are con- property. Besides building, Viet-AID also nomically and make concrete contribu- tributing to the system rather than provides informational resources, home- tions to the broader community. taking money out of it, it’s okay for buying classes, and referral services to them to be here. Business development those searching for an affordable place “We felt that, in the long run, generating is one way for people to get integrated to live. wealth and building community asset and accepted into society by financially would have the most impact,” Martorell In addition to developing affordable contributing.” says. “Affordable housing, job develop- housing and promoting community eco- ment, financial literacy, entrepreneur nomic development, ethnic-based CDCs utilize other strategies to help immigrants gain financial footing in their new community. Each CDC has a variety of different such projects, including:

• Thai CDC’s Community Health Leadership Program. Thai CDC identified the health care industry as fast-growing and in high demand for workers, so it launched workforce development that specifically prepares Thais for jobs in health care.

• Thai CDC’s Summer Activist Training. This training provides an opportunity for Asian Pacific college students to gain grassroots organizing skills.

• Viet-AID’s Youth Leadership Development. The program builds future leadership by giving high school and college students the opportunity to fundraise, work with residents, and participate in other organizing work.

• Viet-AID’s Comprehensive Child Care Initiative. Viet-AID is currently working to expand and develop its Family Childcare Program and Au Co

Pre-School. The child care program & Klehr Photography © Churchill trains women to be family child care providers to low-income and ethnically diverse families. Viet-AID runs the Au

135 COOPERATIVES: ECONOMIC • Governance training. Each A portion of the profits are kept in the MOBILITY STRATEGY FOR cooperative has a board of directors cooperative under each member’s name, IMMIGRANT WOMEN that includes worker-owners. WAGES and when a member leaves, the money is offers training to educate boards on their given to her. WAGES: Women’s Action legal responsibilities and to assist them to Gain Economic Security in operating smoothly and effectively. There is also a social benefit. Each San Francisco, California woman has a voice in the workplace • Management services. WAGES www.wagescooperatives.org and participates in decision making that provides a professional manager to each affects her business. The cooperative Formed in 1995, WAGES seeks to cooperative for the first three years of allows the women to develop leadership improve the economic mobility of low- operation. In addition to managing the abilities and provides them emotional income immigrant women in the San cooperative, the manager helps coopera- support. Francisco Bay Area by helping them tive members develop business skills. start up eco-friendly housecleaning “Being the owners gives them a power- • Education. WAGES trains cooperative cooperatives. The cooperatives, struc- ful sense of pride in the work. They see members in areas such as the use of tured as limited liability corporations, cleaning as a profession and something eco-friendly products, housecleaning are owned by the women who do the to be valued. It’s nothing to be ashamed techniques, communication, financial housecleaning, and all profits belong to of, even though it is sometimes looked literacy, decision making, customer them. These worker-owners also play a down on in our society,” Abell explains. satisfaction, and marketing. key role in managing and running the Although being a worker-owner is one cooperatives. WAGES has developed five cooperatives of the advantages of a cooperative, it in all and is preparing to launch a sixth. As a cooperative is formed and then simultaneously presents significant The three cooperatives currently operat- begins to operate, WAGES offers a com- challenges for the women. ing independently are Emma’s Eco-Clean, prehensive package of support: Eco-Care Professional Housecleaning, “They don’t have a direct supervisor on • Technical assistance. WAGES pro- and Natural Home Cleaning Professionals. the job, so it requires a lot of maturity vides advice on legal structure and Each cooperative has approximately 15 to work with each other to make busi- works with the women to secure loans, members, the majority of whom are ness decisions. They’ve never had the create business plans, prepare tax immigrant women from Mexico and opportunity before to do this, so we filings, etc. Central America. Each cooperative provide a lot of education and they do boasts gross revenues ranging from a great job of rising to the occasion,” $300,000 to more than $600,000. Their Abell observes. success is especially remarkable given The women do grassroots fundraising, the fact that very few of the members like selling tamales, to raise start-up speak English, and some are recent funding. Once the cooperatives are up immigrants. and running, operating costs are covered Hilary Abell, executive director of WAGES, through sales, membership fees ($400 sees many benefits to the cooperative per person over a period of time), and a model. First, of course, is an economic small business loan. The support services benefit: On average, the cooperatives offered by WAGES, free to the coopera- increase household incomes by 40 per- tives, are funded by grants from founda- cent since all profits are shared equally tions and individuals. Supporters of among the members. WAGES estimates WAGES include the Zellerbach Family that members, making $11 to $14 per Foundation, The California Wellness hour, earn 50 to 100 percent more than Foundation, the Levi Strauss Foundation, they would working at a conventional and the F.B. Heron Foundation. cleaning company. In addition, they receive fringe benefits, such as paid holidays and health insurance. © WAGES

136 Abell believes the WAGES model is highly replicable and can benefit communities outside the Bay Area in places like Los Angeles, Texas, and New York that have expressed interest. However, growth will only be possible with more funding.

“What we do is unique and I think that has helped us,” Abell notes. “Funders understand that the economic impact is very real, and they really support what we do.”

Another goal is the creation of an association of eco-friendly cleaning cooperatives through which WAGES can provide ongoing technical assistance and training. Currently, cooperatives © Jason Steinberg become independent of WAGES when the cooperative has achieved financial stability, typically after three years of operation. All cooperatives still participate in a peer leadership program, but they are otherwise quite independent.

The existing cooperatives have continued to thrive as demand for environmentally friendly housecleaning services grows. Especially successful is Emma’s Eco-Clean, which opened in Redwood City in “Being the owners gives them a powerful sense of 1999 and has pride in the work. They see cleaning as a profession grown to a and something to be valued. It’s nothing to be membership of ashamed of, even though it is sometimes looked 18 women. In down on in our society.” 2005, it grossed more than $600,000, and its members enjoy health and dental insurance and three weeks of paid vacation annually.

“Emma’s,” says Abell, “is our shining example of what’s possible.”

137 INCREASING CHALLENGES step toward establishing credit and gaining access to other important serv- IMMIGRANTS’ ACCESS Immigrants are significantly less likely ices, such as inexpensive wire transfers TO FINANCIAL than native-born residents to use finan- for sending money to family members cial services and have regular contact abroad. SERVICES with banks and other formal financial institutions. Research by the Brookings Institution shows that immigrants are about 20 percent less likely than U.S.- ELEMENTS OF PROMISING born residents to have a saving or PRACTICES checking account, and that they also have less access to home mortgages, In recent years, banks, government business loans, and other banking serv- regulators, and community organizations ices that support economic mobility.12 have paid increasing attention to the growing immigrant population in their For low-income immigrants, gaining access to For low-income communities. In many cities, collaborative affordable financial services represents an immigrants, efforts are underway to expand newcom- gaining access important step towards achieving self-sufficiency ers’ access to mainstream financial serv- to affordable and economic integration. ices. These efforts seek to increase the financial services capacity and responsiveness of financial represents an institutions to immigrants and educate important step towards achieving self- them about available financial services. sufficiency and economic integration. Activities include: Without access to mainstream banks, immigrant families often turn to check • Developing financial institutions’ cashers, predatory lenders, and other language capacity and cultural familiar- “fringe” financial service providers ity with immigrant communities so that whose high costs can easily drain these they can provide accessible services. families’ limited income and savings. Opening a bank account is also the first • Helping financial institutions develop products and services that will meet the needs of immigrant customers.

• Urging financial institutions to develop appropriate loan criteria for immigrants who have relatively little formal credit history but can often demonstrate credit worthiness in other ways. © Jupiter Images 12. While these generalizations apply to immigrants as a group, there are significant variations among their use of financial services. Their access to these services differs based on a number of factors, including their education level, income, length of residency in the United States, immigration status, and financial practices in their native countries. See generally Singer, Audrey, and Anna Paulson. 2004. Financial Access for Immigrants: Learning From Diverse Perspectives. Washington,D.C.: Brookings Institution.

138 80%

70% Immigrants 60% Native-Born

50%

40% SOURCE:

% who own Paulson, Anna, Audrey Singer, 30% Robin Newberger and Jeremy Smith. 2006. Financial Access for Immigrants: Learning from Diverse Perspectives. Chicago and 20% Washington, D.C.: Chicago Federal Reserve Bank and The Brookings Institution. 10%

0% Savings Checking Own home Asset Figure 1: Financial Activities of Immigrant and Native-born Heads of Households

• Educating financial institutions about acceptable forms of alternative ALTERNATIVE IDENTIFICATION DOCUMENTS FOR identification documents for opening new accounts. Many undocumented ESTABLISHING BANK ACCOUNTS immigrants and some legal immigrants Under the U.S.A. PATRIOT Act, of applying for legal status and have have difficulty opening bank accounts banks must collect certain identifying yet to obtain authorization to work in because they do not have traditionally information from their customers the U.S. required identification documents, i.e., (e.g., name, address, and tax identifi- driver’s license and a Social Security cation number) and verify their identity. To verify identity, most banks require number (see box below). Typically, banks require their customers customers to provide a state-issued to provide a Social Security number driver’s license or identification card. • Educating immigrants about U.S. to be used for reporting interest and However, PATRIOT Act regulations financial services (e.g., the services other financial information to the fed- also allow banks to rely on photo offered by banks and credit unions), as eral government. But for non-U.S. cit- identification documents issued by well as helping them develop financial izens, federal regulations specifically foreign governments. The most well- planning skills that can lead to home allow banks to rely upon an Internal known of these documents is the purchases, college savings, and other Revenue Service-issued individual tax- Mexican “matricula consular” card financial goals. payer identification number (ITIN). which is issued by Mexican consulates to individuals of Mexican nationality The promising practices described below The ITIN allows people who are not who live abroad. According to the range from modest efforts—helping eligible for a Social Security number Mexican government, as of 2005, banks develop multilingual workforces to file tax returns. While many people more than 400 banks allowed the and providing immigrants with basic who use an ITIN are undocumented, use of the matricula card to open information about financial services—to the identification number is also used bank accounts. more ambitious, multi-sector efforts to by individuals who are in the process change the behavior of both new immigrants and financial institutions so that they can develop mutually beneficial relationships.

139 DIVERSIFYING THE WORKFORCE services. The Institute is designed to INCREASING IMMIGRANTS’ OF FINANCIAL INSTITUTIONS prepare students for a career path and ACCESS TO MAINSTREAM advance into management positions. FINANCIAL SERVICES Minneapolis Community and Technical Students who complete an associate College’s Financial Careers Institute degree can then pursue a BA and an FDIC’s New Alliance Task Force Minneapolis, Minnesota MBA at Metropolitan State University. Chicago, Illinois www.minneapolis.edu/cect/financial Although open to the public, the careers.cfm Institute targets newcomers from the More and more banks have begun to Latino, Somali, and Hmong communities, recognize the financial benefits of work- In 2003, Minneapolis Community and and many of the referrals come from the ing with the rapidly growing immigrant Technical College (MCTC), U.S. Bank, two community partners. As a result, market. The New Alliance Task Force and two community organizations— the partnership has increased workforce (NATF) of the Federal Deposit Insurance Goodwill Easter Seals and Project for diversity at local banks, while giving Corporation (FDIC) has successfully Pride in Living—formed a partnership newcomers and other residents the skills tapped into this interest by helping to help financial institutions develop needed to begin or advance careers in numerous banks open their doors to a more diverse workforce to serve the financial services. immigrants through financial education community’s growing immigrant popula- programs, effective outreach, and finan- tion. The partnership has two program With funding from the Minnesota Job cial services that meet immigrants’ components: (1) an associate degree Skills Partnership, MCTC also provides unique needs. Many of the innovative program to train low-income residents training to U.S. Bank employees on cul- practices developed by NATF have been and immigrants who are interested in tural diversity, banking principles, and adopted by financial institutions across becoming financial professionals, and Spanish. As of early 2006, 38 U.S. Bank the country. (2) a model program to help existing bank employees had participated in this pro- employees learn cultural and language gram and learned Spanish vocabulary Originally started by the Chicago office skills to improve their communication that is commonly used in the banking of the FDIC and the Consulate General with immigrant customers. industry, e.g., basic greetings and help- of Mexico, NATF eventually became a ing customers open bank accounts and broad coalition of over 60 banks, com- To support these programs, MCTC formed conduct other simple transactions. munity organizations, and government the Financial Career Institute within the Participants who have completed the agencies interested in increasing immi- college to offer a certificate or associ- program are now successfully serving grants’ access to financial services. The ate degree in banking and financial Spanish-speaking customers. Task Force has a two-pronged education goal: (1) to inform immigrants of the workings and benefits of utilizing the U.S. banking system, and (2) to provide financial institutions with information on how they can serve immigrant customers.

With so many immigrants in Chicago and the Midwest without the identification documents typically required by banks, one of the first efforts under-taken by NATF was to educate its members about documents acceptable under the U.S.A. PATRIOT Act for opening bank accounts.13 Some of the members, for instance, were surprised to learn that federal laws do not prohibit banks from providing services to undocumented immigrants. As the U.S. Office of the Comptroller of Currency stated: “Banks are not an arm of the immigration department. As long as those getting [services] meet the requirements of being authorized bank customers, including proper ID, it would be discriminatory not to service them.”14 © Jupiter Images

13. See “Alternative Identification Documents” sidebar on page 139. 14. Bergsman, Steve. 2005. “Banks are Quietly Wooing Undocumented Immigrants.” US Banker, June. 140 When NATF was first formed, many financial institutions were unfamiliar with both ITINs and the matricula identification card issued by the Mexican government.15 But the presence of federal regulators on the Task Force helped reassure banks that they could indeed rely on such documents to meet federal banking requirements.

Recognizing that banks could be motivated to provide financial services to immigrants, some NATF members helped develop model bank products to attract new immigrant customers. For example, two members of the Task Force—Second Federal Savings and Loan and First Bank of the Americas—were among the first community banks in the country to accept the matricula card and to

develop low-fee remittance services © Jupiter Images using dual-use ATM cards that allowed both immigrants in the United States and their family members abroad to of Chicago also launched its own finan- to families who were previously shut out withdraw money directly from a U.S. cial education program in Spanish, of the home-buying market.19 bank account. In addition, 18 NATF using ATMs donated by local banks to member banks in the Midwest currently train immigrants on banking technolo- Michael Frias, NATF national coordinator, participate in “Directo a México,” a gies. attributes the project’s success to its pilot program of the Federal Reserve timeliness and its ability to bring a Bank of Atlanta and the Banco de The combination of educating banks and broad cross section of the community México to provide a cost-effective alter- immigrant communities about the together to address shared interests. native to expensive wire transfers to mutual benefits of working together has “Market forces—a large and rapidly significantly growing immigrant population and increased new- banks’ need to expand their markets— The combination of educating banks and immigrant comers’ access provided strong incentives for busi- communities about the mutual benefits of working to mainstream nesses to participate,” says Frias. “But together has significantly increased newcomers’ banks in the the broad range of participants gave us access to mainstream banks. Midwest. For the capacity to bring banks and differ- example, out of ent immigrant communities together in Mexico. NATF also developed a model approximately 400 banks nationally that mutually beneficial ways.” The Task loan product that could be used by accept the matricula,16 a high number Force’s success has led to the creation individuals who pay taxes with an ITIN, are in this region, resulting in numerous of similar FDIC-led projects in New York along with specific guidance on how new accounts opened by immigrants.17 A City, Boston, Austin, Los Angeles, banks should evaluate the credit worthi- survey undertaken by the FDIC found Kansas City, as well as in the new immi- ness of people without a Social Security that, since 2003, at least 185,000 bank grant destination states of Iowa and number or traditional credit history. accounts with deposits totaling over North Carolina. $300 million have been opened in eight At the same time that they worked with Midwestern states by customers using banks, Task Force members also under- alternate forms of identification.18 The took campaigns to educate the new- Task Force’s model mortgage product 15. Ibid. 16. Grow, Brian. 2005. “Embracing Illegals.” comer community about using financial has also been widely adopted by a num- Business Week, July 18, 56-64. services. In collaboration with commu- ber of banks, with newspaper accounts 17. Frias, Michael. 2004. “Linking International Remittance Flows to Financial Services: Tapping nity organizations, churches, community suggesting that it has generated hun- the Latino Immigrant Market.” Supervisory Insights. colleges, and financial institutions, the dreds of millions of dollars in new loans Volume 1, Issue 2, Winter. Washington, D.C.: Federal Deposit Insurance Corporation. FDIC created Money Smart, a Spanish- 18. Interview by Ted Wang with Michael Frias, FDIC language adult financial education cur- Community Affairs Officer, Chicago Region. Mar. 29, 2006. The eight states are Illinois, Wisconsin, riculum made available to 10,000 immi- Indiana, Missouri, Nebraska, Iowa, and Kansas. grants in Illinois. The Mexican Consulate 19. Reynolds Lewis, Katherine. 2005. “Banks Find Mortgage Clientele in Undocumented Immigrants.” Newhouse News Service, March 14.

141 DEVELOPING IMMIGRANT- From the start, the credit union recog- SERVING FINANCIAL nized that the largest barrier to serving Latino newcomers was their lack of INSTITUTIONS access to identification documents, i.e., Cooperativa Comunitaria a Social Security number and a driver’s Latina de Credito license, which are required by almost all The Latino Community banks. To succeed, the credit union Credit Union needed to identify alternative docu- Durham, North Carolina ments that were both acceptable to www.cooperativalatina.org federal regulators and could be easily obtained by immigrants, including Established in 2000, the Latino undocumented individuals. With cooper- Community Credit Union has become ation from federal regulators, the credit a national model for developing full- union became a regional leader in service, immigrant-based financial insti- demonstrating how ITINs and matricula tutions. In 2006, it had over $31 mil- cards can be utilized in opening accounts lion in assets, offices in five cities, and for newcomers. At all five branch offices, more than 43,000 members, making it the cooperative’s staff spends consider- the fastest-growing credit union in the able time explaining to new members United States. how to apply for and utilize ITINs and © Jupiter Images the responsibilities of this decision, Although the credit union was originally The credit union’s CEO, Luis Pastor, including paying taxes and filing started with grants and assistance from attributes its success to a number of yearly returns. factors: the rapid population growth of other institutions, it has developed a Latinos in North Carolina, many of The cooperative also has been a strong financial track record. State whom were unable to open accounts at national leader among credit unions in regulators have recognized it as among traditional banks; the vision of the developing alternative criteria for evalu- the most reliable credit unions in the credit union’s founders to build a finan- ating the credit worthiness of individu- state.21 Its bad-loan rates are better cial institution whose mission includes als who do not have traditional credit than comparable credit unions that do providing community services; and histories. It provides a range of con- not serve undocumented immigrants.22 financial and in-kind help provided by sumer loan products as well mortgages As of 2005, only about 10 percent of its numerous local institutions that value to people who do not have Social revenues came from grants, and the the contributions of newcomers to Security numbers but do have ITINs. credit union expects that its programs the state. and services will soon be completely In addition to traditional banking services, supported by business revenues. “Our initial supporters,” says Pastor, the credit union provides low-fee remit- “understood that access to banking tance services and emphasizes community “We have demonstrated that helping services is a critical step to integrating education. It offers bi-monthly financial immigrants access financial services is education classes not only good for the community, but it “We have demonstrated that helping immigrants on how to write also makes good business sense,” says Pastor. To help other communities access financial services is not only good for the checks, manage benefit from its experience, the Latino community, but it also makes good business sense.” bank accounts, use ATMs, develop Community Credit Union is working with ”Its members emerging credit unions in Tennessee, immigrants into their new communities.” also have access to free financial coun- Oregon, and California to provide similar Key supporters that helped the credit seling services on topics such as credit services to new immigrants. union open its doors included the problems and taxes. Its English-Spanish Center for Community Self-Help, a lead- financial education curriculum is widely ing community lender that has histori- used by local community organizations cally focused on African-American and and adult education schools serving low-income communities, the State immigrants. 20. Foundation supporters have included The Employees Credit Union, the North Stewards Fund, Z. Smith Reynolds Foundation, National Credit Union Foundation, Carolinas Credit Carolina Minority Support Center, and Union Foundation, Community Development a number of foundations.20 Financial Institutions Fund, National Endowment for Financial Education, American Express Foundation, and Ford Foundation. 21. Perez, Evan. 2003. “Banking on Immigrants.” The Wall Street Journal, May 9. 22. Interview by Ted Wang with Luis Pastor. December 18, 2005.

142 USING TAX SERVICES © Jupiter Images INCREASE FAMILY AND CREDITSTO INCOME citizens inthe future. tion status ortheir abilitytobecome a taxcredit couldaffecttheir immigra- complex taxrules and fearthatclaiming tion, including trouble understanding possible reasons for their lowparticipa- native-born residents. credits at amuch lowerrate than that eligible immigrants utilizetax dependents. However, studies suggest United Statesand are claimed as line. this credit were liftedabovethe poverty than 20million taxpayerswho claimed In 2003,aboutone quarter of the more boost income for working-poor families. the largest federal program thathelps boost their household income. EITC is Child Tax Credit (CTC)—can substantially Earned Income Tax Credit (EITC) and the claim twocommon taxcredits—the properly completetheir taxreturns and Helping eligible immigrant families PRACTICES ELEMENTS OFPROMISING Tax Credit status, are eligible toclaimthe Child dents, regardless of their immigration requirements. Inaddition, U.S.resi- EITC ifthey workand meet the income Many legalimmigrants canqualify for 23 24 if their children liveinthe 25 There are many services to low-income immigrants. the taxfiling process. shops to help newcomers understand responsibilities astaxpayers. to inform immigrants of their rights and newcomers. ous community organizations thatserve credits through the ethnic media. include: found insuccessful outreach programs CTC programs. Some of the key elements immigrants’ participation inEITC and as kitstohelp localgroups increase describing promising practices aswell have developed writtenmaterials Center onB Community Tax Coalition for Economic Progress’ National benefit. Two organizations—the Center tax credit programs and how they can increase immigrants’ understanding of and taxpreparation programs to tions havedeveloped effectiveoutreach and community development organiza- In recent years, anumber of immigrant target immigrants. tax preparation and financial service programs that moderate-income taxpayers, including toolsfor free mote taxcredit opportunities that benefit low-and policy advocacyand technical assistance topro- 26. Withover500affiliates, the coalition provides Urban Institute. the EarnedIncomeTax Credit? 25. Phillips, Katherin Ross. 2001. statuses tobenefit from the program. thereby allowing newcomers of various immigration an Individual Taxpayer Identification Number, Security number, the CTC canbeclaimed byusing dependents claiming the credit haveavalid Social EITC, which requires thatthe personand hisorher they earned more than$11,000in2005.Unlike the 24. Immigrant workers may qualify for the CTC if up to$4,400. married parents in2005)are eligible for acredit of levels ($35,263for single parents and $37,263for children and earning belowthe federally defined Institution. Forinstance, workers withtwoor more Communities. of theEarnedIncomeTax CreditinImmigrant 23. Berube, Alan.2005. • Providing free tax-preparation • Offering financial and taxwork- • Developing multilingual materials • Providing taxinformation tovari- • Promoting public awareness of tax Washington, D.C.:Brookings udget and Policy Priorities— ¿Tienes EITC? AStudy Washington, D.C.: 26 and the Who Knowsabout 143 A PROMISING PRACTICE EHCDC programs include:

East Harbor Community Development • Outreach through the Spanish- Corporation language media and community organi- Baltimore, Maryland zations about tax requirements and www.ehcdc.org available services.

East Harbor Community Development • Tax workshops in Spanish to help Corporation (EHCDC) provides a range of Latino immigrants learn how to accu- promising programs to assist low-income rately file tax returns using both SSNs immigrant families. Supported by grants and ITINs, understand EITC and CTC eli- from the Annie E. Casey Foundation, gibility, and avoid predatory tax prepar- Goldseker Foundation, and the Internal ers. Revenue Service, EHCDC has developed a • Free tax-preparation services by project that increases community aware- bilingual accountants and IRS-certified ness of tax laws among low-income, volunteers who are supervised by expe- Spanish-speaking residents. rienced staff. According to Lourdes Montes, manager In 2006, EHCDC helped more than 200 of EHCDC’s Latino Services, “The goal is Spanish-speaking families file tax not only to provide tax preparation serv- returns and obtained ITINs for over half ices but also to empower these families of these families. In actively encourag- by helping them learn about the tax ing immigrant families to file tax process so that they can eventually file returns, regardless of their immigration returns by themselves.” Montes notes status, EHCDC not only emphasizes that there are few tax-preparation immigrants’ responsibilities but helps to resources available to newcomers, and put hundreds of thousands of tax-credit many existing services are operated by dollars back into the local community. unscrupulous proprietors who have limited knowledge of tax laws and often exploit immigrants through high fees and predatory practices.

144 EVALUATION

In order for immigrants to integrate • Percent of immigrant business • Percent of qualifying immigrants into their new environment, it is owners who belong to the local or who purchase cars and homes (see for important for them to have decent- ethnic chamber of commerce or mer- example “Moving to America-Moving paying jobs, understand the U.S. eco- chant association (e.g., Hispanic to Homeownership 1994-1996” report nomic system and how to navigate it, Chamber of Commerce, Asian by the U.S. Census Bureau). and gain access to opportunities that American Hotel Owners Associations). improve their economic stability and • Number and percent of immi- mobility. • Extent of economically revitalized grants who are aware of and claim areas due to new immigrant-owned EITC and CTC each year. As this section described, there are businesses. many ways to improve immigrants’ • Percent of immigrant clients economic mobility, from enhancing • Number of jobs created by immi- served by banks and real estate agen- their employment prospects to grant-owned businesses for both cies (data can be obtained through an increasing their access to financial immigrants and non-immigrants (data arrangement with local banks, credit services and tax credits. Such efforts can be obtained from the Small unions, and real estate agencies). can result in a wide range of out- Business Administration). • Numbers of immigrants participat- comes within both the immigrant and • Number and percent of immi- ing in policy advocacy campaigns that the receiving community. grants who open savings and check- pursue “win-win” solutions for immi- The following indicators, associated ing accounts (data can be obtained grant and receiving community mem- with outcomes above, can help deter- through an arrangement with local bers. mine if your efforts to improve the banks and credit unions). • Positive attitudes about immi- economic mobility of immigrants are • Distribution of immigrants across grants and their contributions to the succeeding: occupations (e.g., construction, local economy, as indicated by press • Number and percent of immi- accommodation and food services, coverage or opinion polling. grant-owned businesses (data can be professional and technical services, obtained from the Small Business agriculture) and levels (administrative Administration and the U.S. Census support, middle management, top Bureau). management).

145 EVALUATION

OUTCOMES For immigrants:

• Improved understanding and navigation of economic system.

OUTPUTS • Increased use of mainstream financial institutions. • More financial education programs for immigrants • Less dependence on predatory (e.g., tax credits, mortgage, vendors (e.g., payday lenders, small business loans, bank check cashers). accounts, direct deposits). • Increased small business • More loan programs for ownership among immigrants. immigrants. • Representation of immigrants in IMMIGRANT INTEGRATION • More organizations, a wider variety of occupations. such as CDCs, supporting immigrant entrepreneurs • Increased car ownership. and cooperatives, economic These outputs lead These outcomes encourage development, and affordable to the following • Increased home ownership. integration, housing development. outcomes, which in turn encourage • Increased employability of and as integration gradually occurs, • More advocacy efforts, e.g., these outputs to immigrants (better prepared become more these outcomes litigation and organizing, and skilled for jobs). widespread. will also become to win policy changes. For receiving community: more widespread. Increased number and diversity of vocational • Improved perceptions of training and job placement immigrant contribution to local programs for immigrants. economy and community.

• Language training programs • Non-discriminatory practices in linked to employment lending and real estate practices. opportunities and offered by more employers. • Expanded economic contributions of immigrants-as workers, • Improved enforcement of consumers, taxpayers, and fair practices in lending entrepreneurs-to the local and real estate. economies.

• Increased economic vitality of blighted neighborhoods, with SOURCES: greater availability of resources to all residents. Annie E. Casey Foundation. 2003. Family Economic Success: Building Strong Financial Futures for Families and Communities. Baltimore, MD: Annie E. Casey Foundation. Retrieved from http://www.aecf.org/initiatives/fes/fes/ on March 17, 2006.

Maytree Foundation. 2002. Integrating Immigrant Skills into the Canadian Economy. Toronto, Canada: Maytree Foundation. Retrieved from http://www.maytree.com/PDF_Files/ FulfillingPromise.pdf in March 13, 2006.

146 Promising Practices in Equal Treatment and Opportunity

“ rue opportunity requires that we all have equal access to the benefits, T burdens, and responsibilities of our society regardless of race, gender, class, religion, sexual orientation, or other aspects of what we look like or where we come from. Ensuring equal opportunity means not only ending overt and intentional discrimination, but also rooting out subconscious bias and reforming systems that unintentionally perpetuate exclusion. It requires proactive efforts to remake our institutions in ways that ensure fairness and inclusion.” —The State of Opportunity in America: Immigrants and Opportunity The Opportunity Agenda, New York, New York

INTRODUCTION 149

CREATING AN ENVIRONMENT TO PROMOTE INTEGRATION 150

EXPANDING ACCESS TO THE U.S. LEGAL SYSTEM 152 Legal Services to Low-Income Immigrants Language Access to the Judicial System Providing Interpreters in Less Frequently Spoken Indigenous Languages

ADVOCATING FOR EQUAL TREATMENT AND OPPORTUNITY 156 Challenging Anti-Immigrant Housing Laws Building Black-Brown Alliances to Fight Discrimination

PROTECTING THE RIGHTS OF LOW-WAGE WORKERS 159 Multiracial, Multi-sector Worker Organizing Geography-Based Worker Organizing

PROMOTING FAIR AND HUMANE LAWS AND POLICIES 162 National Advocacy Campaigns Connecting Local, State, and National Advocacy

ADDRESSING RACIAL STEREOTYPES AND BACKLASH 166

EVALUATION 168

147 148 INTRODUCTION he concept that equal treatment Laws and public policies can have Tand opportunity should be provided considerable influence on the ability to everyone is widely accepted in the of immigrants and their receiving com- United States. Yet this concept has munity to engage in an integration been always more of an ideal than a process. They can promote opportunity reality. Americans, at best, have been or place barriers in the way of aspira- consistently ambivalent about immi- tions. They can bring communities grants. While proud of the country’s together or reinforce people’s fears, immigrant heritage, they are often sus- stereotypes, and isolation. picious of new Policies that promote equal treatment and opportunity immigrants and Policies that promote equal treatment can help facilitate integration because they instill a uneasy about and opportunity, however, can help facilitate integration because they sense of fairness in the relationship between immigration. instill a sense of fairness in the rela- newcomers and the receiving community. Like immigrants tionship between newcomers and the who came before receiving community. They also make them, today’s newcomers face numerous immigrants feel welcomed and inspire challenges in securing equal treatment confidence that they will eventually and opportunity. Concerns about immi- become full members of their new gration levels and national security community. have led the federal government to adopt policies that are inconsistent This section describes funding strategies with core American values of equality, and promising practices that help immi- freedom, and opportunity. For instance, grants secure equal treatment and 1996 federal laws bar most legal immi- opportunity. They include: grants from federal benefits such as • Creating an environment to promote Food Stamps, Supplemental Security integration and community building. Income, and Medicaid. Federal law also • Increasing immigrants’ access to prohibits federally funded legal services legal and judicial resources. organizations from serving a significant segment of the immigrant community, • Challenging discriminatory practices severely limiting these individuals’ and promoting fair laws and policies. access to the judicial system and their • Protecting the rights of low-wage ability to protect their rights. In the workers. aftermath of the September 11, 2001 terrorist attacks, specific immigrant • Promoting fair and humane laws communities—primarily Arab Americans, and policies. Muslims, and South Asians—have come • Addressing racial stereotypes and under intense public scrutiny and hate violence. attack. Racial stereotypes, reinforced by government policies, have led to discrimination and even hate crimes against these community members. © Jupiter Images

149 CREATING AN NEBRASKA APPLESEED CENTER outpatient, prenatal care regardless of immigration status. ENVIRONMENT TO FOR LAW IN THE PUBLIC INTEREST • State-funded cash and food PROMOTE assistance programs for most legal INTEGRATION Lincoln, Nebraska immigrants who are ineligible for federal www.neappleseed.org public benefits.3 Nebraska is one of a small group of states that offer compre- Creating an environment that promotes hensive, state-funded health and social integration, including developing poli- service benefits to legal immigrants. cies that emphasize shared values and interests, is an important way to ensure • A Meatpacking Workers Bill of fair treatment of immigrants. An unlikely Rights in response to well-documented problems with unsafe work conditions. place where this has occurred is Nebraska, The Nebraska legislature passed a law, whose recent population growth has initiated by Governor Johanns in 2000, been driven by immigration. to increase state monitoring of meatpacking plants. The challenge has been to get people to think of immigrants not just as temporary workers for entry-level jobs, but as • Allowing undocumented students who have lived in the state for three long-term residents and neighbors… Only then do people years and graduated from a Nebraska start thinking of how to invest in this community and to high school to pay in-state tuition rates create programs that help integrate them into the state. at public higher education institutions.

• A Minority Justice Task Force that Newcomers have been drawn to works to ensure equal access to the Nebraska largely because of employment courts, beginning with an assessment opportunities, primarily in the meat- of the current system. packing and food-processing industries. Between 1990 and 2000, the state’s Nebraska Appleseed has been instrumental Latino population increased by 155 in developing many of these initiatives, percent and the Asian population by including co-chairing the immigrant 86 percent.1 As immigrants became a workforce task force, helping to develop larger part of the state’s workforce, the Meatpacking Workers Bill of Rights, Nebraskan leaders developed policies to and working with other allies to pass facilitate their integration, providing the in-state tuition law. Its success has increased access to education and other been due to a combination of favorable programs that enable immigrants to demographic and economic trends, as pursue their dreams and crafting other well as strategic advocacy to build initiatives to build stronger, more inte- broad-based support for newcomers. grated communities. These policies and programs include: Nebraska’s shrinking rural population and its need for new workers created an • A legislature-initiated Task Force opportunity for immigrant advocates to on the Productive Integration of the find common ground with businesses, Immigrant Workforce Population. With community leaders, and others who participation by business, law enforce- recognized that immigrants could play ment, labor, and government, the Task an important role in economic and com- Force made recommendations for devel- munity revitalization. The challenge, oping policies to facilitate newcomers’ according to Appleseed’s executive participation in the state’s workforce. Its report, released in 2002, found that director, Milo Mumgaard, has been to the state’s economy had greatly bene- “get people to think of immigrants not fited from immigrants’ contributions just as temporary workers for entry-level and made a series of recommendations jobs, but as long-term residents and to address the challenges of integrating newcomers into Nebraska’s communities. 1. Census 2000 data as compiled by Grantmakers • State-funded health insurance to Concerned with Immigrants and Refugees, available at www.gcir.org. most low-income, legal immigrants 2. See the “Promising Practices to Improve whose immigration status makes them Immigrant Health and Well-Being” section of the toolkit for details on immigrants’ eligibility for ineligible for federally funded health publicly funded health programs. programs.2 In addition, all pregnant 3. Ibid. women in Nebraska are eligible for 150 neighbors… Only then do people start • Advocacy projects that emphasize thinking of how to invest in this com- immigrants as hard-working individu- munity and to create programs that help als who want to integrate into the integrate them into the state.” community. These projects aim to protect immigrant workers from exploitation and Appleseed’s strategies to promote dangerous work conditions, increase immigrant-welcoming policies include: their access to higher education, connect them to mainstream financial systems, • Public messages that highlight and ensure their access to the judicial the contributions of immigrants. system. In addition, Appleseed is work- “We made a conscious decision not to ing with other organizations to estab- emphasize ’immigrant rights’ in our publish a regional presence through the lic messages because the term does not Immigrant Rights Network of Iowa always resonate in the state,” says and Nebraska. Mumgaard. “Instead, we stress the similarities between recent immigrants and Appleseed’s successful advocacy in European immigrants who settled and a politically conservative state with built Nebraska over the years. We also relatively little recent experience with try to demonstrate how expanding immigration suggests that its strategies opportunities for newcomers boosts can be used in other new gateways to opportunities for everyone.” Appleseed’s create policies that integrate and sup- public messages consistently underscore port the fair treatment of immigrants. immigrant workers’ economic contributions to the local economy. Its advocacy for programs that improve immigrants’ education, skills, and well-being are framed as investments that can lead to greater prosperity for the broader community. Watch the DVD • Relationships with mainstream Californians institutions and “nontraditional for Healthy Kids allies.” Appleseed’s public messages, Most of us agree that all children, focusing on the mutual benefits of regarless of their immigration status, immigrant integration, made it easier to deserve to be healthy. Be inspired by an develop support for immigrants from energetic and wide cross-section of grassroots and grass-tops stakeholders as mainstream institutions and leaders, they raise the long-term implica- including businesses, law enforcement tions—and the short-term urgency agencies, unions, physicians, political of universal health care for leaders, and educators. These groups every child. and leaders are more likely to help immigrants when they understand the long-term benefits for their own institutions or constituencies. According to Appleseed, mobilizing support from these different sectors has been critical to building support of legislative and other initiatives that benefit newcomers.

151 EXPANDING ACCESS nhancing immigrants’ understanding Eof their legal rights and responsibili- TO THE U.S. LEGAL ties, as well as their access to the U.S. FEDERAL SYSTEM justice system, is essential in achieving RESTRICTIONS ON immigrant integration. Immigrants’ lack EGAL ERVICES FOR of familiarity with U.S. customs and L S laws, as well as their limited English LOW-INCOME skills, makes them especially vulnerable IMMIGRANTS to exploitation as workers and consumers. Yet federal laws bar many government- Programs that receive funding from funded legal service providers from the Legal Services Corporation (LSC), serving a large and growing segment of the primary source of federal funding low-income immigrants (see sidebar). for providing legal services to low- Foundation funding in this area is income individuals, are allowed to especially important to ensure that serve only the following categories low-income newcomers have access to of non-citizens: information about their rights and • Lawful permanent residents (LPRs) responsibilities, as well as legal representation to protect these rights. • Refugees

Increasing new- • Asylees Foundation funding is important to ensure that comers’ access to • Persons granted withholding of low-income newcomers have access to information administrative and deportation about their rights and responsibilities, as well as legal bodies that • Conditional entrants legal representation to protect these rights. adjudicate immigration issues is • Trafficking victims especially important. Over the past • Lawful temporary residents under decade, the federal government has the SAW program of the Immigration made numerous changes to immigration Reform and Control Act of 1986 laws and policies. These changes, combined with an emphasis on enforcement, • Temporary agricultural workers have made it significantly more difficult (H-2A workers), but only with respect for immigrants to reunify with family to issues concerning their employment members or apply for citizenship. The • Individuals who have applied for passage of the Illegal Immigration adjustment to LPR status and who Reform and Immigrant Responsibility have a citizen spouse, parent, or child Act of 1996—with its mandate to deport • Domestic violence victims who do non-citizens who are found guilty of even not meet the criteria above, provided minor criminal infractions and to place that such services are supported by many immigrants in detention during non-LSC funds their removal proceedings—has been especially challenging for newcomers.4 Because of these restrictions, numerous immigrants are ineligible for federally In response, foundations can support funded legal service programs, including (1) programs that provide accurate legal those who are undocumented, persons information to help immigrants under- with temporary protected status, and stand their options when facing immi- those paroled into the United States gration or other legal problems; (2) for humanitarian reasons. expand the availability of free legal services to low-income newcomers, SOURCE: including those in detention or facing National Immigration Law Center.

to limited English proficient (LEP) 4. As this publication went to press, Congress immigrants. was debating various provisions that would further expand criminal convictions that can lead to deportation as well as mandatory detention for immigrants in deportation proceedings. See, e.g., HR 4437.

152 LEGAL SERVICES TO LOW-INCOME IMMIGRANTS

The Fund for New Citizens’ Community Legal Services Initiative New York, New York www.nycommunitytrust.org

A collaboration of local and national foundations, the Fund for New Citizens at the New York Community Trust has an initiative to increase the availability of legal services to immigrants in New York © Loren Santow City. Its strategy is to encourage part- William, an unaccompanied minor who fled Ecuador, received nerships between legal service organiza- legal assistance that helped him established a new life in tions and community-based, immigrant the United States. serving groups. The model increases the The Fund for New Citizens currently Building on the success of this initial capacity of immigrant organization to funds three projects that have partner- project, the Fund has supported several provide reliable information and advice ships between legal services groups and additional partnerships. It recently on basic immigration issues through immigrant community organizations. made a grant to a joint project between training and technical assistance from the Asian American Legal Defense and legal groups, which also provide direct The first project is a collaboration Education Fund and the Young Korean client representation as needed. formed in 2002 among the Legal Aid American Service and Education Center Components of this model include: Society and three community groups: to provide immigration, housing, and • Effective outreach. Immigrant- Asian Americans for Equality (serving other civil legal services for low-income serving organizations have the capacity the Chinatown and Lower East Side), Korean and other Asian immigrant popu- to provide timely information to targeted Forest Hills Community House (serving lations in Flushing, Queens. newcomers about changing laws, policies, Northwestern Queens), and the Northern and other important issues. Helping Manhattan Coalition for Immigrants The Fund also made a grant to the immigrants become informed of these Rights (mostly serving the Dominican Bronx Defenders, which provides free changes not only empowers them to population of Washington Heights). A criminal defense, civil legal, and social take advantage of their rights but can Legal Aid Society staff attorney over- services to indigent residents. While also help them avoid situations that can sees the project, providing ongoing not a formal collaboration, the Bronx result in adverse consequences. training and technical assistance, twice- Defenders is working closely with com- • Counsel from a familiar, trusted monthly case consultations to staff of munity and immigrant organizations, organization. Immigrants often do not the partner organizations, and monthly such as Families for Freedom and know where to go for reliable legal legal clinics at community sites for Northwest Bronx Community and Clergy advice, and many turn to immigrant clients whose cases require an attorney’s Coalition. It provides both immigration organizations when faced with legal expertise. Although the project focuses legal assistance and criminal defense to difficulties. These collaborations allow on immigration services, clients can minimize the immigration consequences community groups to respond directly also access other Legal Aid Society that can result even from minor charges. to such individuals and only refer them attorneys for assistance with other Typically, an immigration lawyer, a crim- to legal services organizations if situa- issues, such as housing assistance and inal defense lawyer, and the client work tions are complicated and may require access to public benefits. together so that the disposition of any legal representation. criminal charges is framed to protect “This is a tremendous service model • Linguistically and culturally the client as much as possible from that makes good use of limited legal appropriate services. Immigrant-serving deportation. For those clients who cannot resources and helps community organi- organizations have the linguistic and be insulated from immigration conse- cultural skills to serve newcomers and zations respond to critical needs,” says quences, the immigration lawyer continues can work with partnering legal service Jojo Annobil, staff attorney with the to represent the client in any deporta- organizations to ensure that they can Legal Aid Society. With the equivalent tion proceedings. communicate effectively with LEP clients. of one full-time staff attorney and three part-time community staff members, the project provided advice and representation to over 1,800 clients in 2005.

153 INCREASING LANGUAGE ACCESS quality standards that apply to courts interpreters be available in any hearing TO THE JUDICIAL SYSTEM across the state, monitor practices, and that is expected to last more than 2 help specific courts improve their lan- hours so that the interpreters can rotate, Oregon Judicial Department guage access when problems arise. It remain fresh, and avoid mistakes due Salem, Oregon also creates an economy of scale that to fatigue. increases fiscal and programmatic effi- www.ojd.state.or.us • Training for all court staff who ciency. OJD hires staff interpreters for have contact with the public, from the most commonly requested languages The State of Oregon is a leader in pro- judges to administrative clerks. The (Spanish and American Sign Language) viding LEP residents with access to its multi-faceted trainings provide informa- and makes these individuals available to courts. Oregon law requires that courts tion about how to best communicate courts in different with LEP individuals and how to utilize counties. The cen- If interpreters are not available, certain civil cases interpreters. OJD also offers trainings to tral office also has cannot be pursued, criminal cases cannot be attorneys through the state bar’s con- access to over 200 tinuing education program. prosecuted, and LEP victims will not be able to pre-screened con- seek resolution. All of us benefit when our tract interpreters. • Monitoring and Assessment. The judiciary operates smoothly and fairly—that’s the Individual courts Court Interpreter Services Office at OJD reason why courts need to be accessible. that need inter- monitors LEP individuals’ access to the preters for less court system and makes modifications commonly spoken to improve this access, as needed. In provide spoken-language interpreters for languages can simply call the centralized addition, OJD’s Access to Justice for All any LEP person who is party to a case schedulers rather than try to identify an Committee—consisting of department or who needs assistance in communicat- interpreter on their own. staff, judges, attorneys, and community ing with court staff. Interpreters are advocates—is charged with ongoing • High standards for interpreter provided in both criminal and civil assessment of OJD programs to improve services. These standards require: cases. In a typical year, Oregon’s court racial, ethnic, and gender equity, as • Judges to use a certified inter- system handles more than 25,000 well as language access, in the court preter if one is available. If a qualified requests for interpretation in almost system. interpreter is not available locally, OJD’s 150 languages. policy is to hire interpreters from out- • Collaboration with community The Oregon Judicial Department (OJD) of-town or even out-of-state if needed. and legal service organizations. OJD makes interpreter services available • In-person interpretation for court works with community organizations to hearings. Telephonic interpreters can be publicize the availability of language both inside and outside the courtroom. used only in non-evidentiary hearings services, recruit new interpreters, and The program’s effectiveness can be that are expected to take less than 30 provide training to court staff on LEP attributable to: minutes. communities. • Centralized interpreter services. • Multiple interpreters for extended Centralization allows OJD to set high hearings. OJD’s policy requires that two

FUNDERS CAN INCREASE IMMIGRANTS’ ACCESS TO THE COURTS BY SUPPORTING:

• Community advocacy to provide • Programs to recruit and train immi- Efforts that engage community court interpreters and language assis- grants to become court interpreters, groups, legal services providers, judi- tance to LEP immigrants. especially in less frequently spoken cial agencies, and other government languages. • Education projects to increase entities are especially promising in immigrants’ understanding of the • Development of new plans or proce- expanding immigrants’ access to the local judicial system and how to use dures for serving immigrants in the courts. it to protect rights. judicial system.

• Efforts to train judges and other • Documentation and dissemination court personnel about immigrant com- of promising practices. munities and how courts can increase access for newcomers.

154 PROVIDING INTERPRETERS IN LESS FREQUENTLY SPOKEN INDIGENOUS LANGUAGES

An estimated 40,000 indigenous people When qualified interpreters are protocols. It also has trained Spanish- from Mexico and Central America live unavailable, OJD uses a “relay” system English interpreters, judges, and in Oregon. Many of these individuals to provide interpretation to people attorneys to ensure that they under- are LEP and speak a number of differ- who speak an indigenous languages. stand how to make the best use of ent indigenous languages in which It is developing a cadre of interpreters this system in court. there are few, if any, qualified legal who can initially interpret from the interpreters. To address this challenge, indigenous language into Spanish. A Although the relay project was still Oregon Judicial Department (OJD) is Spanish-English interpreter then acts relatively new as of 2006, OJD officials undertaking several pilot projects. as a “relay” and interprets the infor- report that it has produced some mation into English. Recognizing the promising results and has made the The first involves a partnership with complexity of using two sets of inter- court system more accessible to the Oregon Law Center, a legal services preters, OJD provides extensive training people who speak Mixteco, Trqui, organization, to train indigenous to the indigenous language interpreters Zapoteco, Nahautl, Tarasco, Akateco, residents to become interpreters. on legal terminology and court and Kanjobal.

• Commitment from the judicial program manger of OJD’s Court leaders to make the courts accessible. Interpreter Services, “is that it makes it The scope of work described in this possible for courts to administer justice. section would not be possible without If interpreters are not available, certain support from Oregon’s judicial leaders, civil cases cannot be pursued, criminal including Supreme Court justices. OJD cases cannot be prosecuted, and LEP currently allocates almost $1.7 million victims will not be able to seek resolu- annually on its interpreter program. tion for crimes or other unlawful actions. This level of investment has increased All of us benefit when our judiciary the efficiency of Oregon’s court system. operates smoothly and fairly—that’s the “The primary benefit of providing inter- reason why courts need to be accessible.” preter service,” says James Comstock, © Jupiter Images

155 ADVOCATING FOR nsuring equal treatment of immigrants CHALLENGING ANTI- Eoften requires more than providing IMMIGRANT HOUSING LAWS EQUAL TREATMENT newcomers with access to legal services AND OPPORTUNITY or the court system. In situations where ACLU of Virginia government agencies or private businesses Richmond, Virginia mistreat large groups of newcomers, www.acluva.org class-action or impact litigation becomes an effective tool. It can protect immi- In December 2005, the City of Manassas, grants in many different settings and a Northern Virginia suburb, enacted an address a wide range of issues, including: ordinance that made it illegal for abusive workplace conditions, unpaid extended relatives-aunts, uncles, and wages, racial or ethnic discrimination, cousins-to live together as a family. denial of access to education and other Although city officials originally claimed public services, unfair immigration the new law was intended to address enforcement or detention practices, and overcrowding, several city council mem- prohibitions on day labor centers, bers also stated that they hoped to among many others. deter certain newcomers from residing in the city by addressing “problems The two examples in this section associated with people assumed to be illustrate several characteristics of legal illegal immigrants.”5 advocacy that are The American Civil Liberties Union of In many instances, we can stop unlawful policies becoming increas- Virginia publicly questioned the legality without litigation. But to do so, we need to have ingly common. Lawyers for immi- of this law and quickly began exploring the resources to pursue litigation in situations in grants frequently whether it could be overturned through which public agencies refuse to follow the law. coordinate with litigation. The ACLU had previously community advo- represented day laborers who had been cates to maximize their effectiveness by harassed by Manassas’ police force. working in both the legal and political “Given the context,” says Kent Willis, contexts. In addition, immigrant legal executive director of the ACLU of advocates are increasingly addressing Virginia, “it was fairly easy to see conditions that affect other disadvantaged through the city council’s justification communities, including African-Americans. for the law. This was about targeting Bringing these communities together the Latino community, not about through litigation or other activities can addressing overcrowding.” help them learn from each other’s expe- As it researched possible legal options, riences in fighting for equal opportunity. the ACLU worked with local housing and immigrant groups to mobilize public opposition to the ordinance. Two groups—the Equal Rights Center and Tenants and Workers United-helped educate Spanish-speaking residents of their rights and distributed fliers describing how they could fight the ordinance by putting pressure on the city to repeal the law. On January 4, 2006, shortly after the ACLU announced plans to file a lawsuit challenging the constitution- ality of the ordinance, Manassas sus- pended enforcement of the ordinance. Citing a 1977 Supreme Court decision, the ACLU convinced the city that the ordinance was an unconstitutional intrusion on the privacy rights of © Jupiter Images 5. Stephanie McCrummen. 2006. “Virginia City Suspends ’Family’ Rule,” The Washington Post, January 5. 156 families. Community observers initially feared the city would try to enact a narrower law. But as public opposition grew, the city council ultimately repealed the entire ordinance.

The ACLU’s role in successfully challenging the Manassas ordinance highlights how litigation can go hand-in-hand with community advocacy in protecting the rights of immigrants. The ACLU’s planned lawsuit gave community advocates an opportunity to mobilize opposition to the law and was the first step in convincing the city to change its policy. It also provides an example of how the threat of litigation from a credible © Jupiter Images source can help overturn discriminatory policies. race relations, and it demonstrates that, The impacts are profound, and the “In many instances, we can stop unlaw- with good leadership, newcomers and the disparities dramatic. Moore County, ful policies without litigation,” explains native-born can come together around according to the New York Times, is Willis. “But to do so, we need to have shared concerns despite seemingly home to 43 golf courses. The 2005 the resources to pursue litigation in sit- formidable barriers. United States Open, played on one of uations in which public agencies refuse these courses, was estimated to generate to follow the law.” In the Manassas The organizers of this transcontinental $124 million for the state.6 case, anticipated litigation from the collaboration include the Lawyers’ ACLU combined with mounting public Committee for Civil Rights, based in Many of the African-Americans living pressure led the city to reverse a dis- San Francisco, California Rural Legal in Moore County’s unincorporated areas criminatory policy aimed at discouraging Assistance with offices throughout the helped to build and provide services for immigrants from becoming residents. state, and the University of North the golf courses and the upscale hotels Carolina Center for Civil Rights in Chapel for which their county is famous. But Hill. A number of local grassroots they live in homes—though within BUILDING BLACK-BROWN organizations were also involved. miles of such affluence—where septic tanks leak and contaminate wells that ALLIANCES TO FIGHT In both Moore County and Modesto, serve as local water supply. In one case, DISCRIMINATION according to the civil rights activists, a natural water supply was dammed to local governments have manipulated Lawyers’ Committee for Civil Rights create a lake for a development in the their boundaries in discriminatory ways, San Francisco, California adjacent city. choosing to annex wealthier white sub- www.lccr.org divisions, where developers have some- Recognition of these common disparities University of North Carolina Center times paid for infrastructure. Adjacent prompted the cross-country dialogue for Civil Rights minority communities have been left as between North Carolina and California Chapel Hill, North Carolina unincorporated areas, in some instances that began with advocacy at the local www.law.unc.edu/centers/ existing as islands within the geographical level. In Modesto, residents represented boundaries of the city. by the Lawyers’ Committee filed a vot- About 2,800 miles separate Latinos in ing rights lawsuit seeking, among other Modesto, California and African-Americans Technically outside the city’s legal things, greater political empowerment in Moore County, North Carolina, but a jurisdiction and under county control, for the Latino community. Moore County common struggle for civil rights is the unincorporated areas are denied residents began by organizing the bridging this divide. basic services such as sewage, side- African-American community around walks, street lights, and police and fire advocacy with local officials. Using the common cause of discrimination protection. Unable to vote in municipal in the allocation of municipal services, elections, residents of these areas civil rights organizations have brought cannot hold elected officials directly together the two groups to share ideas, accountable. Yet they remain subject to build relationships, and develop solu- land use and zoning laws of the adja- tions to the shared struggles they face. cent municipalities. Their story may be one of the most long-distance efforts to foster positive

157 The California and North Carolina civil rights groups encouraged discussions between the two communities. The residents decided to meet, and the Ford Foundation made a modest travel grant to make the meetings happen. Following an exploratory session in North Carolina, the groups held two meetings, one in

Modesto and one in Moore County, © Lawyers’ Committee for Civil Rights where they gathered to discuss the African-Americans and Latinos together. issues and develop joint strategies. In a joint press conference and a meeting with public representatives, residents of Both meetings were marked by productive the two communities urged local officials public attention and strong relationship to provide essential municipal services building. Following a tour of the and not wait to be sued-as had happened affected Latino neighborhoods in in Modesto. Modesto, a front-page article appeared in the Modesto Bee describing the “The sense of empowerment that the transcontinental meeting and detailing Modesto residents felt while advocating the residents’ concerns. Before she left the interests of their colleagues from North Carolina was palpable and quite “ couldn’t sleep last night; I kept overwhelming to witness,” says Robert Ithinking about the problems you Rubin, legal director for the Lawyers’ confront. We may speak different Committee for Civil Rights. The empowerment was moving for both groups. languages, but I see you and I know you now.” Their lawyers deserve credit for recognizing that common conditions could for home, Moore County resident Carol bridge a vast cultural and geographic Frye Henry stood before the group and divide: newcomers and native-born explained how she felt her path was Americans, Latinos and African-Americans, intertwined with the Latinos’ struggle Californians and North Carolinians. for justice. Language barriers existed, Working together, these two communi- she acknowledged, but “I couldn’t sleep ties have succeeded in attracting local last night; I kept thinking about the and national press attention, motivating problems you confront. We may speak one another to maintain their relation- different languages, but I see you and ships and sustain their advocacy. Their I know you now.” joint efforts have provided an inspiring example of immigrants and African- The second meeting, two months later Americans bridging their differences in Moore County, generated the front- while building their communities. page article in The New York Times cited above, describing the conditions that county residents live under and the practice, known as “municipal under- bounding,” that had brought the © Lawyers’ Committee for Civil Rights

6. Dewan, Shaila. 2005. “In County Made Rich by Golf, Some Enclaves Are Left Behind,” The New York Times, June 5, sec. A. 158 PROTECTING THE he recent growth of immigrants in • Services to help low-wage and Tthe U.S. workforce has occurred pri- immigrant workers become self- RIGHTS OF marily in low-wage industries in which sufficient, including legal services to LOW-WAGE worker protections and opportunities for help workers collect unpaid wages or career advancement are limited. Immigrant address unsafe work conditions, ESL WORKERS workers who hold low-wage jobs are and citizenship classes, job counseling, especially susceptible to exploitation health information or services, and since most have limited English skills assistance with identification docu- and a growing number are undocumented. ments and opening bank accounts. Adding to their challenges is the decline • Advocacy to change employer of institutions that have historically behavior or public policies. This played important roles in integrating includes campaigns to raise wages or and protecting immigrant workers, such improve working conditions by specific as fraternal organizations and settlement employers or in an entire industry houses. Moreover, many immigrants through public education, legislative work in sectors, such as day labor and advocacy, pickets, economic boycotts, domestic work, that currently lack union and other advocacy activities. Worker representation. centers also organize against anti- immigrant activities at the local level Over the past decade, a new type of and in support of immigration policy organization known as “worker centers” reform at the national level. And they has emerged to specifically address the advocate on a wide range of issues that needs of the growing population of low- affect immigrant integration, from wage workers in the United States. access to education, housing, and health Reflecting the growth of this population, care to addressing discrimination. the number of centers has increased • Organizing and leadership from approximately 25 in the mid-1990s development. Worker centers support to more than 140 as of early 2006.7 the development of development so that workers can take action on their own Worker centers can be ethnic-based, behalf to improve economic conditions faith-based, or industry-based. According or engage in community advocacy. to a recent survey,8 most centers engage Through organizing and leadership in a variety of activities to help their development, immigrant workers have constituents: successfully mounted, for example, union organizing drivers and economic boycotts to improve wages and work conditions.

By engaging in these wide-ranging activities, workers centers help ensure that low-income immigrants are treated fairly by government, employers, and other institutions, and that they have the opportunity to contribute and participate in their communities. © Thai CDC

7. Steven Greenhouse. 2006. “Immigrant Workers Find Support in Growing Network of Assistance Centers,” The New York Times, April 23, sec. A. 8. Janice Fine. 2005. Worker Centers: Organizing Communities at the Edge of the Dream. Washington, D.C.: Neighborhood Funders Group.

159 •Recovery of unpaid wages or back low-income workers who run up large pay for minimum-wage violations for medical bills reduce or eliminate their hundreds of workers, including day debts. To date, TWU has helped unin- laborers. sured, low-income families eliminate $1 million in medical debts. TWU campaigns typically involve allies in labor unions, faith-based institu- These various activities have had a tions, and community groups. For exam- large impact in improving the lives of ple, TWU jointly operates the Campaign immigrant workers in Northern Virginia. for Housing and © La Escuelita Worker Justice “We are all from different countries and our English MULTIRACIAL, MULTI-SECTOR with the Mid- is broken and nobody understands us. But the workers WORKER ORGANIZING Atlantic Region of Unite Here. The center was willing to listen to us. They provide us Tenants & Workers United goal of this cam- expertise. They provide us a lawyer. They support us.” Alexandria, Virginia paign is to press www.twsc.org local jurisdictions to protect and expand Mulugeta Yimer, a taxi driver from affordable housing and living-wage jobs Ethiopia who originally came to TWU for Tenants & Workers United (TWU), in Northern Virginia. help with a wage dispute, describes why formerly the Tenants’ & Workers’ Support he has remained an active member of Committee, seeks to build the power of TWU also has a nationally recognized the organization: “We are all from dif- low-income people of Northern Virginia project that works to increase uninsured ferent countries and our English is bro- for racial and economic justice. Using families’ access to health care, including ken and nobody understands us. But the both geography- and sector-based linking low-wage workers and their fam- workers center was willing to listen to organizing strategies, TWU primarily ily members to free preventive medical us. They provide us expertise. They pro- organizes African-American workers and services, such as tests for blood pres- vide us a lawyer. They support us.”9 immigrant workers from Central and sure, HIV, and diabetes. TWU staff helps South America, East Africa, and South Asia. It provides organizational support, leadership development, and financial resources for these workers to carry out effective organizing campaigns that have led to:

• The enactment of the first living- wage law in Virginia in 2000. In 2003, the broad-based coalition led by TWU won additional living-wage laws covering all county and school employees, along with hundreds of private employees in Arlington County.

• An increase of 70 percent in the wages of several hundred publicly funded contract child care workers in the City of Alexandria. © Jupiter images • A revision of taxi regulations in the City of Alexandria to allow independent taxi drivers—predominantly East African and South Asian immigrants—to keep more of their fares and to change companies. TWU is currently helping drivers form their own company.

• Public funding for day labor site in Fairfax County, Virginia.

9. Steven Greenhouse. 2006. “Immigrant Workers Find Support in a Growing Network of Assistance Centers,” The New York Times, April 23, sec. A.

160 GEOGRAPHY-BASED • Restaurant Workers Justice Based on worker surveys, KIWA esti- WORKER ORGANIZING Campaign. KIWA initiated this mates that the total wages paid to campaign in response to numerous Koreatown restaurant workers have Koreatown Immigrant workers’ complaints about exploitative increased by tens of millions of dollars Workers Alliance work conditions in local restaurants, in the six years since reaching the set- Los Angeles, California including health and safety violations tlement with KROA. As a follow-up to www.kiwa.org and failure to pay minimum wage, over- its work on wage enforcement, KIWA time, and workers’ compensation. A U.S. recently initiated a Restaurant Health Founded in 1992, the Koreatown Department of Labor investigation in and Safety Campaign to train employers 1998 substantiated these claims, find- Immigrant Workers Alliance (KIWA) and workers on how to improve safety ing that 97 percent of the Koreatown helps develop leadership and promote in their workplace. the empowerment of Korean and Latino restaurants were in violation of labor laws. low-wage immigrant workers in Los Angeles’ Koreatown, where 40 percent To address these KIWA has assisted over 10,000 low-wage workers in of the residents live below the federal problems, KIWA resolving workplace disputes and helped them claim poverty line. trained workers an estimated $10,000,000 owed in unpaid wages. at individual Working in a community whose economy restaurants to is dominated by service jobs in restau- confront employers over abusive and • Fair Share Campaign. Building upon rants, supermarkets, garments factories, illegal work conditions; filed lawsuits its work with restaurant workers, KIWA and other retail businesses, KIWA imple- against specific restaurants challenging has also tried to improve the working ments a variety of programs and strate- egregious labor law violations; organ- conditions at large Korean-owned super- gies to help low-wage immigrant work- ized targeted boycotts; and publicized markets by organizing the workers and ers advocate on their own behalf and these work conditions through town- putting public pressure on these busi- engage in strategic coalitions to win hall meetings and stories in the media. nesses to pay a decent wage. In 2005, broad systemic change on behalf of After years of confrontation with a KIWA reached an agreement with four immigrant workers at both the local supermarkets that agreed to pay a number of Koreatown restaurants and and state levels. minimum wage of $8.50 an hour and to the Korean Restaurant Owners raise this starting wage annually based • Workers’ Rights Clinic. The clinic Association (KROA), the KROA agreed on the Consumer Price Index. The offers low-income workers advice, repre- to work with KIWA to change industry agreements resulted in a $1.2 million sentation, and referrals on employment practices and established a Labor issues, with a focus on wage-and-hour increase in wages for more than 400 Mediation and Arbitration Panel—con- Koreatown supermarket workers and claims. Over the past 13 years, KIWA sisting of respected members of Korean has assisted over 10,000 low-wage demonstrated how living-wage campaigns American community—to resolve labor workers in resolving workplace disputes can be used in the private sector to disputes in Koreatown restaurants. and helped them claim an estimated improve working conditions. $10,000,000 owed in unpaid wages. In addition to mounting its own campaign, KIWA works closely with other worker centers and helped found the Multi-Ethnic Immigrant Workers Organizing Network (MIWON). One of the first multi-ethnic networks of workers centers, MIWON connects KIWA and other members to legislative and policy issues at the state and national level and mobilizes support for specific campaigns, such as changes to labor or immigration policies. Other members of MIWON include the Garment Worker Center, Pilipino Worker Center, Southern California Institute for Popular Education, and the Coalition for Humane Immigrant Rights of Los Angeles. © Koreatown Immigrant Workers Alliance © Koreatown Immigrant Workers

161 NATIONAL ADVOCACY PROMOTING FAIR “ e are at a pivotal point in the CAMPAIGNS AND HUMANE LAWS W history of the immigrant rights AND POLICIES Immigrants of all backgrounds have per- movement in the United States: a sonal stakes in the ongoing immigration movement that could well shape the reform debate. In 2006, their common future of this country… Whatever bill desire for a solution to the problems of does or does not emerge from the the current system and for expanded pathways to full membership in American Congress, foundations can be part of society was made clear, as millions of building not just a stronger immigrant immigrants across the country marched rights movement, but also a more and rallied in support of comprehensive deeply engaged citizenry for social immigration reform. justice in the U.S. and the world.” Notwithstanding the passage of any —Taryn Higashi immigration reform measures, the Deputy Director, Human Rights underlying factors that have made Unit, Ford Foundation immigration a strong focus of national debate, such as an aging native-born population and the need for foreign- Coalition for Comprehensive born workers, will remain a central issue Immigration Reform (CCIR) for the United States now and in the CCIR was established in 2004 with the foreseeable future. Yet concerns about singular purpose of winning comprehensive the high volume of immigrants, combined immigration reform. The origin of the with worries about national security, campaign arose from growing consensus will continue to create a counterforce Watch the DVD across the political spectrum that the Sentence Home: for restricting immigration. Introduction current immigration system is failing to Cambodian refugee Many Unch grew In response, national and regional respond to changing economic and up in a tough Seattle neighborhood and coalitions are adopting a variety of social realities. wound up serving time in prison. Although approaches to advance immigration he paid his debt to society, he will One fundamental problem is the lack of reform and to promote equal treatment be deported to a country he fled as a legal channels for low-skilled immigrant child two decades ago. Find out and opportunity for immigrants. While workers to enter the United States even what will happen to Many, his they may differ in style and strategy, though there is high demand for such wife, and their young from building an immigrant youth workers.10 The result is a growing undoc- children. movement at the grassroots to building umented population estimated to be a political campaign in the halls of approaching 12 million. While these Congress, these groups point to the immigrants are fueling the country’s critical need to have a strong immigrant economy, many are living in the shadows voice in the national debate on of society and are subject to exploitation immigration policy. in the workplace and beyond. The huge backlog in family visas means that most immigrants must wait for years if they want their family members to immigrate through legal channels.

“The bottom line is the immigration system is broken,” says Maria Echaveste, a lecturer at the UC Berkeley Boalt Hall School of Law who helped in the formation of CCIR.

A number of non-profit advocacy groups initially came together to advocate for

© Koreatown Immigrant Workers Alliance © Koreatown Immigrant Workers reforms in the immigration system, but because they were 501(c)(3)s, their lobbying activities were limited. CCIR was set up as a 501(c)(4) with an 18-

162 month, $3-million grant from Atlantic Philanthropies, which is based in Bermuda and therefore not subject to the restrictions of U.S. tax laws. In 2005, the foundation gave a second grant of $4 million over two years.

“Atlantic Philanthropies was persuaded that with some serious investment, we could mount a legislative campaign,” Echaveste says. “Not to build an institution like what others were doing, but a campaign to get something through Congress.”

One of the legislative goals is to provide

undocumented immigrants already in © AP Photo/James Crisp the United States a path towards permanent residency. Another goal is to “The absence of the grassroots voice conservative,” says Yun. “We needed to clear the immigration backlog and in DC was an obvious major problem, move that constituency. The best way reunite families. and the fact that the field wasn’t coor- to do that was through the voice of the dinated,” says Son Ah Yun, FIRM youth.” CCIR’s campaign attempts to marry a co-director. Many local groups, in shifting constituency-based grassroots strategy their focus from services to advocacy, Another piece of FIRM’s campaign is to with old-fashioned inside-the-Beltway “were screaming to be organized,” build electoral capacity in community lobbying, involving community-based she adds. groups around the country, some of organizations, unions, churches, and which had never gotten involved in businesses. “The expertise required to After a two-year planning process and electoral politics. This year, FIRM, dance in the legislative halls of Congress a strategic decision that the campaign through the Center for Community is sorely needed,” Echaveste says. “How would be grassroots-led, FIRM was Change’s 501(c)(4) arm, plans to target we’re able to translate that out in the launched in 2004. It was also decided some Congressional elections in Arizona field is one of our challenges.” that addressing the issue of undocumented to test immigration as a campaign immigrants was a necessary component issue. Arizona was chosen because it is For Atlantic Philanthropies, it was all of the campaign. such a hotbed state, “where it’s in your quite simple. Acting on a conviction face all the time, and a place that has that immigrants were a population Although national immigration reform is set the stage for a lot of immigrant ini- without full access to the rights they its ultimate goal, FIRM decided to start tiatives,” Yun says. deserve, the foundation decided that with smaller, interim campaigns. “We going through Congress was the best knew the immigration fight would be a The Center for Community Change, way to make change. long fight, three to five years,” says which houses FIRM, receives funding Yun. “In order for us to engage in that from a diverse array of foundations for “It’s a federal debate,” says Rebecca fight, we needed to build our base. We its immigration-related work, including Rittgers, a programme executive for needed to have a winnable issue so that Carnegie Corporation of New York, the Reconciliation and Human Rights at we can sustain the base.” John S. and James L. Knight Foundation, Atlantic Philanthropies. “To make lasting and the Akonadi Foundation. change, you have to make legislative FIRM has thrown its support behind changes.” the DREAM Act, which seeks to provide Role of Local and State undocumented high school graduates Immigrant Organizations Fair Immigration Reform who came to the country as minors and Movement (FIRM) who have lived here for at least five Critical to both campaigns are input years an opportunity to apply for legal from and involvement of regional and FIRM, a project of the Center for status and eventually become permanent state-level immigration groups around Community Change, grew out of the legal residents if they go to college or the country that are fighting battles in blistering defeats immigrant advocates serve in the military for a required their own jurisdictions to protect exist- experienced in 1996 with the passage amount of time. ing immigrants’ rights and win new of welfare and immigration legislation ones. With their experience in struggles that severely eroded immigrants’ rights. “We decided who we needed to move over securing, for example, driver’s was Middle America, non-immigrant folks, African-Americans, whites, and 10. Rob Paral. 2005. “No Way In: U.S. Immigration even some immigrants who are pretty Policy Leave Few Legal Options for Mexican Workers,” Immigration Policy in Focus, Volume 4, Issue 5. July. 163 licenses, in-state tuition, and health coverage for immigrants, state immigration coalitions contribute important ideas to national campaigns.

Beyond sharing strategies, immigration coalitions are active partners in the national campaigns, with most participating in both CCIR and FIRM. While the two campaigns have different approaches, “each of the networks has value,” says Maria Rodriguez, executive director of the Florida Immigrant Coalition.

The Evelyn and Walter Haas, Jr. Fund is funding several national organizations © Nebraska Appleseed to coordinate consensus-building and activities with local groups. The goal, says Henry Der, senior program officer at CONNECTING LOCAL, STATE, says Michele Lord who heads up the Haas, is “to help make the immigration AND NATIONAL ADVOCACY Four Freedoms Fund, a national funding movement more effective.” collaborative. “Equal treatment and Regional immigration coalitions have opportunity are fundamental to an Looking ahead to Implementation emerged as the best-and often most immigrant’s ability to contribute fully to experienced-vehicles for coordinating our society. Philanthropy has to invest Der adds that very few groups have advocacy strategy. Not only do they in organizing and advocacy to bring started to look at the nitty-gritty of engage local immigrant groups and about systemic change.” how reform policies will be implemented. connect them to national campaigns, State Policy Battles “What will be the rights of undocumented they also take the lead in organizing newcomers at the local and state levels, immigrants if they came out of the With anti-immigrant sentiment gaining where policies can either facilitate or shadows of society?” he wonders. “What momentum, much of the work is defen- hinder immigrant integration. are their rights before an administrative sive, and it takes a substantial amount court or court of law? A lot of work Given the absence of national immigrant of time and resources to counter per- remains to be undertaken. To date, the integration policy, state and local sistent attempts by legislators and policy debate has been very dominant. governments have considerable power to officials to take away rights. But even if we got enlightened policies affect immigrants’ ability to become part signed into law, there’s going to be a “I think we have to play defensively in of their new community. For example, they ton of work to administer and monitor the short term, but we have to build have the authority to determine immi- how well the new laws in this area may the vehicles in the long term,” says grants’ access to health care and the be carried out.” Maria Rodriguez of the Florida Immigrant availability of ESL, citizenship classes, Coalition, founded in 2002. “We want to and education programs to Implementation is where the rubber create the vehicles that can transport support immigrant families. will meet the road. Regardless of their the ideas and get things done. It doesn’t philosophical differences, national In recent years, state and local debate matter if it’s local or state or federal.” advocacy groups, statewide immigrant on immigration issues has become rights coalitions, and local immigrant In a new gateway state, the Tennessee increasingly focused on hot-button organizations will all need to play a Immigrant and Refugee Rights Coalition issues: drivers’ licenses for undocumented significant role to ensure that the rights (TIRRC), formed in 2001, is emerging as immigrants, location of day labor centers, of immigrants are protected. an important player, locally and nation- in-state college tuition for undocumented ally. TIRRC scored a major victory for students, and the enforcement of immi- immigrants’ rights when it won drivers’ gration laws by local police forces. licenses for undocumented immigrants “We’re investing in building the capacity in 2001. But three years later, a new of immigration coalitions across the bill was passed essentially creating a country because they are so crucial to two-tier system, with drivers’ licenses protecting the rights of immigrants, especially in today’s hostile environment,”

164 available only to citizens and lawful as well. Many cities have tried, for But Tsao is also quick to point out that permanent residents and “drivers’ cer- example, to restrict the rights of day the passage of the in-state tuition bill tificates” for others. “That bill was a laborers and use housing ordinances to and other immigrant-friendly legislation turning point for many groups,” says evict undocumented immigrants. owes a great deal to support from TIRRC director David Lubell. African-American legislators. For example, in Nashville last year, “Drivers’ licenses seemed such a numerous nuisance complaints led a city “African-American elected officials, from fundamental issue across the state,” council member to introduce a resolution Jacqueline Collins in the State Senate to he says. “That was the point where prohibiting day laborers from soliciting Danny Davis and Bobby Rush in Congress, Tennessee moved away from just being work on the sidewalks. TIRCC swung have an empathy for and solidarity with a service provision type of atmosphere into action, mobilizing day laborers and other minority groups,” he says. “Their into one in which groups started recog- persuading the council member to seek appreciation of the need for multi-racial nizing the need for other types of action.” a different solution. “It took months of coalition building really comes across.” work of building trust in the community TIRRC has since gone onto numerous to convince the day laborers to come to In an effort to influence public opinion other legislative battles, most of them meetings and speak out,” Lubell says. in a new growth state, TIRCC launched a also defensive, including fighting bills Eventually, the council member reversed statewide “Welcoming Tennessee” cam- to prevent undocumented immigrants his position and withdrew his bill. paign, based partly on a similar effort from receiving any public services and in Iowa, to aggressively educate residents one turning state officials into immigra- Putting a Human Face on Immigration about the contributions immigrants tion enforcers. make to society. One of the simplest yet most powerful Even in Illinois, a “blue” state, the effort strategies for winning the critical battle “There are a lot of misconceptions about to win drivers’ licenses for undocumented for public opinion is to humanize the immigrants being spread by local talk immigrants has been a long, and so far, issue of immi- unsuccessful struggle. Variations of a gration, some- bill creating drivers’ certificates have thing that local “African-American elected officials have an empathy been introduced in both houses of the groups are well- for and solidarity with other minority groups. Their state legislature, but none have passed. positioned to appreciation of the need for multi-racial coalition do. Americans building really comes across.” “National security is still a huge concern,” who are far says Fred Tsao, policy director of the removed from Illinois Coalition for Immigrant and their own immigrant roots are more apt show hosts, state legislators, even the Refugee Rights (ICIRR). “There’s still a to buy into the anti-immigrant rhetoric KKK,” says Lubell. “We don’t want to be very deep ambivalence with respect to if they don’t understand who immi- playing defense forever. The campaign the undocumented, and what are we grants are and how they are contribut- in Iowa really helped change the going to do with them. That did come ing to the local community. atmosphere.” out in the floor debate.” Perhaps the best examples of this type The Tennessee campaign involves Local Policy Battles of work emerge out of advocacy efforts training immigrants and having them for the DREAM Act and in-state tuition travel throughout the state to meet In addition to raising awareness of bills, where numerous youths have put with local groups such as churches, undermine immigrants’ rights, immigration a human face to the immigration policy Rotary clubs, and chambers of commerce. coalitions must battle municipal measures debates. Their inspiring stories have Lubell says they have won over numerous moved lawmakers and the public to allies, including local business groups, sympathize with the challenges faced by and a media plan is in the works. A key young immigrants and to remove barriers part of the education, he points out, is that prevent them from pursuing allowing people to meet with immi- their dreams. grants themselves and see that “they have similar aspirations, hopes, For example, an in-state tuition bill was and dreams.” easily passed in Illinois in 2003 largely because students themselves took the lead. “Some were incredibly charis- matic,” says Tsao. “They put a very nice, friendly face on this whole issue.”

165 ADDRESSING RACIAL mmigrants from South Asia-India, South Asian American IPakistan, Bangladesh, Sri Lanka, Nepal, Leaders of Tomorrow (SAALT) STEREOTYPES AND and other countries in the region-have Silver Spring, Maryland BACKLASH faced considerable challenges since the www.saalt.org September 11, 2001 attacks. Like many Americans, South Asians were shocked SAALT was a volunteer organization with by the attack, and many felt vulnerable members primarily on the East Coast at and concerned about terrorism. But the time of the September 11th attack. South Asians also had to deal with the But its leadership anticipated the likely backlash that followed the attack, backlash against South Asians and including targeted federal surveillance quickly formulated a response. Within and immigration enforcement policies, weeks of the attacks, SAALT released a as well as hate crimes, from harassment report entitled “American Backlash,” and assault to murder. which compiled bias incidents during the period immediately following Even after the initial wave of attacks September 11th. The report, which was subsided, South Asians continued to widely covered in the media, found that face suspicion and discrimination in over 600 incidents of bias against South workplaces, schools, airports, and other Asians and Arab-Americans occurred in settings.11 Immigration enforcement the just the first week following the policies, such as the Special Registration attack. These documented incidents led program targeting immigrant men pri- numerous elected officials and other marily from South Asian and Middle leaders to quickly recognize the scale Eastern countries,12 resulted in mass of the backlash and to take steps to detention and deportation that tore address the violence. many South Asian families apart. When hate violence against South This section highlights the work of two Asians continued to persist, SAALT of the many South Asian organizations launched a national campaign in early that have provided important leadership 2002 to raise public awareness on during this difficult period. Located on addressing discrimination against South opposite coasts but with similar missions, Asians. A key component was a 26- both groups have demonstrated how minute documentary entitled “Raising relatively small, ethnic-based organiza- Our Voices: South Asian Americans tions play a critical role in helping new- Address Hate,” along with a companion comers respond to discrimination and guide. Consisting of vignettes of the unfair treatment, as well as in dispelling experiences of hate-crime survivors and stereotypes and misinformation about the response of community activists, the their community. film provided an important visual tool for understanding the impact of the post-September 11th backlash. The companion guide contained background information on hate crimes, demographic information on South Asian communities, and ideas for using the film for public education and action. These included specific suggestions for how local officials should monitor and respond to hate crimes, as well as taking steps to reduce their occurrence.

11. See National Asian Pacific American Legal Consortium. 2002. Audit of Violence Against Asian Pacific Americans: Tenth Annual Report. Washington, D.C.: National Asian Pacific American

166 The documentary has been widely used by local South Asian community groups and has been shown in over 150 public venues to students, educators, law enforcement officials, legislators, and the general public.

SAALT has emerged as a leading South Asian civil rights group that continues to address hate crimes and discrimination issues. But with increased capacity, it has also developed projects to build coalitions among and between South Asian organizations; conduct govern- mental and legislative advocacy on civil and immigrant rights issues; and facilitate civic participation and leadership development through its membership and various community empowerment © Tennessee Immigrant & Refugee Rights Coalition © Tennessee programs.

South Asian Network (SAN) In 2004 and 2005, more than 10,000 • Cultural sensitivity trainings. The Artesia, California South Asians participated or had been trains target government and service www.southasiannetwork.org assisted by one or more of SAN’s providers, including law enforcement following programs: and first responders, to improve their SAN was originally founded in 1990 understanding of the South Asian • Community outreach and with the mission of promoting health, community and address racial profiling education. Through a variety of South empowerment, and solidarity of South and stereotypes. Asians in Southern California. Like Asian cultural, religious, social, and SAALT, SAN also had to respond to commercial venues, outreach and educa- • Creation and facilitation of numerous incidents involving hate tion activities inform and organize support groups. These groups are for crimes or discrimination in the months community members on issues related domestic violence survivors who are actively engaged in educating their following September 11th. SAN engaged to immigration, detention/deportation, communities about the rights of abused in broad community education both to domestic violence, hate crime, civil liberties, employment and housing rights, women and defying cultural norms and inform local South Asians of their rights police abuse, and preventive health. values that limit women’s options. and to dispel the general public’s widely held stereotypes of this community. • Services and advocacy. SAN provides Although not always related to addressing counseling, legal advocacy, and health racial stereotypes and backlash, these The challenge, according to Hamid Khan, care services and referrals to assist affirmative activities have empowered SAN’s executive director, has been to victims of hate crime, consumer fraud, a growing number of South Asians to move beyond these reactive activities housing and employment discrimination, speak up, participate in community and “organize in an affirmative way to and domestic violence. advocacy, and interact with other com- counter this climate of fear” in the South • Community mapping. San utilizes munity members, reducing the potential Asian community. “While fear can lead this tool to assess the South Asian com- isolation experienced by South Asian to isolation and fragmentation,” says munity’s needs and to organize commu- immigrants. These collaborative efforts Khan, “there is also an opportunity for nity members to speak out and address will strengthen relationships with other South Asians to recognize their common their self-identified issues. communities that can help South Asians concerns and form coalitions among challenge and overcome unfair or dis- themselves and with other marginalized • Organizing and advocacy for criminatory treatment in the long run. communities to work on shared goals and tenants’ and workers’ rights. This work aspirations.” SAN has launched a large addresses issues affecting renters, taxi outreach campaign to address issues workers, gas station attendants, affecting community members while While fear can lead to isolation and fragmentation, and domestic helping these individuals become civically there is also an opportunity for South Asians to workers. engaged in advocacy and organizing. recognize their common concerns and form coalitions among themselves and with other marginalized communities to work on shared goals and aspirations.

167 EVALUATION

Equal treatment and opportunity in outputs and outcomes shown in the areas such as education, health care, figure. Note, however, that indicators employment, and housing, among of these outputs and outcomes should many others are critical to immigrant be tailored to the specific issue for integration. Evaluation of programs which equal treatment and opportu- that promote equal treatment and nity is required (e.g., tenant rights, opportunity should focus on the worker rights, access to the courts).

OUTPUTS OUTCOMES

• Creation of advocacy organ- • Increased awareness and asser- izations or development of tion of rights among immigrants. capacity in existing efforts. • Increased collaborative among • Hiring of staff and/or immigrants and native-born allies consultants with relevant around common advocacy issues. expertise (e.g., legal, community • Increased awareness and knowledge IMMIGRANT INTEGRATION organizing, advocacy). of opinion leaders about issues • Active engagement of affecting immigrant integration. immigrants and native-born in • Increased dialogues about specific campaigns. These outputs help immigrant integration in the public These outcomes bring about the out- encourage integration, • Identification and mobiliza- arena. comes, and as the and as integration tion of related networks and outcomes occur, these • Increased multi-sector task gradually occurs, resources. outputs also become forces and advocacy efforts. these outcomes will more widespread. also become more • Culturally sensitive train- • Increased public support for policies widespread. ings of local officials and promoting immigrant integration. representatives. • Identification and/or consolida- • Development and public tion of resources for supporting dissemination of accurate and immigrant integration. credible knowledge on policy matters relating to integration. • Introduction and passage of supportive legislative and adminis- • Strategic legislative trative policies. campaigns, organizing efforts, impact litigation cases, and • Expanded access to resources and other advocacy initiatives. opportunities for immigrants.

There are several ways to tell if the advocacy, capacity to build coalitions • Amount of private and public outcomes have occurred, such as: and multi-sector and multiracial funds allocated to efforts that alliances, strong public communications promote immigrant integration • Percent of immigrants who ability, and capacity to build alliances opportunities. understand and have asserted their with organizations and elected repre- rights (e.g., percent of immigrant • Number of votes for a proposed sentatives not typically interested in employees who know how to file a local or state legislation related to or supportive of immigrant-related complaint if discriminated against, or immigrant integration. issues. who have participated in an advocacy • Number, quality, and reach of campaign). • Review of media coverage on the policies passed that promote equal- issue (e.g., placement of article in • Number and effectiveness of opportunity treatment and immigrant the newspaper, tone of the article, organizations advocating on behalf integration. i.e., positive, negative, or neutral or immigrants, including ability to response to the issue). engage immigrants actively in

168 Promising Practices in Social and Cultural Interaction

“ ocial and cultural interaction between immigrants and established Sresidents creates the cross-cultural understanding that helps all community members gain a level of comfort with one another and widens their appreciation for all cultures. It shifts everyone’s attention to commonalities that can unite, rather than differences that can divide. This is especially important for improving the relationship between immigrants and African-Americans, two communities often pitted against one another in the perceived and real competition for jobs and other resources.” — Sandra Smith Community Research and Grants Management Officer The Columbus Foundation, Columbus, Ohio

INTRODUCTION 171

PORTALS IN THE TWO-WAY PROCESS 172 The Role of Museums in Immigrant Integration

CREATING GREATER AWARENESS OF “INVISIBLE” COMMUNITIES 175 The Central Indiana Community Foundation

BUILDING BRIDGES BETWEEN AFRICANS AND AFRICAN-AMERICANS 177 The KIACA Gallery in Columbus, Ohio

CREATING COMMUNITY ACROSS CULTURES 179 The Power of Personal Narratives

GROWING COMMUNITY ROOTS 182 The Boise Community Garden Project

CULTURAL INTEGRATION THROUGH THE ARTS 184 The Tamejavi Festival in California’s Central Valley

PROGRAM EVALUATION 186

169 170 INTRODUCTION ur nation of immigrants has always • Raise questions, share concerns, Obeen a culture of many cultures. The and engage in a dialogue. Ongoing two-way integration process, in which honesty and candidness, though some- the cultures of newcomers are valued times difficult, are critical to creating as they learn the traditions of their authentic relationships. Concerns about adopted country, is not one of dilution immigration, race, and other tough or loss but one that enriches the fabric issues should be addressed head-on. of the receiving society. • Build on the commonalities, but Culture plays a significant role in address the differences. The focus should defining our identity and worldview. be on helping participants identify shared For newcomers, culture is the primary interests and create shared experiences. frame that shapes their interaction with At the same time, there should always other newcomers and with established be willingness to constructively address residents in their new community. This differences that arise along the way. interaction can occur anywhere and everywhere, such as the park, community • Establish trust and work together center, school, and grocery store. However, on common issues. Effective programs such interaction will not likely happen not only help build trust over time but or be meaningful without programs that also help participants find common intentionally bring people from different ground. The goal should be to engage cultural backgrounds together. stakeholders in joint problem solving and other efforts to strengthen the This section highlights diverse approaches overall community. that promote social and cultural interaction. These approaches share many fea- Whether people are sharing stories, making art, or viewing performances or © Eduardo Stanley tures that help lay the groundwork for building mutual understanding and trust exhibits, these programmatic features across cultures, including opportunities are essential to facilitating meaningful for people from different backgrounds to: interaction and exchange. Well-developed programs, over time, can lead to outcomes • Share accurate information about such as improved understanding and the cultures involved. Accurate infor- trust across cultures, reduced prejudices mation, combined with frank discussions, and misperceptions, formation of cross- can eliminate misunderstanding and cultural relationships, and collective misperceptions that create barriers to action on communitywide issues. integration and community building. The case-study examples in this section— • Get to know one another as ranging from something as simple and individuals. Over time, such human accessible as a community garden to connection is highly effective at breaking major multi-year festivals and multi- down harmful stereotypes about particu- million-dollar museums—incorporate lar ethnic/racial groups or cultures. many of the programmatic features out- lined above. By bringing together immigrants and native-born, they serve as powerful vehicles to integrate newcomers into the social and cultural fabric of their communities. Foundations looking for integration opportunities in which to invest should consider projects that promote cross-cultural interaction and exchange as a promising pathway to successful immigrant integration. © David Bacon

171 PORTALS n 1863, Lucas Glockner invested PROMOTING TOLERANCE AND A I$8,000 to build a tenement on a HISTORICAL PERSPECTIVE IN THE TWO-WAY single-family lot in Lower Manhattan’s PROCESS East Side. He moved into one of the The Museum has documented such apartments with his family, and over the details for 1,300 former residents of the next 72 years, some 7,000 newcomers to THE ROLE OF MUSEUMS tenement, bringing their stories to hun- America did the same, immigrants from dreds of thousands of visitors annually— IN IMMIGRANT 20 countries. both on site and online. Authentically INTEGRATION decorated apartments—the look, the Since 1988, when Glockner’s former lighting, the clothing, even the smells— home at 97 Orchard Street became the help highly trained docent educators to www.tenement.org Lower East Side Tenement Museum, the humanize this American narrative, pur- www.cambodian-association.org stories of many of these new Americans suing the Museum’s mission “to promote www.theaanm.org have been brought back to life in the tolerance and historical perspective same tiny apartments they once occu- through the presentation of the variety pied. of immigrant and migrant experiences When her husband Julius left for on Manhattan’s Lower East Side, a work one morning and never returned, gateway to America.” Nathalie Gumpertz, a Jewish immigrant Tolerance and historical perspective are from Prussia, bought a sewing machine promoted by many other Museum pro- and ended up supporting three daughters grams. Current immigrants learn English by making dresses for neighbors. The in classes that use memoirs, diaries, and Rogharshevsky family from Lithuania letters of earlier newcomers; graduates filled their three rooms with their six develop guides for other participants. children—girls bedded in the kitchen, Native-born audience members are boys on the front couch—while father invited to tell the stories of their immi- Abraham worked until his death from grant ancestors to improvisational actors, tuberculosis as a presser in a garment who turn anecdotes into on-the-spot shop. The Sicilian Baldizzi family weath- theater presentations. Collaborations ered the Great Depression at 97 Orchard: with other institutions engage immi- Adolfo, who had been a fine woodworker grant youth in writing and performing in Italy, walked the streets with his original plays and offer training in toolbox in search of odd jobs. the museum profession for immigrant adults. The Lower East Side Community Preservation Project, launched by the Museum, brings together diverse residents to select, preserve, and interpret local historic sites. © Alan Batt Rogarshevsky kitchen with a view of the parlor, Tenement Museum 172 “Museum science has changed because The cross-cultural connection goes back of Ruth Abram,” says Sunny Fischer, 30 years to the Jewish Federation’s executive director of the Chicago-based resettlement help with newly arrived Richard H. Driehaus Foundation. Fischer Cambodian refugees. The relationship visited the Tenement Museum during blossomed as fundraising for the a Ford Foundation event on the museum got underway. As Kompha Seth, International Coalition of Historic Site executive director of the Cambodian Museums of Conscience. “The power of Association of Illinois, recalls, “I said the place was palpable,” she says. I only had $300 in the bank. And a “People actually lived here. The funder Jewish donor gave me a $5,000 chal- in me saw the intelligence, the smart- lenge grant that started the building fund, ness of connecting history to what is and within two weeks, we had $30,000.” happening today.” Some 70 percent of the multimillion dollar Campaign for Hope and Renewal Fischer invited Abram, who has since came from the Jewish community.1 become a friend, to speak to Chicago funders. One of the many initiatives that got a boost from the example of the Tenement Museum was Chicago’s Cambodian American Heritage Museum and Killing Fields Memorial, a project of the Cambodian Association of Illinois.

© Greg Scaffidi The first in the United States, the 95 Orchard, Tenement Museum Cambodian American Heritage Museum offers cultural exhibits, arts events, and a curriculum to teach high-school students HEALING, CELEBRATION, AND about Cambodian-American history and THE CROSSING OF CULTURES culture. Its Killing Fields Memorial, a cathartic act of communal healing, will The Tenement Museum is a portal in the eventually inscribe on 80 glass columns two-way process of immigrant integration, the names of as many as 4,000 Cambodian bringing the newly arrived together with genocide victims, all relatives of the native-born descendants of the once Cambodian families who have resettled newly arrived, animating their common © Cambodian American Heritage Museum in the Chicago area. heritage, fostering dialogue and interaction. Guided by the vision of Ruth J. “A people who forget the past and who Abram, its founder and president, the don’t take account of their history can- PREJUDICE AND PRIDE, Museum has played a leading role in the not build a future,” says a prominent DISTINCTION AND LOYALTY development of such civic consciousness Cambodian leader. in ethnic museums around the Ethnic museums have opened all across Cambodian-American refugees in Chicago United States. the United States from California to are building a future by bearing witness Connecticut, including seven in Chicago, to the stories of their horrors, sharing 25 in New York City, three in Detroit. those stories with the wider community. The newest Detroit entry, opened in The pride engendered in the Cambodian 2005 and also a first in the nation, is American community through its the Arab American National Museum, fundraising efforts has been accompanied developed by the Arab Community by an extraordinary connection with Center for Economic and Social Services Chicago’s Jewish community. “This was a (ACCESS) in Dearborn, Michigan. product of a community trying to coa- Similar pride in accomplishment, and lesce and deal with its own issues,” says similar story telling to cross-cultural Nikki Stein, executive director of the Polk barriers, have accompanied this open- Bros. Foundation. “But a number of Jewish ing. Since September 2001, the public families and foundations participated… you just can’t look at the Cambodian community and not see your own.”

1. Kushner, Aviya. 2005. “Donors Open Pockets for a Cambodian Museum.” Forward, January 7. © Cambodian American Heritage Museum Killing Fields Memorial, Cambodian American Heritage Museum 173 narrative about Arab Americans has been considerably distorted by stereotyping and prejudice. The Museum’s aim is to tell the true and quite diverse story of the accomplishments and contributions of immigrants to America from Arab countries. The $16-million campaign, which was accompanied by a six-month process in which a planning team gathered ideas from Arab-American communities, created 38,500 square feet of exhibits, classroom space, auditorium, and library.

Exhibits at the Arab American © Arab American National Museum National Museum display the cultural Arts program at the Arab American National Museum contributions of Arab nations throughout history, from the everyday life of American National Museum humanizes Arab Americans to the work of famous “American hyphenation” in a war-on- politicians. In the words of New York terror America in which the “other” can Times critic Edward Rothstein, “ like be so readily demonized, the Tenement other museums of American hyphen- Museum reminds us ation,” it is “at once an assertion of that one way to difference and belonging, a declaration “The Museum is a testament to the diversity in 2 combat dehumaniza- of distinction and of loyalty.” this country, and the contributions made by tion is to acknowl- immigrants who continue to arrive on this soil.” “The Arab American National Museum is edge the hyphen in a door opener for southeast Michigan us all. and the world,” adds Brenda G. Price, One of those who died on September community liaison program officer at 11 at the World Trade Center was Frank the John S. and James L. Knight Reisman, a great-great-grandson of Foundation. “It offers insight into Nathalie Gumpertz, the woman who the Arab culture, its integration into turned to dressmaking when her hus- American culture, and the valuable con- band disappeared on the Lower East tributions made by members of the Arab Side in 1874. As part of the memorial community over many generations. The to the family that started its American Museum is a testament to the diversity journey at 97 Orchard Street, Mr. Reisman’s in this country, and the contributions story has been incorporated into the Watch the DVD made by immigrants who continue to Tenement Museum’s Gumpertz tour. Mohammad: arrive on this soil.” Legacy of a Prophet: In the words of the Driehaus The Bazzy Family The dynamic integration process that Foundation’s Sunny Fischer, “How Some young second-generation immi- weaves America’s receiving society with can one help but be moved.” grants are questioning the “assimilation” its newcomer population incorporates of their parents, opting to openly embrace the difference, the belonging, the dis- their religious or ethnic identities. Watch what happens when a concerned father tinction, the loyalty. The country’s many learns that his teenaged daughter ethnic and immigrant museums—portals has decided to don the in the two-way process—model integra- traditional hijab. tion as they enhance it. As the Arab

2. Rothstein, Edward. 2006. “A Mosaic of Arab Culture at Home in America.” The New York Times, October 24.

174 CREATING GREATER hat makes a community great is Wthe ability to embrace everyone “ don’t view myself as a leader. AWARENESS OF and give them the opportunities to II view myself as a concerned “INVISIBLE” share the gifts, talents, and treasures individual who wants to make a posi- COMMUNITIES they bring to enrich and strengthen tive difference in his community. Too our community.” many times, we label people and put THE CENTRAL INDIANA Ralph Taylor, program officer at the a tag on them, but in many instances Central Indiana Community Foundation that’s not helpful. From my perspective, COMMUNITY (CICF), is passionate about this belief. you either care about people or you FOUNDATION In 2002, he launched the Sam H. Jones don’t. I believe that communities Creating Greater Awareness Forum to high- www.cicf.org light “the issues, challenges, and con- are only as strong as their ability to cerns of the invisible/shadow populations embrace people from various walks of living in the greater Indianapolis area.” life. We should focus on opportunities to bring communities together, not Asked why he uses the term “invisible” to describe newcomer and Native keep them apart.” American communities, Taylor explains: —Ralph Taylor, Program Officer “They are here, but they aren’t seen or Central Indiana Community included. For the most part, discussions Foundation are about blacks and whites. Other peo- Indianapolis, Indiana ple who make up our communities are not part of the conversation—and they need to be. The conversation should not take place after a group reaches a In bringing together people from many certain population size, as is usually backgrounds, the Forum has facilitated the case.” cross-cultural interaction, collaboration, and integration among Indianapolis’ This inclusive vision drives Taylor’s work diverse communities. Asians have and the work of the Central Indiana invited Native Americans and African- Community Foundation. “Promoting Americans to participate in their events. inclusiveness and engaging community African and West Indian leaders have members in ongoing dialogues is central begun working on a joint venture to to one of our foundation’s vision priori- provide services to their communities. ties—Embrace Inclusiveness,” Individuals from newcomer communities says Taylor. have been asked to speak to mainstream civic organizations about issues and Since 2002, the Forum has brought concerns facing their communities. more than 500 community members together to learn about the Asian, “As a result of our work and partnership African, Native American, West Indian, with the International Center of and Arab communities. This year, the Indianapolis,” says Taylor, “the majority focus will be on the eastern and central community has become aware that Native European community. Americans do exist in Indiana and that our ethnic make-up is rapidly changing.” © Central Indiana Community Foundation

175 “The success of the Forum,” Taylor adds, “has helped CICF establish trust and build relationships with diverse communities and a reputation as an immigrant- friendly foundation.”

The Foundation is working hard to live up to that reputation. After the first Forum in 2002, CICF created the Creating Greater Awareness Communication Network to reach out to newcomer communities which are often not in the “information loop.” This electric network provides 400 some individuals with valuable information—from job postings and volunteer opportunities to upcoming cultural events and funding opportunities.

Last year, CICF also launched the © Central Indiana Community Foundation Uncommon Common Ground series, a spin-off of the Forum. “We started this series to address issues and concerns Indiana is one of the many states that tend to be the same for the new- that have experienced a significant comer communities, such as lack growth of the immigrant population of knowledge about foundations, civic over the past 15 years. The 2000 integration, and civil rights,” Taylor census counted nearly 200,000 explains. The two programs in 2006 will immigrants, who made up about three focus on immigrants and refugee aware- percent of the state’s total population. ness and the Sikh community. In the 1990s, census figures show that Indianapolis experienced a 160 Bringing community members together percent increase in its immigrant to increase awareness and eliminate population, and the foreign-born stereotypes and distrust is a central accounted for 44 percent of the city’s goal for the Creating Greater Awareness overall population growth. Forum. It is a goal to which Taylor is personally committed. According to the U.S. Citizenship and Immigration Services, nearly half “I realize that the groups I’ve been of the foreign-born in Indianapolis working with probably have negative comes from Latin America, but views of African-American males. I think Europe and Asia are also important I may have changed their perceptions source regions. Mexico, India, about me individually,” Taylor reflects. Germany, China, United Kingdom, “But people will change their percep- Vietnam, Philippines, Korea, Canada, tions about whole groups only and El Salvador are the top-ten if they are intentional about getting countries of origin for Indianapolis’ to know others beyond casual contact foreign-born residents. during business hours. My acceptance Today, figures from the Indiana by other communities is not necessarily Department of Education indicate indicative of how they view other that 214 languages are represented African-Americans, but my hope is in Indiana public schools and 129 that all of us can take the time to get languages other than English are to know people and make a spoken in homes of Indianapolis positive difference.” public school students.

176 BUILDING BRIDGES hree years ago, Bamazi Talle arrived “Traditional art is for purposes of culture, Tin Columbus, Ohio and embarked not for beauty. Statues were for religion; BETWEEN AFRICANS upon his dream of sharing contemporary masks were for rituals. Today, people see AND AFRICAN- African art in America by establishing Africa, and they only see AIDS and war. the KIACA (Kaybe Impact African They have no idea that we paint and AMERICANS Contemporary Art) Gallery. create in the contemporary,” Talle explains. An artist originally from Togo, Talle THE KIACA GALLERY OF came to New York City in 1995 with This lack of knowledge regarding COLUMBUS, OHIO $185 in his pocket and lack of legal contemporary African art has resulted in www.kiaca.org immigration status. Three years later, he great difficulty for Africans to showcase got married, obtained a green card, and their art, and the KIACA Gallery serves started a family. After completing a to provide such artists with the chance Master’s in Fine Arts in painting from to share their artistic and cultural talents the New York Academy of Art, Talle left with their new community. the bustling metropolis for Columbus so Indeed, this goal is reflected in the that he and his then-wife could raise very name of the gallery: “Kaybe” is the their two children in a quieter name of a West African ethnic group environment. famed for growing crops in unfriendly, Columbus may seem an unusual destina- mountainous terrain by building a wall tion for an African immigrant and his that supports a level planting field. family, but in the 1990s, according to Talle envisions KIACA as this metaphori- Watch the DVD the U.S. Census, this metropolitan area cal wall that will help African immigrant Maid in America: saw a 100 percent increase in its for- and refugee artists thrive and gain Intergroup Relations eign-born population. African immi- widespread appreciation of their work Meet a dedicated nanny who has grants, by local estimates, now number in the United States. worked in several African-American house- around 30,000. Immigrants, overall, holds since immigrating to this country. The gallery displays Talle’s personal account for more than nine percent of Hear from the African-American couple she work, which he describes as both tradi- now works for as they poignantly recount the total population. tional and contemporary with strong their own family’s working-class beginnings and see parallels in today’s Talle started the KIACA Gallery primarily cultural undertones. A key recurring immigrant experience. to help bridge Africans and African- image in his art is the woman form, Americans and build a platform for the depicted to emphasize the importance appreciation of contemporary African of women in African society. Other art. Although most of the world knows artists from countries such as Nigeria, of only traditional African art, Talle Cameroon, Ghana, and Senegal are also hopes to acquaint the community with exhibited in the gallery. modern work produced by African artists While the KIACA Gallery serves to share as well as the “transaction between the contemporary African art with the entire traditional and contemporary.” community, Talle has a special interest in helping Africans and African-Americans connect. This is especially important in a city like Columbus where competition over jobs and other resources, along with cultural and social differences, has created some tensions.

“Africans aren’t warmly welcomed by the African-Americans here. There’s no discussion; it’s like we are two separate peoples.” Talle observes. “I want to use art as a tool to bridge Africans and African-Americans.”

To this end, Talle ensures that there is also work by at least one African- American artist at each show in addition

177 “When these artists come in, they start the work of a Somali photographer who supporting each other, mingling, and spent a year documenting the lives of communicating. This way they have a several Somali refugees who had just chance to talk and try to understand arrived in America after spending 15 each other,” Talle explains. years in refugee camps in Africa. The exhibit aims to increase community In addition to showing art, the gallery understanding of the refugee experience. gives back to the broader community through weekly art classes for children The Columbus Foundation also made a who have experienced drug and alcohol $1,700 grant to KIACA, specifically for abuse. Other classes focusing on tradi- its commitment to art for people of tional and contemporary African art, color and to providing access to art and taught by Talle and a few volunteers, culture for the overall community, are offered to both adults and children. according to Smith. © KIACA Gallery “KIACA also reaches out to young Bamazi Talle Smith stresses the unique opportunities people from various cultures, allowing that this gallery presents: “I think this them to explore their perceptions and gallery is a tool for promoting immi- “KIACA is a wonderful cultural asset to perspectives,” says Sandra Smith, a grant integration and cross-cultural the Columbus community,” says Rachel community research and grants understanding. It can be a social oppor- McIntosh, project director of the fund- management officer at The Columbus tunity, an opportunity to examine vari- ing collaborative. “It is a resource that Foundation. “Being surrounded by art ous cultures. It is an opportunity for can help those concerned with rapidly and artists from different ethnicities, people to come together not around any changing demographics understand the cultures, and continents is important to specific issues, but in a very relaxed significant contributions that immi- their gaining a comfort level with peo- environment. People come to this grants and refugees can make to enrich ple who are different. It widens their gallery to really explore their curiosity our community.” appreciation for all cultures.” and share their perspectives, which is The Greater Columbus Art Council different than people gathering because With plenty of local coverage and granted $2,000 for a showcase featuring of a crisis, when tensions are high.” visitors, the gallery has successfully achieved its original goal and is now a prominent landmark on Columbus’ art and cultural landscape. Still, Talle has ambitious plans for growth: He would FUNDERS IN COLUMBUS, OHIO like to see this gallery grow into a RESPOND TO DEMOGRAPHIC CHANGE museum that has a permanent exhibi- tion and a number of educational oppor- The Capacity Building Initiative: Immigrant and Refugee Organizations (CBI) was tunities such as seminars and lectures. established to build the effectiveness of the growing number of organizations When he first dreamt of this gallery, founded and led by immigrants and refugees to serve their communities. This Bamazi invested all his savings to make two-year funding collaborative provides grants, training, and technical assistance it a reality. During its first three years, to grantee organizations. KIACA was entirely funded by Talle’s With leadership from The Columbus Foundation, local funders, in 2003, began savings and income from selling his discussing the needs of newcomer organizations and how they can respond. pieces. “Even now, any time I sell my CBI was formed in 2005, after raising more than $800,000 from six local public art, all the money just goes to the and private sources: Columbus Medical Association Foundation, City of Columbus gallery. I really, really believe in what Community Relations Commission, Fifth Third Bank, Franklin County Board of we are doing to make our art known Commissioners, The Columbus Foundation, and United Way of Central Ohio, and documented,” Talle asserts. which houses CBI. In addition to these funding partners, Ohio State Bar Foundation and a number of community representatives serve on the CBI However, as the gallery has expanded, steering committee. so too has the funding. The Capacity Building Initiative: Immigrant and KIACA Gallery is among nine organizations participating in CBI; these groups Refugee Organizations, a collaborative of provide a wide array of services to help newcomers from Latin America, eight local funding entities, contributed Africa, and Asia establish a social and economic foothold and integrate into a two-year grant of $20,000 to help the their new community. gallery strengthen its effectiveness.

178 CREATING An unlikely group of women sit After short deliberations and a few Wcomfortably in chairs around the practices, they take their positions and COMMUNITY rehearsal studio of a local theater. For call the director back into the room. ACROSS CULTURES several months they have been gather- She walks through the door and stops ing regularly to share stories and create in her tracks, hand to her mouth, a a performance piece about their experi- single breath caught in her throat. THE POWER OF ences of coming to America from Vietnam, Tears fill her eyes as she begins to PERSONAL NARRATIVES Colombia, China, India, Ecuador, Guinea, understand what Lady Liberty means Cambodia, Turkey, and Trinidad. What to these women. brings them together now is their strug- by Amy E. Skillman This camaraderie wasn’t always there. gle to make a new life and their desire Institute for Cultural Partnerships While the play was created and staged to share their stories with new neigh- in a mere six months, the trust and bors in central Pennsylvania. www.culturalpartnerships.org community that made the play so suc- The artistic director jumps up and says, cessful were four years in the making. “Okay, I am going to leave the room Since 1992, over 30,000 refugees and and I want you to create the Statue of immigrants have made Pennsylvania Liberty with your bodies.” The women their home, resulting in dramatic demo- discuss how do to this. Should they graphic shifts. Unfortunately, these stand side by side, each one in the pose changes have given rise to unprece- of the Lady? Or, can they create a single dented levels of prejudice and hate living statue using all of their bodies crimes. It is hard to hear newcomers together? talk about the prejudice, misunderstanding, and stereotyping they face here after many had made such difficult journeys to escape that very experience in their homelands.

At the Institute for Cultural Partnerships (ICP), we believe that attention to newcomers’ stories and traditions might ease their resettlement and build better awareness and tolerance among the general public. To that end, I sought refugee and immigrant women to collaborate on a project with ICP and found a perfect partner in the Pennsylvania Immigrant and Refugee Women’s Network (PAIRWN).

Led by Ho-Thanh Nguyen, herself a Vietnamese refugee, PAIRWN works with refugee women to develop leadership skills, self-confidence, and fellowship to help one another make a successful transition to a new life. Since 2001, ICP and PAIRWN have worked closely together on many projects. The first,

179 licensed therapist to be on hand at each meeting to handle any especially difficult situations that might arise when the women talk about leaving their homeland, facing prejudice in the workplace, or losing control of their children.

As the women read transcripts of each other’s interviews, they identified important themes and explored how best to present what they were learning. A curator, filmmaker, and theater educator offered recommendations about how the stories might be pre-

© Institute for Cultural Partnerships sented in their respective media. The women became particularly excited The interest in stories associated with about doing an exhibit and a theater food paved the way for the Story piece—so we did both! Circle Project. The women titled the exhibit, “Our Around 30 women with a diverse range Voices: Refugee and Immigrant Women of experiences, histories, and cultures Tell Their Stories.” The exhibit opened participated in individual interviews, at the State Museum of Pennsylvania and many also attended monthly Story on September 11, 2005—a date whose Circles where they had the opportunity significance was not lost on these to practice their women. Blending artistic sensibilities, “This project is making me feel important for the English and oral history, and ethnographic perspectives, Our Voices offered an understand- first time since arriving in the U.S. two years ago.” share common experiences. ing of the ways that refugee and immigrant women have rebuilt their lives in Each month, we picked a topic, including Pennsylvania. The exhibit put a face on the role of women in community life newcomers through their stories, which and the changing roles of women in drew on several themes: diaspora; the ways women recreate their material culture and artistic traditions • Humor: especially stories about in a new world; their experiences of language and confusing behavior patterns. emigration and resettlement; and their • Acculturation: getting used to the perspectives on diversity in Pennsylvania. way that Americans do things. One story led to another, as this circle of women drew closer in friendship and • Personal transformation: adjusting understanding. Eventually, we invited a to changing roles as women. © Institute for Cultural Partnerships

180 • Courage: overcoming incredible barriers in order to escape terror.

• Motherhood: having babies without the usual extended family to help out, becoming invisible in their children’s lives.

• The act of leaving everything behind: the things they miss most.

An artistic quality portrait photograph complemented each woman’s story. A case of personal artifacts (e.g., a mother’s rosary, a cookbook, a family photograph) made a powerful statement about what was most important in these © Institute for Cultural Partnerships women’s lives. There was a circle of chairs, each one hand-painted by the present their feelings. They understand women with motifs and colors that she the challenges of expressing important selected. A twenty-foot-long, life-sized ideas in a second language and often group photograph hung along one wall help each other find the right words. with a quote from one of the participants During a planning meeting, one woman overhead: “Even from all our diverse helped me understand when she said, backgrounds, we still find it easy to sit “This project is making me feel impor- down woman to woman and just talk to tant for the first time since arriving in each other.” The women’s real voices the U.S. two years ago.” were brought into the room through a DVD, capturing the feel of the Story The Story Circles have created an almost Circles. More than 750 people attended sacred space where these women, who the opening. have to hold back in all other aspects of their lives, can say what is on their Watch the DVD At the same time, we worked together minds to other women who understand, The New Americans: Support Networks on a script for the performance while who share the experience. Whether Social networks are a foundation taking diction and improvisation work- refugees or immigrants, they have shops with a theater educator. Those of immigrant integration, but that mourned their losses together, laughed doesn't mean that they always need to who chose not to act learned sound, at their mistakes, and shared ideas for be constructed. Drop in on an lighting, and stage management. Story dealing with insensitive attitudes in impromptu meeting and a surprise Circle: Coming to America in the 21st others. They have created new traditions party as co-workers celebrate Century re-created the Story Circle set- success and new and a new sense of community. Some beginnings. ting with women sitting around a table have said that the PAIRWN community talking. Through music, movement, is even more important to them than visual art, and spoken word, Story Circle their national or ethnic community. dramatized the courage, heartbreak, The daughter of one of the women in and dreams of immigrant and refugee the play told us that the play “...saved women. Created and performed by the my mother’s life, at a time when she women themselves, the play depicted was struggling every day just to get the challenges and triumphs that new- out of bed.” comers to America have conquered and celebrated. Story Circle was presented This project has been about much more for three nights to sold-out audiences than the exhibit or the play. It has also as part of the local community theater’s been about the process of telling stories WomenSpeak celebration of women play- to understand one’s own experience wrights and women-centered theater, and translating personal narratives and again six months later to accom- into powerful tools for social and per- pany the exhibit. sonal change.

The play and the curatorial process of creating an exhibit together provided a safe place for participants to practice their English and struggle with ways to

181 GROWING orn, cabbage, tomato, squash, “The most difficult challenges we faced Cpepper, and onion. These are essen- were related to soil, water, and weeds,” COMMUNITY ROOTS tial ingredients to integrate refugees into recalls Patty Haller, assistant director of community life, according to the Boise the Idaho Office for Refugees. “As THE BOISE REFUGEE Refugee Community Garden Project. refugee service agencies, we don’t have expertise in this area. The need for COMMUNITY GARDEN Launched in 2004, the Boise Refugee manual labor and materials to maintain Community Garden Project views com- PROJECT the garden spaces consumed a great munity gardens as a way to reduce iso- deal of time and energy as well.” www.mtnstatesgroup.org/ lation, teach English skills, and improve community the physical and mental health of Reflecting back on the planning refugee seniors. This collaborative effort process, Haller says, “Both the chal- involves four refugee-serving organiza- lenges and the benefits of community tions: the Idaho Office of Refugees, gardens far exceeded our original under- Agency for New Americans, English standing.” The challenges turned out to Language Center, and World Relief. be “a major unforeseen benefit,” creating an opportunity to involve other Now in its third season, the project community stakeholders. supports two organic gardens, with a third in the works. The gardens serve Another challenge was adapting the 40 intergenerational refugee families, refugees, many of whom had gardened including members from Afghanistan, or farmed in their home country, to Somalia, Liberia, Ukraine, Bosnia, and local crops, climate, and soil conditions. Sudan. None of the participants would During the first season, many of the otherwise have the opportunity to gar- crops went to waste on the vine, since den, as all live in apartments. the refugees were unfamiliar with the plant varieties. By the third season, Without existing community gardens in however, they were comfortable enough Boise to serve as a model, the four to request vegetables from their home partner organizations had to work from country. Now, gardeners take leadership scratch. But other community institu- in organizing work days, garden tions quickly stepped in to lend support. improvement projects, and celebrations. The Ahavath Beth Israel Congregation and the Girl Scouts of the Silver Sage The gardens are reaping considerable donated the use of the land. More than benefits for the refugee participants. 60 volunteers came on board, doing Many spend hours each day in the gar- © Diane Ronayne Photography, Boise © Diane Ronayne Photography, everything from providing gardening den, working in their plots but also advice to repairing the irrigation system. socializing, knitting, crocheting, sharing food, and reading in the shade. Others In its first year, the project received work in the garden with their entire cash and in-kind donations totaling family, strengthening bonds among chil- over $7,000 from the Retired Senior dren, parents, grandparents. Many gar- Volunteer Program, local agribusinesses, deners share the fruits of their labor building contractors, greenhouses, with other refugee families, often bring- schools, and master gardeners. ing bags and boxes of produce to the With this strong and diverse community English Language Center for distribution. support—including grants from Fund for While the mental health benefits of gar- Idaho, Edwards Mother Earth Foundation, dening are well-documented in research, and Rotary—the Boise Refugee Community the degree to which these benefits were Garden Project was able to hire a part- realized by the refugee gardeners sur- time coordinator to oversee the gar- prised the partner organizations. dens. But getting monetary and community support turned out to be easier “The gardeners truly blossomed with than dealing with Mother Nature. their plants,” says Haller. “People who complained daily of ailments and expressed little hope for the future became lively, strong, hopeful, and even outgoing.”

182 When asked about their garden experience, Language Center. “I believe that garden- the gardeners express the importance ing has played a significant role as an of the gardens to them, focusing on expression that Bantu culture is friendships, fresh air, hope, beauty, valued here.” tradition, and the importance of con- Yet, the community gardens are not just necting to the land. They talk about life a source of pride for the refugees— before they were refugees. They talk members of the Boise community are about regaining a sense of control in also enthusiastic. their lives. And they share their expertise—be it composting, hose-repair, or “The garden adds so much color and life gardening tips—with their fellow gar- to our neighborhood!” says one long- deners, each eager to learn from others. time Boise resident and neighbor to the project. “The gardeners give me a friendly Aliya Ghafar-Khan from Afghanistan smile whenever I walk past and I think

echoes the sentiments of many, “The © Idaho Office of Refugees to myself, what a great place to live.” time in the garden is as important as the vegetables.” “I don’t think any of us could have envisioned the reward, each day, of “People in Boise now view refugees as When staff of the partner organizations driving onto our site and seeing plants multi-dimensional individuals who have talk about the benefits of the gardens, growing and families laboring together needs but who also make an important they mention the gardeners’ newfound in what was once bare soil,” says contribution to the quality of life in and greater willingness to speak English, Sherrill Livingston, a member of the our community.” to use the bus system, to attend other Ahavath Beth Israel Congregation which events and activities, and to mentor Inspired by the Boise Refugee Community sponsors one of the gardens. more timid refugees. They say the gar- Garden Project, Community Gardens of dens have provided them an opportunity But more importantly, she adds, “The Boise was established in 2005 through a to relate to the refugees on a new level garden has been a tool for teaching. grant to the Idaho Office for Refugees. and to learn about the refugees’ interests, The children participated in a Jewish This new endeavor aims to expand the traditions, and cultural perspectives. The nature camp… The teens built raised availability of community gardens to power of being viewed as “gardener” beds for senior and handicapped gar- low-income and other disadvantaged rather than “refugee” is very strong, deners. Synagogue members joined com- populations, including refugees. they point out, both in terms of how munity work days to help refugees till The hope is that they, too, will share the gardeners see themselves and how the soil. Even into the winter, we have a garden experience similar to Saliha, the community sees them. begun a tutoring program with the a refugee from Afghanistan, who said, refugees. Each part of the congregation, “Bantu individuals and families were “I went to the garden to grow my food; from day camp to senior volunteers, has initially very reluctant to discuss or par- instead I grew a friend.” benefited from working the soil with ticipate in promoting or preserving their and welcoming these new Americans.” culture. The phrase ‘we left that behind when we came to America’ was heard The gardens have given the refugees an frequently in English classes. Now that opportunity to reach out to the larger phrase has been replaced by an excite- Boise community. The gardeners regu- Watch the DVD ment and pride in being Bantu,” says larly speak at meetings and conferences, Rain in a Dry Land: Steve Rainey, director of the English educating community members about Taco Bell New immigrants and native-born refugees while building their own lead- Americans have many different kinds ership skills. With heightened awareness, of encounters. For a familiar snapshot community organizations and individu- of cultural clash and mutual frustra- als have stepped forward to offer valu- tion, follow an immigrant mother able resources to assist refugee families, and her son into a Taco Bell in search of a suitable including tutoring, access to Girl Scout chicken. camps, internships at commercial organic gardens, and opportunities to participate in community cultural events. Local funders have also expressed interest in helping to fund the gardens and other refugee projects.

“The refugee garden project has helped to promote mutual understanding among refugees and between refugees and the broader community,” says Haller. © Idaho Office of Refugees 183 CULTURAL hen the stage lights dimmed on the “Promise” and Tamejavi share a similar Wplay “Promise of a Love Song,” the back story as well. The three theater INTEGRATION audience that rose to applaud in the companies—Pregonis, Junebug, and THROUGH THE ARTS historic Tower Theater of Fresno, Roadside—had deliberately built their California represented an even greater collaborative effort, first taking time to cultural spectrum than the play itself. visit one another’s theaters with their THE TAMEJAVI FESTIVAL own work, then engaging in dialogue. Hmong refugees and middle-class www.tamejavi.org whites, migrant workers from Oaxaca “When we took a play about Appalachia and Pakistani business owners had sat to the Bronx,” says Roadside’s director together to experience a drama set in Dudley Cocke, “people connected with three distinct locales: a home in rural the mountain culture of Puerto Rico. Appalachia, a Puerto Rican tenement in It put them in mind of their own sto- New York, and a shotgun house in New ries. The next time we visited, it Orleans. The performance was given by was their story.” ensemble actors from New Orleans’ “ ll of us, no matter our place of African-American Junebug Productions, birth, carry a deep-seated longing CULTURAL EXCHANGE AS A A the Puerto Rican Pregones Theater in to know ourselves through cultural the Bronx, and Roadside Theater from CONTINUOUS PROCESS roots. All of us, whatever our innate the coalfields of eastern Kentucky. During the planning stages of Tamejavi artistic talent, have an impulse to A mosaic of intergenerational love, the (the name is an amalgam of the reach out through cultural expression. play used music and theme to weave Spanish, Mixtec, and Hmong words for Such longing and impulse propel us together three seemingly disparate cultural marketplace), a series of work- to reach across cultural boundaries, stories—each infused with the voice of shops, story circles, and study groups bridging differences and finding its culture—into a coherent whole. For brought diverse participants together in shared space, building trust and rela- common ground.” the greatly diverse audience, the play illustrated how art can be a tool to tionships among the group members. —Craig McGarvey, who supported strengthen cultural identity and bridge But the festival was a milestone, not a the Tamejavi Festival in cultural chasms. culmination, in their cultural exchange. California’s Central Valley while The same message of unity through art Following the festival, meetings for program director at animated the three-day, spring 2002 reflection and evaluation helped partici- The James Irvine Foundation Tamejavi Festival that featured “Promise pants recognize the great value of of a Love Song,” along with dance, cultural exchange and reinforced the comedy, music, photography, art, importance of continuing such cultural theater, crafts, food, and more from the learning opportunities. many newcomer groups that populate In the words of Myrna Martinez-Nateras, California’s Central Valley, perhaps the director of the American Friends Service most diverse rural region in the world. Committee’s Pan Valley Institute (PVI), An estimated 1,500 people participated the lead organization for Tamejavi, peo- in the festival. ple felt that “to promote understanding and respect for differences, more spaces for cultural learning were needed. So an idea was proposed to visit other communities during the celebration of their traditions, learn about their beliefs and how they are or are not adapting to a new society.”

With foundation support and active community involvement, this idea quickly became reality. Latinos, South and Southeast Asians, indigenous Mexicans and Americans, blacks, and whites began a nine-month, round-robin series of participation in one another’s traditions: © Daranee Petsod

184 Hmong New Year. Martin Luther King in Arts and Culture at The Rockefeller What role does the freedom to exercise candlelight vigil. Bear Dance Ceremony. Foundation, one of the foundations that one’s own cultural traditions and cre- Music and dance of the P’urhepechas. provided support for the festival. ativities play in the process of develop- Lao New Year. Juneteenth Celebration. “These were community members coming a sense of belonging in a new and Cultural poetry exchange. La Guelaguetza ing together in the crucible of making culturally diverse society? In the celebration. Dialogue on black reparations. art. They created a piece full of feeling process of integration, which cultural and theater craft that helped us under- traditions must be kept and which ones Each visit was designed as a learning stand their shared experiences, tri- must be changed?” opportunity, facilitated and guided by umphs, and challenges.” people from the community being Seeking answers to these questions, visited, with pre- and post-dialogues. Tamejavi’s participants are planning to Approximately 300 people participated PROMOTING COMMUNITYWIDE develop curricular materials that they in some way. CULTURAL EXCHANGE will make available to other educators and practitioners through their website. “To result in meaningful learning The working groups are, of course, look- They also have aspirations to convene experiences, it was important to have ing ahead to a third festival. In the policymakers to discuss cultural aspects an understanding and promote respect interim, they are creating opportunities of the integration experience. for each community’s cultural protocols… for cultural exchange for the broader The Tamejavi festivals are much more for establishing cultural awareness and community. Their plans include a series than occasional celebrations of diver- for dealing with and beginning to of interactive dialogues and “mobile sity. They have laid the groundwork for embrace ethnic differences,” Martinez- exchanges” in community centers and long-term, ongoing cultural exchange Nateras explains. “Otherwise, people libraries, doing outreach through local that is vitally important to newcomer tend to interpret others from their own media in rural settings to draw the gen- integration. Not every cultural interac- cultural perspectives, which can make eral public. And the broader community tion program can be as extensive as the them judge unfairly and react disre- has been responding. Academic institu- Tamejavi Festival experience. But the spectfully when they see a cultural prac- tions and community-based service activities that the festival encourages— tice that might not be accepted in their providers are turning to Tamejavi’s parent artistic expression, support for native own cultural values.” organization, PVI, to learn more about culture, facilitated cultural exchange, techniques to promote cultural diversity. guided learning, leadership develop- CREATING A NEW These techniques include “participatory ment, and engagement of the broader CULTURAL TRADITION action research,” which Tamejavi’s work- community—carry powerful lessons that ing groups are using to actively engage can be applied to individual grants as From the visits emerged several working in answering the questions that interest well as major funding initiatives. groups: Women, Youth, Indigenous and motivate them. As expressed by Peoples, Outdoor Marketplace, and PVI’s Martinez-Nateras, these questions Documentation. These groups engaged go to the heart of immigrant integra- in an interactive process of cultural tion: “What is the role of cultural iden- exchange, led by “cultural organizers” tity for immigrants’ social inclusion and who used various techniques to bring participation in building democracy? those from unlike backgrounds together to develop cultural products.

One of these products was Tamejavi II. In fall of 2004, some 2,000 of the Valley’s demographic medley gathered for the three-day festival that blended audience with performers, amateurs with professionals. This time, the featured theatrical piece was completely home- grown. Developed from oral history projects from within their respective communities, “Diary of an Endless Journey: Towards a New Dawn,” with a cast of 40, told the migration stories of refugee Hmong and migrant Mixtec families.

“I was very moved by the coming together of the multiple communities,” says Joan Shigekawa, program officer © Eduardo Stanley

185 PROGRAM EVALUATION

As case examples in this section To determine if the outcomes below another group as a family member, illustrate, social and cultural interaction occurred, foundations might consider friend, work colleague, neighbor, visitor, among people of different backgrounds collecting the following information: and fellow citizen). can take many forms, including com- • Knowledge of traditions and basic • Frequency and quality of interaction munity forums, visual and performance behaviors during cross-cultural interaction with people from different cultures arts, historical exhibits, among others. (e.g., how to properly greet the other (e.g., average number of visits to homes Well-developed and -executed efforts, person, religious holidays). of people over a year and purpose as shown in the figure below, will of visits). result in outputs which, in turn, • Understanding and acceptance of can lead to outcomes that facilitate similarities and differences in culture and • Participation in activities that bring integration. One way to assess the experience. people of diverse backgrounds together quality of the outputs is to examine (e.g., number of times people attend • Perceptions about people the extent to which the features block club meetings and community from other groups (e.g., using the mentioned in the introduction section festivals). Bogardus scale, available on are present. www.csudh.edu/dearhabermas/bogardus02. • Establishment of multicultural part- htm, which asks questions about how a nerships, coalitions, and teams to work person feels about having people from on communitywide issues.

OUTPUTS OUTCOMES IMMIGRANT INTEGRATION

• Number and quality of • More relationships across activities and events (e.g., cultures. cultural festivals) for people These outputs These outcomes encourage social to get to know each other • Improved understanding encourage and cultural as individuals. about different cultures. integration, and interaction, and as integration as interaction • Number and quality of • Reduced prejudices and gradually occurs, increases, these these outcomes opportunities (e.g., policy misperceptions about people outputs will also will also become campaigns) for people to from different cultures. become more more widespread. work together on common widespread. • Increased collective action issues. across cultures.

186 Promising Practices in Civic Participation and Citizenship

“ mmigrants come along, they create their institutions of faith, they Iengage in their kids’ education, they focus on their economic advancement, they create care and feeding service institutions. Then there comes a point where you cannot resolve the problems of your community without getting serious about civic engagement. It has become clearer with the ferocity of the anti-immigrant backlash that you are going to have to do that or your communities are going to be badly hurt. In the face of that, we have to ask what are our moral and ethical responsibilities to build civic infrastructure that supports that engagement in a sustained way.” —Joshua Hoyt, Illinois Coalition for Immigrant and Refugee Rights, Chicago, Illinois

INTRODUCTION 189

CIVIC PARTICIPATION AND IMMIGRANT INTEGRATION 190 Active Engagement in the Community and the Democracy

CIVIC PARTICIPATION AND NEW LABOR ORGANIZING 194

YOUTH ACTIVISM 196 Infusing New Energy into Immigrant Organizing

BUILDING A MOVEMENT THROUGH ELECTORAL ORGANIZING 199 Mobilize the Immigrant Vote

SUPPORTING THE CITIZENSHIP PROCESS 201

EVALUATING CIVIC PARTICIPATION EFFORTS 202

187 188 INTRODUCTION key pathway to integration, civic implementation of strategic action. A participation actively engages new- Best-practice civic participation provides comers in community problem solving, immigrants the opportunities to exercise leadership development, and democratic responsibility, take initiative, and engage practice. Participation for an immigrant or in the two-way process of community refugee often begins with a collective building. In so doing, newcomers develop effort among neighbors to reduce crime, skills (how to speak in public, how to improve schools, increase access to build an agenda and run a meeting), health care, or develop affordable hous- knowledge (how local government works, ing. Artistic and cultural exchange might how to become a citizen), attitudes also be a starting point. Participation can (tolerance and understanding of people eventually expand to policy advocacy and from different backgrounds, openness to electoral work—testifying before their feedback and self-improvement), and representatives and helping to register behaviors (becoming more informed and motivate voters—but is not limited through news media, making healthy and to these highly visible forms of political positive life choices). The development of involvement. And for naturalized immi- immigrant leaders ultimately benefits the grants, voting and running for elected broader community. office can become further expressions of • Networks of trusting relationships their civic integration. are developed, both with people from Most newcomers, however, do not become like and unlike backgrounds. Such involved in community life until they have networks create one of civic participation’s established a relatively solid foothold in most powerful contributions to immigrant U.S. society. Despite enormous work and integration. Harvard sociologist Robert family responsibilities, many immigrants Putnam calls these networks of relation- and refugees do make time to become ships “social capital,” arguing that all civically involved. Most often, they are aspects of community, including intergroup initially drawn into action with others relations, are strengthened when social around issues that affect the well-being of capital is strong. Indeed, people who their families. Such issues need to be vital know one another through shared work enough to attract immigrants, broad are far less capable of stereotyping, of enough to bring together people from fearing, and of characterizing people as different backgrounds (other ethnicities the “other.” and particularly the native-born), and • Newcomers and the native-born manageable enough to achieve some contribute together to positive success, creating momentum for further outcomes. Civic participation among new- activity together. comers builds communities and revitalizes The stories highlighted in this section democratic tradition in the United States. all share the common characteristics New neighborhood parks, increased necessary to promote high-quality civic language access to public services, higher participation as a strategy for immigrant rates of naturalization and voter participa- integration. tion, and reduced intergroup tensions are among these outcomes. • Strong community-based institutions are essential to engage newcomers It is our hope that the following stories in the community and the democracy. will encourage you to deepen your explo- Such organizations serve as networks of ration and understanding of this important recruitment into civic life. They are mem- integration strategy. “Pursuing Democracy’s bership-based and democratically gov- Promise: Newcomer Civic Participation in erned, with leadership ladders that engage America,” published by GCIR in 2004, newcomers more deeply in civic action and offers a more expansive discussion of civic move them into positions of greater participation as a strategy for newcomer responsibility and authority. integration, as well as profiles of numerous promising practices. We invite you to visit • Civic participation is a vehicle for www.gcir.org or contact the GCIR office the education and integration of immi- for a copy of this report. grants. Intentional learning guides civic activity, from the collective selection of issues through the development and 189 CIVIC PARTICIPATION OF NECKTIES, “Immigrants have experienced the NOT BASEBALL BATS problems,” explains Adon, and in help- AND IMMIGRANT ing to solve them “they are participat- INTEGRATION Gloria and Adon, Mexican-American ing in self-improvement. To make change, leaders and board members of the Idaho one thing you have to learn is how the Community Action Network (ICAN), system works and how the other per- ACTIVE ENGAGEMENT sought the meeting with the administra- son—the guy in the necktie—thinks.” IN THE COMMUNITY tor of the State’s Department of Health AND THE DEMOCRACY and Welfare (DHW) to discuss how the “Immigrants need to speak for them- Department was planning to notify the selves,” says Gloria. “Another culture immigrant community of recent state adds to the United States, it doesn’t and federal changes in benefit systems. take anything away. We need to learn The leaders were well-informed about one another’s cultures.” changes in Food Stamp eligibility, and Such participation in civic life— they brought constructive suggestions identifying and solving problems for simplifying applications and doing together, educating one another, devel- outreach to immigrants. “We hope you oping relationships with people from look at us as partners,” said Adon, unlike backgrounds, including govern- “not someone coming with a baseball ment officials—is part of the process of bat.” The administrator welcomed the immigrants integrating into their new partnership. country. Some would argue it is the In contrast, ICAN’s earlier four-year process of integration, drawing newcom- struggle to pass Idaho’s minimum-wage ers into active engagement in their law for farmworkers, though eventually communities and the democracy. successful, was not always as amicable. But it laid the foundation for a working LEARNING HOW INSTITUTIONS relationship with DHW that made the negotiations on Food Stamps possible. AND GOVERNMENT WORK It also contributed to the self-education Experience is our best teacher, and civic of hundreds of immigrants who had participation is experiential education participated in the campaign—and for immigrants and refugees in their produced positive community change for new country. Drawn by a common desire thousands more. to improve conditions for their families and communities, newcomers engage Adon and Gloria have devoted countless with community institutions and, in so volunteer hours promoting immigrant doing, learn how government and civic civic participation of this sort. processes work and ways to influence them.

For example, immigrants who participated in Florida’s successful 2004 campaign to raise the minimum wage, sponsored by the Association of Community Organizations for Reform Now (ACORN), learned how the initiative process works in the state. Newcomers who were part of the Cross City Campaign for Urban School Reform1 learned how to improve inner-city schools. Hmong refugees, members of People Acting in Community Together in Stockton, California, worked with the local police to address rising © Idaho Community Action Network

1. Members include the Alliance Organizing Project in Philadelphia, New York ACORN, Oakland Community Organizations in California’s Bay Area, Austin Interfaith in Texas, and Chicago’s Logan Square Neighborhood Association. See the “Promising Practices in Education” section for details on Logan Square’s work. 190 violence among their youth; as a result, the force hired Hmong liaisons to help them better serve the community.

When immigrant women in Arlandia, Virginia, realized that they shared a concern about the lack of children’s recreational space in their working-class neighborhood, their membership in the Women’s Leadership Group of the Tenants’ and Workers’ Support Committee helped them to advocate effectively with © Idaho Community Action Network the Alexandria Parks and Recreation Department. They started by mapping A similar transformation took place STORIES OF HUMAN the number of parks in Arlandia and its for Margarita and other mothers with RELATIONSHIPS surrounding middle-class neighborhoods, children in the public schools of unin- documenting the dramatic differences in corporated Lost Hills, California. Ninety- facilities. Then they researched the seven percent of the population in this “ o build relationships, you want Parks and Recreation budget, uncovering rural community in Kern County is work- T to focus on what’s common, get unused funds that had been set aside ing-poor Latinos, and 88 percent of the people working to improve quality- for tennis courts. Their research, advo- children qualify for the free-lunch program. of-life issues they share.” cacy, and relationship with Parks and An unresponsive school board motivated Recreation led to more than $100,000 civic participation by Margarita and her —Karen Bass, Founding Executive in new recreational facilities in Arlandia. neighbors. “They said it was not for us Director, Community Coalition to come with concerns to the school,” for Substance Abuse Prevention says Margarita. “But that is exactly what and Treatment STORIES OF HUMAN we should be doing.” The mothers DEVELOPMENT began their effort by collecting signa- By working collectively to solve tures to change the scheduled time for problems and improve community Each of these examples of newcomer school board meetings from 12 noon conditions, immigrants and refugees civic engagement is a story of human when most parents are at work to 6 PM also develop strong relationships across development. Skills and knowledge when more parents can attend. lines of class, race, and ethnicity among building—as well as attitude and those with whom they work. Adons of behavior change—are vitally important With the help of Valley Catholic Idaho and the DHW “guys in the neck- components of immigrant integration. Charities, these immigrant parents con- ties”—and the moms from Arlandia and tinued their involvement in the school Change can be dramatic for newcomers the Parks and Recreation administra- system. Later efforts led to a Grand Jury as they develop into civic leaders. tors—illustrate the importance of investigation that contributed to the Fadumo, who with her husband and 11 such relationships. early retirement of the school superin- children fled the civil war in Somalia, tendent, and also ensured parental The best civic participation organiza- eventually settled in Minneapolis. input on the search for a new superin- tions attend carefully and strategically Although she found working with immi- tendent. After two school board members to the process of bringing people from grant elders and families rewarding, it were discovered to live illegally outside different backgrounds into relationship was civic participation that made the the district, three Latina mothers were with one another. For example, when greatest difference in her life. With the elected to serve on the Board. Florida ACORN wanted to encourage assistance of VOICE for Community Power and the Organizing Apprenticeship Project, Fadumo led a voter participation campaign in the Somali refugee community during the 2002 Senatorial elections. When the candidates met with the Somali community, incumbent Senator Paul Wellstone was introduced by Fadumo. “Before I was shy and scared,” she says, “but this helped me to build my own voice. I can go everywhere now. We Somali women are hungry to bring Somali power to the community.” © ISAIAH

191 Haitian, Honduran, and Jamaican immigrants to work with the native- born, they held a barbeque. First, the children began playing with one another; then the parents began to mix. Joint civic participation followed, resulting in the registration of 15,000 people for the 2000 election. In Washington, DC, the Tellin’ Stories Project brings immigrant and African-American parents together at local schools, getting them to share stories through making books and stitching quilts. Relationships develop in the school setting, as does comfort; guided by the Project, the parents became increasingly involved in school participation. © IIllinois Coalition for Immigrant and Refugee Rights

Karen Bass, founding executive director The divide was not only between THE ORGANIZATIONS THAT of the Community Coalition in South Los newcomers and African-Americans. The MAKE IT POSSIBLE Angeles and now a California Assembly newcomers—black and Latino immigrants Member for the 47th District, sees civic from the Caribbean, Central America, Many institutions have been mentioned participation as the best way to build and Mexico—held different viewpoints here that draw newcomers into civic life. intergroup relationships. While many about their identities and experiences. Thousands exist across the country, and traditional intergroup programs get For example, Latinos and black Caribbeans their numbers are growing with the people talking about what makes them don’t necessarily self-identify along newcomer population. They include different, Bass takes a different tact. their shared experience as immigrants. congregation- and neighborhood-based “To build relationships,” she says, “you Similarly, African-Americans and networks, worker centers, hometown want to focus on what’s common, get Caribbeans don’t necessarily share associations, locally based groups, people working to improve quality-of- identity as blacks. Negative stereotypes ethnic-specific volunteer efforts, life issues they share.” about one another also widened the new labor initiatives, youth organizing divide. Some blacks felt the Korean institutions, voter registration and For example, the Gamaliel Foundation store owners were heartless; some participation projects, and more. The brought newly arrived Latino immigrants Latinos felt Pakistani motel owners best of them approach integration with and African-Americans together in were exploitive. similar principles. Mentioned in the Milwaukee around the issue of housing. introduction to this section, these The Pacific Institute for Community The strategy that the Coalition brings principles bear repeating: Organization, in its California Project, to bear on such potential divisiveness is identified health care as a common con- education, possibly the most important • Newcomers are encouraged to take cern shared by middle-class whites and component of any civic participation responsibility and engage in all aspects newcomers. And the issue of human program. Coalition members study the of community problem-solving. rights brought immigrants and members history of their changing neighborhood, of the LGBT community into common learning of the systemic economic and • Programs start where the newcom- cause through CAUSA, Oregon’s social forces that can lead newcomer ers start, involving them with issues statewide immigrant rights coalition. merchants, many of whom also live on that affect their daily lives and leading the economic margins, to rent rooms by them toward deeper analyses and more The first quality-of-life issue that Bass’ the hour, underpay their workforce, or effective strategies to address these Community Coalition tackled was closing emphasize the sale of liquor. To success- issues. down “nuisance” liquor stores and fully work together, says Bass, people • Newcomer learning and growth— motels. In working for this goal, the need to be informed about the systemic learning by doing—is at the heart of all extraordinary diversity of the Coalition’s forces at work, “to learn the facts about program design. neighborhood presented a challenge, race, racism, and demographics.” Such bringing some community members learning is a key dimension as newcom- • Building relationships with people together while separating others. ers and the native-born develop rela- from unlike backgrounds is an important tionships through civic participation. goal.

192 Several regional organizations are helping traditional immigrant service- delivery groups learn such strategies. All of these institutions have built deep relationships with scores of local organizations, providing training programs, tested curricular materials, and train- the-trainer approaches.

A particularly promising coalition of five such organizations—the Collaborative for Immigrant Empowerment Leadership and Organizing (CIELO)—has begun to emerge as a potential national network. CIELO’s membership includes the Western States Center in the Northwest;

Partnership for Immigrant Leadership © IIllinois Coalition for Immigrant and Refugee Rights and Action in California; the Coalition of African, Asian, European, and Latino Immigrants of Illinois; the Center to Support Immigrant Organizing in Boston; and Highlander Research and Education Center, which works throughout the Southeast. Together, these groups have a network of at least 150 organizations working with diverse new- Watch the DVD comer communities in 24 states. Grassroots Rising: Workplace Improvement As the CIELO collaboration continues to More than 140 worker centers across the country are helping to improve wages develop, its member organizations are and working conditions for immigrant and deepening their practice regionally, other low-wage workers. Learn about this bringing civic participation strategies to burgeoning movement and how it is their locally networked groups. They are empowering newcomers to stand up for helping other institutions with long his- their rights, join forces with native- born workers, and speak with tories of promoting civic participation one voice. incorporate newcomers in non-traditional gateway states. All of the groups are critical players in the active engagement of immigrants and refugees in community and civic life, itself a critical strategy of newcomer integration.

193 CIVIC s unions turn their attention to their members and lobbying intensively A organizing the growing number of for legislation that includes a clear path PARTICIPATION immigrants in America, they are spon- toward legalization and citizenship for AND NEW LABOR soring and supporting numerous civic millions of immigrant workers. participation projects, often in partner- ORGANIZING ship with community organizations. Increasingly, at the local level, unions recognize that community support for The AFL-CIO’s decision to reverse its organizing drives among immigrants is position on immigration in 2000 laid crucial to their success—and that union the groundwork for strong union support involvement in issues of vital concern of immigrant rights, including the his- to immigrant communities (e.g., health toric Immigrant Workers Freedom Ride of care, education, affordable housing, 2003. Twenty buses from ten cities car- access to drivers’ licenses) is key to ried 1,000 riders across the country to building strong partnerships. Organizing join with thousands of union, commu- drives among janitors, hotel and indus- nity, and faith-based leaders in New trial laundry workers, and poultry and York and other cities to promote a plat- meat-processing workers offer recent form of immigrant rights and citizen- examples of such collaboration. ship. The Freedom Ride was a milestone in the commitment of organized labor Foundations have supported, and to fight for the rights of immigrants. continue to support, labor-community collaborations by funding independent Many unions—including those in the research into the conditions of work in AFL-CIO and ones in the newly formed industries notorious for exploiting Change to Win federation2—are organiz- immigrant workers and by supporting ing in sectors of the economy with a community and faith-based efforts to strong immigrant presence. They are expose and correct these abuses. supporting leadership development, ESL, voter engagement, and other programs • Organizing in the South—the to advance immigrant rights. As the region with the highest percentage national debate over immigration policy increase of newly arrived immigrants heats up, these unions are mobilizing and the weakest union presence—is increasingly drawing the attention of the labor movement, national community- “ rganized labor is playing a vital organizing networks, and foundations. role in supporting low-wage O • Unions have been actively establish- immigrant workers and their families ing and/or supporting worker centers to achieve basic human rights and a such as the Voice and Future Fund created decent standard of living. Whether by SEIU Local 615 in Boston, (the through workplace organizing cam- Justice for Janitors local). Immigrant paigns—or in collaboration with members of this union have the opportunity to improve their English, hone community and faith-based organiza- computer skills, develop leadership tions working on immigrant rights, skills, and forge new relationships with affordable housing, health care, or other community-based organizations. child care, among others—unions are • In New York City, a collaboration mobilizing their members and among SEIU Local 32BJ, Make the Road resources to achieve greater social By Walking, AFSCME DC 37, HERE Local and economic justice for immigrants. 100, and the National Employment Law Philanthropic investment in these Project has created the New York Civic efforts can help advance the integra- Participation Project. This effort organ- tion of low-wage immigrant workers izes immigrant union members around issues important to their families in into our society.”

—Henry Allen, Executive Director Discount Foundation 2. This new federation includes the Service Employees International Union, United Food and Boston, Massachusetts Commercial Workers, UNITE/HERE, Teamster, Carpenters, Laborers, and Farmworkers.

194 their home neighborhoods of Washington Heights, Bushwick, the South Bronx, and Queens.

• In Miami, Unite for Dignity, an independent non-profit affiliated with SEIU Local 1199, offers leadership classes to low-wage immigrant workers.

• In Oregon, the union of tree planters and farmworkers, Pineros y Campesinos Unidos del Noroeste (PCUN), promotes voter education, youth leadership, housing development, micro-enterprise among women, and immigrant rights.

• The Front Range Economic Strategy Center (FRESC) has become the hub for accountable development policy campaigns serving low-income communities in metro Denver. It is an alliance of over fifty community, labor, interfaith, immigrant, and environmental Collaborative © Southwest Youth groups. In 2004-2005, it expanded its voter education and outreach activities in immigrant communities and launched the Civic Leadership Institute, with a focus on immigrant rights issues and opposing Proposition 200, an anti- immigrant state ballot initiative.

These efforts and others like them across the country are increasingly drawing support from foundations seeking to promote civic participation and effect policy change.

Although unions are not as powerful as they once were, they still bring to the table the voices of 14 million workers, including more and more newcomers. They also have national infrastructure, financial resources, political clout on policy issues, seasoned organizers and research staff, and the ability to effect change on a national scale.

Foundations seeking to leverage the impact of their grants can support nonprofit organizations directly affiliated with unions and community organizations with strong ties to labor. With the exercise of expenditure responsibility they can make grants directly to unions themselves.

195 he student population at Horlick YOUTH ACTIVISM “ T High School in Racine closely mirrors iving students opportunities to the ethnic breakdown of this small G organize and become active INFUSING Wisconsin city. Fifty-six percent of the around the issue of immigrant rights NEW ENERGY INTO students are Caucasian, 24 percent has helped change the culture of our IMMIGRANT African-American, 18 percent Latino, school and created and strengthened and two percent Asian. ORGANIZING bonds among students, families, the The Latino population at the school, school, and the community.” like that of the community, comprises both American-born Chicanos and foreign- —Ryan Knudson and Al Levie, born Latinos. Tensions between these Teachers, Horlick High School, two groups are a fixture in communities Racine, Wisconsin across the country, and Racine is no exception. At Horlick, however, the for- erupted in school-yard fights. But this mation of a student group, Students dynamic has improved since the forma- United for Immigrant Rights (SUIR), has tion of SUIR. begun to break down these long-held animosities. “We have seen a dramatic reduction in the Latino suspension rate,” said Nola Prior to the formation of SUIR, many Starling-Ratliff, Horlick directing princi- of the immigrant students at Horlick pal. “[The students’ activism] has broken believed the Chicano students were down divisions among students and ashamed of their heritage because they elevated the level of thinking.” spoke little or no Spanish and often seemed culturally more American than The lead-up to the creation of SUIR is a Latino. For their part, the Chicanos story of students discovering and exer- probably felt stung by suggestions that cising their civic rights. It is also the they were no longer ‘true’ Latinos. The story of a schism between two groups, two groups seldom communicated. the immigrants and the Chicanos, being Sometimes, the simmering tensions bridged. It begins in 2003 in a Latino- American history course at Horlick.

After watching the PBS series Matters of Race, which includes a segment about the increase in Mexican immigrant workers in a small town in the South, Al Levie’s Latin-American history class discussed racism and the immigrant experience in America. Spurred by the talk, students who were going to a local rally organized by Voces de la Frontera, a community organizing group working in both Milwaukee and Racine, invited their history teacher to accompany them. News coverage of the rally pro- voked a spat of anti-immigrant letters that were published in the local newspaper. In response, the students wrote group and individual rebuttals in class which were also published in the paper, © Illinois Coalition for Immigrant and Refugee Rights engaging the community in a discussion of immigrant issues.

Around this time, Christine Neumann- Ortiz, director of Voces de la Frontera, contacted Levie, the history teacher, to let him know that Representative Pedro Colón of Milwaukee had introduced a bill in the Wisconsin Assembly that would

196 allow undocumented immigrant students “It has made Latino kids feel like they to attend state institutions of higher have a voice,” said Mark Zanin, the sub- education at resident tuition rates. Levie school principal. “The impact of [SUIR] invited representatives from Voces to and the issues they’ve taken on has directly address the mostly Chicano demonstrated to them, and to the com- Latino-American history class about the munity, that they do have a voice, and issue and the legislation. Another teacher that people will listen to them.” in the school, Ryan Knudson, brought his ESL class—mostly immigrants—to Since its formation, SUIR has worked to the discussion as well. Prompted by the bring together students and community discussion, the students arranged for a in pushing for social change. In the fall field trip to Madison, the state’s capital, of 2004, in one of its first major efforts, to attend a hearing on the bill. They SUIR joined with Voces and the NAACP prepared testimony on the bill, includ- to plan a nonpartisan election-day geting a statement from an undocumented out-the-vote campaign. One aspect student at Horlick about her situation. involved specially trained Horlick students doing door-to-door campaigning. Shortly after the students gave testimony The school approved the event and at the state capitol, Voces invited seven promised to waive the absences of those of the students and one of their sponsors students who wished to participate. to go to Washington, D.C. to advocate for the DREAM Act. Students received However, a few days before the election, training from the Center for Community community members associated with an Change and spent a day lobbying anti-immigrant website asserted that elected officials. the mobilization drive, aimed in particular at low-income neighborhoods in Upon their return from Washington, Racine with a concentration of African- the students organized a large Cinco de Americans and Latinos, was partisan in be able to maintain athletic and arts Mayo party—partly as a fundraiser to nature and that it was inappropriate for program and to keep the full school help pay the expenses for the trip. the school to allow such activities. On maintenance staff employed. With low Hundreds of Latino students (both the Monday before the elections, the voter turnout in low-income precincts, immigrants and Chicanos), their family school administration withdrew its sup- the property tax measure failed, and the members, community members, and port of the event and announced that district was forced to implement cuts in school officials came together for the students who did not attend classes on programs. first time. Students spoke to the gather- Tuesday would be disciplined. ing about their participation in the When students realized what happened, political process. Despite the reversal, over 250 Horlick they were outraged. Students from several students chose to face the school’s schools in the district, with Horlick Publicity about the student participation penalties—and the rain and cold students playing a key role, formed a in Madison and Washington and about weather—in order to encourage others diverse coalition that called itself Save the Cinco de Mayo celebration sparked to vote. Students—from freshmen to Our Schools. This student-led coalition criticism from a group of community seniors—chose to walk neighborhoods turned out a 1,500-person protest for a members at the next Racine Board of for the drive, according to the local school board hearing, winning a new Education meeting. The group demanded newspaper. vote on the referendum. the Board dismiss Levie, the history teacher who had sponsored the field trips. “I feel really disappointed in the school district for withdrawing their support in In response, Voces called a meeting of our effort to get people to vote,” said the parents of students who had partici- 16-year-old Xavier Marques, first presi- pated, and at the next meeting those dent of SUIR, in comments to the paper. parents and students—Chicano and “For them to fold just because of a little immigrant—made a presentation thank- bit of pressure from an outside group is ing the Board for giving their children wrong. From the beginning we have the opportunity to participate in the been nonpartisan. We are just focused field trips and to learn first-hand about on getting out the vote.” the democratic process. This saved Levie from dismissal and generated even greater In 2005, there was a referendum in the interest among other students at the Racine school district to add a small school. It was then that SUIR was formed. amount to property tax for the school to

197 For the second referendum, SUIR was in charge of the GOTV effort for the City of Racine—the same kind of effort as for the 2004 election. Other student groups worked in the suburban areas. Altogether, there was a 10 percent increase in voter turnout for the second election, and this time the property tax increase passed. Christine Neumann-Ortiz of Voces de la Frontera says, “The students were leading the adults—and most of them can’t vote, but they were able to take the initiative for change.”

Students like Xavier have become activists in response to the racism and the unfairness they see that immigrants face. At Horlick, confronting these issues together has allowed students to reach out to each other across the schism that exists so often between American- born Chicanos and newcomer Latinos. Friendships have formed across a previ-

ously impassable divide, and there is Collaborative © Southwest Youth increasing collaboration between students in the two factions.

“Giving students opportunities to organize and become active around the issue of immigrant rights has helped change the culture of our school and created and strengthened bonds among students, families, the school, and the community,” wrote Ryan Knudson and Al Levie, the school sponsors of SUIR, in an article published last fall. “It has also helped students from marginalized groups become actively engaged, academically successful, and to rise to positions of leadership in the school and the community.”

198 BUILDING A he statewide Mobilize the Immigrant constituents for elections. However, T Vote (MIV) campaign in California many lack the skills, tools, and support MOVEMENT focused on bringing a growing but to do so effectively. THROUGH underrepresented segment of the popu- In the 2004 campaign, MIV linked 112 lation more fully into the political ELECTORAL diverse, immigrant-focused CBOs across process. Although increasing voter the state in an electoral organizing ORGANIZING turnout among immigrants was a prime effort, mobilizing well over 1,200 volun- goal of the effort, MIV’s election work teers. Not only had many of these CBOs was conceptualized as part of a larger never engaged in elections work before, MOBILIZE THE and ongoing movement for social change. but nearly a third reported that they IMMIGRANT VOTE A cornerstone of the MIV approach is would not have done any elections work www.immigrantvoice.org building capacity of existing organiza- without MIV support. MIV provided them tions to participate effectively in both the short- and long-term goals of the campaign. “ he training that I took with PILA, as part of the MIV effort, The MIV campaign was led by Partnership T was very interesting. I learned a lot for Immigrant Leadership and Action (PILA) in collaboration with Bay Area and it was a great opportunity to get Immigrant Rights Coalition (BAIRC); to know other organizations and see California Partnership (CAP); Coalition how we can work together.” for Humane Immigrant Rights of Los Angeles (CHIRLA); National Network for —Maria Carrillo, member Immigrant and Refugee Rights (NNIRR); Mujeres Unidas y Activas and Services, Immigrant Rights, and Education Network (SIREN). The first of with voter education materials in a num- its kind in California, this statewide ber of languages, workshops in electoral Watch the DVD basics and issue analysis, media advocacy The New Los Angeles: Voting collaboration was funded by Akonadi Participation in the electoral process Foundation, Four Freedoms Fund, James training, and ongoing technical assistance. is an ultimate marker of immigrant Irvine Foundation, Liberty Hill Foundation, In their work with CBOs, MIV encour- integration. See how Latino and African- and The San Francisco Foundation. American labor, faith, and community aged a movement-building approach to leaders in Los Angeles launched an unprece- MIV views community-based organiza- elections as a way to both increase the dented grassroots get-out-the-vote tions (CBOs) as a critical infrastructure voices of immigrants in the 2004 elec- campaign. Their citywide, multi-ethnic coalition helped elect a Latino mayor for catalyzing and sustaining civic and tions and build capacity in immigrant focused on the entire city political participation in local communi- communities for effecting long-term “growing and prospering ties. Their ongoing presence and rela- change. The emphasis was on employing together.” tionships in the community position strategies that would lead to both of them to educate and mobilize their these outcomes. © Mujeres Unidas y Activas

199 The differences between a traditional electoral campaign and a movement- building campaign are illustrated through four contrasts:

1. Instead of ending a campaign after the election, the movement-building approach makes elections a part of a long-term strategy for making change in communities. This includes ongoing civic participation and organizing efforts between elections. © IPILA, MIV, Philipino Bayan Rescue Center © IPILA, MIV, 2. Instead of viewing the campaign community-based process that engaged in California and eliminated the need for as won or lost depending on election partner organizations and immigrant individual community organizations to results, a movement-building strategy community members in discussing develop their own. understands that the electoral work builds issues on the November 2004 ballot. relationships and energizes communities These issue forums encouraged direct The MIV collaborative was committed to regardless of election outcomes. community participation, providing a evaluating its work and to disseminating model of a process that both educates lessons learned from the campaign. 3. Instead of focusing on likely voters, voters and builds community capacity From the earliest planning stages of the the movement-building approach views to analyze policy issues. In this “bot- campaign, a framework for collecting voting as one of many ways to shift tom-up” approach, these discussions and assessing information was developed, power and make change, and it under- directly informed the development of activities were documented, and a post- stands that there is a place in electoral the voter guide that was distributed to election evaluation was conducted. A work for everyone, whether they are over 21,000 community members. A detailed report, Democracy at Stake? eligible to vote or not. number of participating organizations A Report on Outcomes and Lessons from the Mobilize the Immigrant Vote 2004 4. Instead of focusing solely on the replicated the discussion forums in their California Campaign was published in number of contacts made in the cam- own communities, building the capacity 2005. In addition, the MIV collaborative paign, the movement-building approach of those constituencies to debate and now has sample work plans and exten- also looks to strengthen organizations determine policy positions on their own. sive tools that have proven useful and and communities by increasing visibil- To facilitate the participation of limited have documented lessons on which to ity, forging new alliances, developing a English proficient immigrants, MIV pro- build in the future. stronger base of community leaders and vided translation services in a number volunteers, and linking election issues of languages at the public forums and The impact of MIV went well beyond to ongoing organizing. training sessions. The campaign also engaging immigrants in the 2004 elections. MIV laid the groundwork for Movement-building is a systemic developed and disseminated crucial a multi-ethnic, statewide movement approach that creates opportunities for multilingual voter education materials through building relationships and trust fuller engagement and builds lasting designed to be specifically relevant to among grassroots organizations. Fifty- capacity in communities. For example, low-income immigrant communities. nine percent of organizations that the MIV collaborative did not develop a These voter information materials reached participated in the campaign were col- platform for the campaign but led a tens of thousands of immigrant voters laborating with other organizations they had never worked with before to carry out electoral activities, and 95 percent affirmed that they want to be part of future MIV campaigns. MIV plans to continue to strengthen the capacity of this network to raise immigrant voices in the electoral process and beyond. © Mujeres Unidas y Activas

200 SUPPORTING THE CITIZENSHIP PROCESS

Naturalization is one of the ultimate framework envisions citizenship as a markers of immigrant integration. In a fully active endeavor. Civic participation 2003 national survey, two out of three during the naturalization process not immigrants indicated that “show[ing] a only helps prepare students for the exam, commitment and pride in being an but it also encourages active civic involve- American” is a major reason to naturalize.3 ment to which all citizens, native-born Reflecting this commitment to become or naturalized, should aspire. full members of society, increasing • Integrated voter education, numbers of immigrants became citizens

© Mark Harmel / Alamy registration, and participation. in the 1990s. As of 2004, 35 percent, Naturalization programs with this or about 12.4 million, of the total for- • Active outreach to educate new- component can improve the citizenship eign-born population in the United comers about the naturalization preparation process by helping natural- States were naturalized citizens.4 process. Citizenship fairs, promotion izing immigrants understand their through the ethnic media, and outreach Today, at least another eight million responsibilities as U.S. citizens. to service providers are some of the best immigrants are eligible for citizenship.5 ways to inform immigrants. Low levels of English proficiency, formal “ became a citizen because education, and income level characterize • High-quality, multi-media English a significant share of this population. language instruction materials to Ithis is my country; I have no For example, an estimated 60 percent increase citizenship candidates’ under- other. I’m going to live here. My are limited English proficient. Lack of standing of the history and government kids are going to live here. With of the United States. Such instruction information about citizenship presents all of us, we can make it a great another hurdle to naturalization. A is already an essential part of preparing country.” 2005 study commissioned by the Illinois immigrants to naturalize, but it will become –A Salvadoran immigrant Coalition of Immigrant and Refugee even more important once changes to the living in Los Angeles Rights found that most immigrants find citizenship test are instituted. out about naturalization through an • Bilingual English tutors, including • Advocacy, organizing, and acquaintance or on their own initiative.6 those who are recently naturalized. research to ensure that the new Eighty percent did not know the applica- Having peer tutors, especially ones with a citizenship examination strengthens tion cost, currently $320 and soon to rise. first-hand understanding of the naturaliza- the process, the immigrant, and the Immigrants will face additional barriers tion process, can enhance the learning community. Funders can support a to naturalization, including higher fees. and improve outcomes. range of local and national efforts, such But the redesign of the citizenship test as an independent task force, to moni- • Conveniently scheduled classes presents a more worrisome obstacle. tor policy development and implemen- and programs for working immigrants. The new test, to be launched in 2007 tation and to facilitate communication Citizenship classes, English courses, and possibly in a format similar to the SAT, between citizenship stakeholders and outreach events offered in the evenings, would put those with limited English at the U.S. Citizenship and Immigration on weekends, and in the workplace, ideally a greater disadvantage than the current Services, the bureau within the in partnership with employers, are much conversation-based examination. Department of Homeland Security that more accessible to newcomers, many of succeeded the INS. Foundations can Foundations wishing to address current whom work long hours and multiple jobs. also support research on denials of citi- and future barriers and promote natu- • Legal consultation for citizenship zenship and on the experience of par- ralization among eligible immigrants applicants. Application-assistance pro- ticularly vulnerable subgroups under a can support programs that incorporate grams must have legal expertise to help new examination regime. the following promising practices: prospective applicants identify “red flags” in their backgrounds that could put them at risk by entering the naturalization 3. This new federation includes the Service process. A minor criminal conviction in the “ he way I look at it is I want Employees International Union, United Food distant past, for example, can place an and Commercial Workers, UNITE/HERE, Teamster, T to become a citizen to vote immigrant in deportation proceedings. Carpenters, Laborers, and Farmworkers. 4. Passel, Jeffery S. 2005. Unauthorized because I wanted to make a Therefore, funders should support only Migrants: Numbers and Characteristics. difference. It’s as simple as that.” programs that give every application care- Washington, D.C.: Pew Hispanic Center. June. –A Jordanian immigrant ful legal review. 5. Ibid. living in Virginia 6. Metro Chicago Information Center. 2005. • Engagement of naturalizing immi- “Preliminary Research Findings: New Americans grants in community problem solving Survey.” Chicago, IL: Illinois Coalition for Immigrant and Refugee Rights. June. and civic life. The immigrant integration

201 EVALUATING CIVIC PARTICIPATION EFFORTS

Civic participation among immigrants Foundations can determine if outcomes On the part of the receiving can take many forms, from improving a occurred by collecting information such as community, foundations can observe neighborhood park, a civic activity in the following: changes made by civic organizations which non-naturalized citizens can par- and government entities in the • Amount of time spent attending ticipate, to voting and running for following areas: meetings or volunteering in activities office, once they are naturalized. and/or money contributed to various • Change in meeting times and Participation in communitywide plan- types of civic and community locations to make it easier for ning processes for social change is also organizations, such as cultural and immigrants to participate. an important form of civic participation linguistic associations, religious (see section on communitywide • Improved knowledge about institutions, and hometown associations. planning). incentives and barriers to immigrant • Number of contacts with local and participation. To promote these forms of participa- federal officials on a community or tion, foundations can support initiatives • Allocation of time to listening to national concern. and institutions that help immigrants each person’s views and for individual develop the ability to influence deci- • Percentage of immigrants who and collective reflection. sions that affect their lives, understand participate in the following civic acts and • Active outreach to and inclusion how systems are organized in the the frequency of these acts: of newcomers in their work, e.g., United States, enhance the skills to • Attending community meetings to diversifying their boards, staff, and express their concerns to decision mak- discuss and solve community problems. volunteers, providing interpretation ers and others, and gain access to an • Organizing groups, ideally at meetings. infrastructure that will provide them working both with other newcomers with the necessary support for becom- and established residents, to solve • Creation of additional opportuni- ing civically engaged. community problems. ties for newcomers to participate in • Voting in local, state, and community problem solving. These initiatives will result in outputs national elections. which, in turn, can lead to activities • Participating in non-partisan voter such as voting, collective action to registration drives. improve their communities, and serving • Persuading others to register on governing or advisory boards. In to vote (e.g., nonpartisan voter the process of doing so, immigrants registration drives). consciously become stronger leaders, • Organizing nonpartisan capable of bringing about more change candidate forums. by mobilizing other people to do the same. Civic institutions in the receiving community will also be transformed in the process, becoming more inclusive and democratic.

202 EVALUATING CIVIC PARTICIPATION EFFORTS

OUTCOMES For all immigrants, regardless of immigration status:

• Community voluntarism.

OUTPUTS • Participation in collective action and advocacy efforts. • Belief that one can make a difference. • Contact with elected IMMIGRANT INTEGRATION representatives at all levels of • Understand benefits government. of participation. • Broader and more diverse These outcomes • Stronger communication These outputs encourage civic relationships. encourage and interpersonal skills participation, and integration, and (e.g., active listening, as participation • Stronger civic and political as integration public speaking). increases, these leadership. gradually occurs, outputs will also these outcomes • More informed about become more • Serve on governing or advisory will also become U.S. systems and what is widespread. bodies. more widespread. happening in the community, state, and nation. For naturalized immigrants:

• Infrastructure for civic • Voter participation in local, participation (e.g., state, and national elections. establishment of forums, • Running for elected positions. training, and support). For receiving community:

• Stronger, more diverse leaders.

• More inclusive and democratic institutions.

SOURCES: McGarvey, Craig. 2004. Pursuing Democracy’s Promise. Sebastopol, CA: Grantmakers Concerned with Immigrants and Refugees in collaboration with Funders’ Committee on Civic Participation.

Parachini Larry and Sally Covington. 2001. The Community Organizing Toolbox: A Funder’s Guide to Community Organizing. Washington, D.C.: Neighborhood Funders Group. April.

Prestby, J.E., Wandersman, A., Florin, P., Rich, R., & Chavis, D. 1990. Benefits, costs, incentive management and participation in voluntary organizations: A means to understanding and promoting empowerment. American Journal of Community Psychology, 18 (1), pp. 117-149.

203 204 Films about the Experiences of Newcomers in America

n these films, released in the past several years, immigrant families— Iand those with whom they work, go to school, and interact—describe their experiences in their own words. To help the readers consider ways to utilize documentaries as educational tools, we’ve included some comments from grantmakers about how they are using these films at their foundations and in their communities.

INTRODUCTION 207

IMMIGRANT INTEGRATION: THE NEWCOMER’S PERSPECTIVE 208

JOURNEY TO HOMELAND 213

PROFILES 215

NEW & COMING ATTRACTIONS 216

205 206 INTRODUCTION ndependent filmmakers have been SPECIAL THANKS Icapturing the stories of immigrants in the United States for decades, but Active Voice played the lead role in the exponential growth of the immigrant producing the filmography, and we extend population over the past 15 years has our deepest appreciation to its entire generated a surge of high-quality docu- staff but especially to Ellen Schneider, mentaries in recent years. Grace Eng, and Steve Bartz. We also thank Grantmakers in Film and Electronic Putting a human face on complex Media (GFEM) and David Haas for their immigration issues, these films are early support of the filmography and for powerful tools to educate foundations, sharing their expertise with us. We look policymakers, business and civic leaders, forward to partnering with both Active and the general public. They bring today’s Voice and GFEM in the future! rich and varied immigrant integration experiences to life and illustrate the Our thanks go to all the curators, human consequences of policy decisions distributors, and funders who brought in a way that statistics and words alone many of these films to our attention can never do. and who share our excitement for this body of work. Finally, we salute all of This filmography, curated by the talented the filmmakers working on immigrant- staff of Active Voice, highlights nearly related issues—whether or not their 40 films that can open the hearts and works appear in this filmography—for minds and set the stage for productive their creativity and for bringing these discussions on immigration and immigrant powerful stories of today’s immigrants integration. This list is, by no means, to the public’s attention. comprehensive, and we invite you to let us know about other high-quality titles that can inform community discussions ABOUT ACTIVE VOICE on immigrant issues. WWW.ACTIVEVOICE.NET

Clips from many of these films, along Active Voice is a team of strategic with discussion questions, are available communication specialists who put on the enclosed DVD-ROM to help you powerful media to work for personal engage foundation colleagues and others and institutional change in communities, in your communities in productive workplaces, and campuses across America. discussions. And if you agree that these Through its practical guides, hands-on clips help build understanding, we strongly workshops, stimulating events, and part- encourage you to consider acquiring the nerships nationwide, Active Voice moves full-length documentaries. All the people from thought to action. By high- distribution information is available lighting compelling personal stories and in this filmography. perspectives seldom found in mainstream media, Active Voice offers a much-needed As your foundation considers immigrant outlet to people across America to speak issues, let us know how we at GCIR and out, listen up, and take the initiative Active Voice can help you use these for positive change. film and video resources to inform your discussions and deliberations. We invite 2601 Mariposa Street you to tell us what you’re learning and San Francisco, CA 94110 whether and how these resources are Tel: 415.553.2841 Fax: 415.553.2848 making a difference in your foundation’s response to the immigration-driven demographic, social, and economic changes taking place in your communities.

207 IMMIGRANT CALIFORNIA AND THE DISTRIBUTED BY AMERICAN DREAM Berkeley Media INTEGRATION: 510-486-9900 Producers/Directors: Paul Espinosa www.berkeleymedia.com THE NEWCOMER’S and Lyn Goldfarb PERSPECTIVE www.beyondthedream.org FUNDED BY The Corporation for Public Broadcasting The Price of Renewal, produced and PBS directed by Paul Espinosa, examines The Ford Foundation community development, philanthropy, and The Independent Television Service (ITVS) civic engagement as an inner-city neigh- Native American Public borhood is redeveloped through a public- Telecommunications private partnership. Set in City Heights, the The Skirball Foundation n these films, released in Ellis Island of San Diego, the film explores Latino Public Broadcasting the past several years, the challenges of creating a vibrant urban I village from an ethnically, culturally, Center for Asian American Media immigrant families—and those and economically diverse population. The California Council for the with whom they work, go to Humanities school, and interact—describe The New Los Angeles, produced and their experiences in their own directed by Lyn Goldfarb, explores the complexities of inclusion in America’s words. We’ve included some largest majority-minority city and the comments from grantmakers new political empowerment of Latinos about how they are using these and immigrants. This portrait of a city films at their foundations and in transition, begins with the multiracial in their communities. coalition which elected Tom Bradley as Mayor in 1973 and ends with the 2005 election of Antonio Villaraigosa, the first Latino Mayor in more than 130 years.

“…a coming of age story, where the intersection of electoral politics, grassroots organizing and coalitions have transformed a city… foreshadows the CAUGHT IN THE CROSSFIRE: choices that cities across the nation will ARAB-AMERICANS IN WARTIME face when increased immigration, the Directors: David Van Taylor proliferation of low-wage jobs, and a and Brad Lichtenstein shrinking middle class force city leaders to rethink their priorities. It is a hopeful www.pbs.org/itvs/caughtinthecrossfire/ story about ordinary people changing Before 9/11, Arab-Americans were an their lives and their city…” immigrant group like any other. Now, — Peter Dreier, Director many feel as if their “Arab” and Urban & Environmental Policy program “American” identities are at war. Caught Occidental College in the Crossfire chronicles three diverse Arab New Yorkers—a beat cop, a minis- ter, and a high-level diplomatic corre- spondent—as they wrestle with their place in wartime America.

“In its acute eye and ear for quotidian detail, and in its compassion for innocents, the film proves undeniably affecting.” — The New York Times

208 DISTRIBUTED BY DISTRIBUTED BY Latino Public Broadcasting First Run/Icarus Films PBS The Horace and Amy Hagedorn Foundation www.frif.com/new2002/cau.html www.ShopPBS.org New York State Council for the Arts The Bishop John R. McGann Fund FUNDED BY FUNDED BY The Soros Documentary Fund Independent Television Service The Corporation for Public Broadcasting The Long Island Community Foundation John D. and Catherine T. MacArthur PBS Foundation The Mary Duke Biddle Foundation Public Broadcasting Service Avid Technologies Corporation for Public Broadcasting FARMINGVILLE Generous individual donors Center for Asian American Media Producers/Directors: Carlos Sandoval Evangelical Lutheran Church in America and Catherine Tambini Metropolitan New York Synod www.pbs.org/pov/pov2004/farmingville/ www.FarmingvilleTheMovie.com

The shocking hate-based attempted murders of two Mexican day laborers catapult a small Long Island town into national headlines, unmasking a new frontline in the border wars: suburbia. For nearly a year, the filmmakers lived and worked in Farmingville, New York, HOLD YOUR BREATH so they could capture first-hand the Director: Maren Grainger-Monsen stories of residents, day laborers, and http://medethicsfilms.stanford.edu activists on all sides of the debate. Hold Your Breath follows the dramatic “Farmingville is a primer for anyone— journey of Mohammad Kochi, a refugee whether lawmaker or citizen—who cares from Afghanistan. An intensely religious to better understand the usually unseen man with a limited understanding of DESTINATION AMERICA cost of America’s appetite for cheap English, Mr. Kochi is diagnosed with labor.” Producers: David Grubin Productions cancer in his late fifties. As he struggles — Carolyn Curiel, The New York Times to cope with his progressing illness, he www.pbs.org/destinationamerica/ index.html DISTRIBUTED BY must navigate his way through the col- Docurama liding cultures of Islam, with its deep They left all that they knew to make 212-206-8600 faith in Allah, and western medicine, with perilous journeys to a country shrouded www.docurama.com its steadfast belief in science. Through in myth and legend. Some came to the intimate emotional experiences of escape religious persecution and politi- In Mexico: the Kochi family and the well-inten- cal tyranny. Some came to escape Cineteca Nacional tioned efforts of the medical practition- poverty, to make a new beginning, to www.cinetecanacional.net ers, Hold Your Breath illuminates the provide support for families they left pivotal role of cross-cultural communi- FUNDED BY behind. They have come for two hundred cation in one man’s battle with cancer. years, and they still come today, for ITVS many reasons, but with one common The John D. and Catherine T. MacArthur “…a lovely and moving meditation on Foundation bond: their destination… America… the clash between religion, culture, and Destination America explores this The Sundance Institute Documentary Fund modern medicine. I was touched as an remarkable mass migration from through- Afghan. And as a physician, I was reminded out the world in four one-hour episodes. once again of the difficulties of bridging cultural chasm.” “…takes in, among many others, — Khaled Hosseini migrant workers from south of the bor- Author of best-selling novel, der; modern dancers from Taiwan; and The Kite Runners women who flee second-class citizenship or servitude in Guatemala, the Middle DISTRIBUTED BY East, and even Italy. This is the sort of Transit Media television that puts faces on stats, but 1-800-343-5540 it’s also almost elegiac: these are the doors we are bolting behind us.” — John Leonard, New York Magazine 209 FUNDED IN PART BY that is fundamentally altering America’s The California Endowment sense of itself. What happens when The Commonwealth Fund white people and white culture no longer The Greenwall Foundation dominate? This film explores power and The Arthur Vining Davis Foundation identity in small-town America. “The questions raised are powerful; the LOST BOYS OF SUDAN answers provided are few. The only rem- edy is an ongoing discussion. Clearly, this Producers/Directors: Megan Mylan is the American story: It’s what we were and Jon Shenk talking about before 9-11, it’s what we’ll www.LostBoysFilm.com MAID IN AMERICA be talking about long after.” —The Sun-Sentinel Lost Boys of Sudan follows two Sudanese Producers: Kevin Leadingham and Anayansi Prado refugees on their journey from Africa to DISTRIBUTED BY Director: Anayansi Prado America. Orphaned in one of Africa’s PBS cruelest civil wars, Peter Dut and Santino www.impactofilms.com www.ShopPBS.org Chuor survived lion attacks and militia gunfire to reach a refugee camp in Kenya. They clean other people’s homes and FUNDED BY From there, they were chosen to come raise other families’ children, often leav- National Black Programming Consortium to America. Safe at last from physical ing their own families behind. Maid in Latino Public Broadcasting danger and hunger, they confront the America offers an intimate look into the Pacific Islanders in Communications abundance and alienation of America. lives of three Latina immigrants working Center for Asian American Media as nannies and housekeepers in Los Native American Public “Fascinating! Getting an audience so Angeles—three of the nearly 100,000 Telecommunications, Inc. caught up is no small feat; it is a tribute domestic workers living in that city Corporation of Public Broadcasting to the directors’ storytelling.” today. A rare view into an increasingly Minority Fund — Elvis Mitchell, The New York Times common scenario, this film explores the CPB Challenge Fund globalization of motherhood and offers PBS DISTRIBUTED BY insight into the immigrant experience. The Fannie Mae Foundation Actual Film/Principe Productions 415-575-9988 “They might mostly be invisible people The John D. and Catherine T. MacArthur Foundation [email protected] in our society but not underappreciated (and not overpaid at about $5 an hour). The Ford Foundation FUNDED BY What’s vital to know is that they, too, The Annie E. Casey Foundation Sundance Documentary Fund keep their eyes on that elusive prize The Nathan Cummings Foundation Pacific Pioneer Fund called the American Dream.” The Independent Television Service Fleishacker Foundation — Irv Letofsky, Hollywood Reporter Den-Mat, Inc. DISTRIBUTED BY Nu Lambda Trust Women Make Movies Produced in association with American 212-925-0606 Documentary, Inc. and ITVS with funding www.wmm.com provided by the Corporation for Public FUNDED BY Broadcasting The John D. and Catherine T. MacArthur Foundation MUHAMMAD: LEGACY OF A PROPHET THE DIVIDE (FROM MATTERS OF RACE SERIES) Producers: Kikim Media and Unity Productions Foundation Executive Producer: Orlando Bagwell Program Producer: John Valadez www.kikim.com/xml/ projects.php?projectId=4 www.pbs.org/mattersofrace/prog1.shtml www.upf.tv/projects/muhammad.php Ten years ago, Siler City, North Carolina was a black and white town of segre- Muhammad: Legacy of a Prophet tells gated communities with a shared geog- the story of the seventh-century prophet raphy and an unsettled history. This who changed the world history in 23 quiet, rural southern town is a “labora- years and continues to shape the live of tory” for the national transformation more than 1.2 billion people. The film 210 takes viewers not only to ancient Middle DISTRIBUTED BY America. The detailed portraits—woven Eastern sites where Muhammad’s story Souvenir Pictures, Inc. together in the seven-hour miniseries— unfolds, but into the homes, mosques, 323-512-4677 present a kaleidoscopic picture of immi- and workplaces of some of America’s [email protected] grant life and a personal view of the estimated seven million Muslims to www.souvenirpictures.com new America. discover the many ways in which they follow Muhammad’s example. FUNDED BY “Always compelling and frequently heart- Independent Television Service wrenching…” “…the documentary is well worth watch- Latino Public Broadcasting — Jabari Asim, The Washington Post ing both as the first serious attempt to tell the story of Muhammad on television SERIES DISTRIBUTED BY and also as a testimony to the hypersen- PBS sitivity of our times.” www.ShopPBS.org — Alessandra Stanley, The New York Times Image Entertainment DISTRIBUTED BY 818-407-9100 Kikim Media/Unity Productions ENGAGEMENT MODULES DISTRIBUTED BY 888-786-0444 www.activevoice.net

FUNDED BY FUNDED BY The Corporation for Public Broadcasting The John D. and Catherine T. MacArthur The David and Lucile Packard Foundation Foundation Arabian Bulk Trade ITVS Sabadia Family Foundation TEENS IN BETWEEN CPB PBS The El-Hibri Foundation Producer/Director: Debbie Brodsky The Irfan Kathwari Foundation BBC www.mhznetworks.org/teensinbetween/ Mir Imran Annie E. Casey Foundation Teens in Between takes an intimate VPRO - The Netherlands Television Additional funding was provided by many look at the challenges and triumphs of Woods Foundation other organizations and individuals. recent immigrant teens. This documen- SBS - Austrailia Television tary follows the stories of five students Asian Women United Fund/NAATA RECALLING ORANGE COUNTY from Somalia, Honduras, Egypt, and Soros Documentary Fund Vietnam, as they struggle to make it Sundance Documentary Fund Producer/Director: Mylène Moreno through a year of high school in America. Latino Public Broadcasting Illinois Humanities Council Reflecting on her experience growing “A fascinating and candid look at Kansas Humanities Council up as the daughter of immigrants in America’s newest teens.” California’s Orange County, documentary California Council on the Humanities — Patricia Brennan, filmmaker Mylène Moreno follows a Individual Donors Washington Post TV Week fierce battle against a controversial immigrant rights activist there. She DISTRIBUTED BY discovers as much division within the MHz NETWORKS Latino community as between the tradi- 800-343-5540 tional establishment and the county’s www.mhznetworks.org increasingly vocal newcomers. FUNDED IN PART BY “…stimulates a lot of rich discussion The Verizon Foundation about how structure shapes agency or who has the power to determine educational policy and, more importantly, what THE NEW AMERICANS it means to be American in our coun- Executive Producers: Steve James try… Very provocative…” and Gordon Quinn — Gordon Suzuki, Ed.D. Series Producer: Gita Saedi Graduate School of Education and Information Studies www.pbs.org/independentlens/ University of California, Los Angeles newamericans/newamericans.html The New Americans follows four years in the lives of a diverse group of contemporary immigrants and refugees as they journey to start new lives in 211 THE SIXTH SECTION “Worlds Apart is unique among films on cross-cultural health because it is a film Producer/Director: Alex Rivera showing real people. Real people are so www.sixthsection.com much more powerful than actors; it is much more believable and emotionally The Sixth Section tells the story of how charged.” immigrants in America are organizing— — Suganya Sockalingam, National and finding political and economic Center of Cultural Competence power in the places they’ve left behind. The Sixth Section is the first film to DISTRIBUTED BY depict the transnational “hometown Fanlight Productions association” movement. 800-937-4113 RAIN IN A DRY LAND www.fanlight.com “This is a deftly choreographed, startlingly Producer/Director: Anne Makepeace personal film...an important first look at FUNDED IN PART BY a whole world that is still too invisible to The California Endowment Rain in a Dry Land is a portrait of two those outside it.” The Commonwealth Fund remarkable families, refugees from — Angela Jamison, UCLA Labor Center The Greenwall Foundation Somalia, who find new homes in urban The Arthur Vining Davis Foundation America. The film captures their strug- DISTRIBUTED BY gles, their triumphs, their poetry, their SubCine humor, and their amazing resilience as 212-253-6273 they show us our world through new [email protected] eyes. It was nominated for the Social Justice Award at the 2006 Santa Barbara FUNDED BY International Film Festival. P.O.V. The John D. and Catherine T. Macarthur ”Rigorously intimate and disarmingly Foundation affectionate, Rain in a Dry Land is The Rockefeller Foundation in the forefront of the current crop of immigration chronicles... Makepeace never reduces [the families] to devices WORLDS APART or symbols or anything less than human Producers: Maren Grainger-Monsen, M.D. beings caught in the cross-hairs of and Julia Haslett global politics.” — John Anderson, VARIETY http://medethicsfilms.stanford.edu/

FOR MORE INFORMATION Worlds Apart is a series of four short Anne Makepeace films that explore cultural conflicts over Makepeace Productions medical treatment. Each film follows 917-674-1933 one patient and his or her family— Afghan, Laotian, African-American, and [email protected] Puerto Rican—faced with critical med- FUNDED BY ical decisions as they navigate their way The Ceil and Michael Pulitzer Foundation through the U.S. health care system. Sundance Documentary Fund ITVS/CPB Ford Foundation P.O.V.

212 JOURNEY TO DAUGHTER FROM DANANG FUNDED BY Major Funding provided by: THE HOMELAND Producer: Gail Dolgin Directors: Gail Dolgin and Vicente Franco Corporation for Public Broadcasting www.daughterfromdanang.com Additional Funding Provided by: Wallace Alexandra Gerbode Foundation In 1975, as the Vietnam War was end- Humanities Iowa ing, thousands of orphans and Hannah Kranzberg Amerasian children were brought to the United States as part of “Operation Maya Miller Babylift.” Daughter from Danang tells Kit Miller the story of one of these children and Carol Bernstein Ferry her Vietnamese mother, reunited after Pamela Krasney hese films, which follow 22 years. Unitarian Universalist Services Committee M. Brinton Lykes immigrants or the children T “Quite simply one of the best and most of immigrants back to their profound documentaries I have seen in homelands, can be wonderful years.…splendid!” THE FLUTE PLAYER catalysts for exploring issues — John Petrakis, Chicago Tribune Producers: Jocelyn Glatzer and of identity, transnationalism, Christine Courtney DISTRIBUTED BY Director: Jocelyn Glatzer and our increasingly global Balcony Releasing lives. They can help connect 781-209-2030 www.thefluteplayer.net U.S. immigration to the www.ShopPBS.org Arn Chorn-Pond was just a boy when the international phenomenon FUNDED IN PART BY Khmer Rouge regime overran Cambodia of migration. The Corporation for Public Broadcasting and turned his country into a ghastly land of “killing fields.” Now, after living Open Society Institute in the United States for 20 years, Arn Zellerbach Family Fund journeys back to Cambodia as he seeks Wallace Alexander Gerbode Foundation out surviving master musicians and Film Arts Foundation faces his war-torn past.

DISTRIBUTED BY DISCOVERING DOMINGA Center for Asian American Media Producer/Director: Patricia Flynn 415-552-9550 Co-producer: Mary Jo McConahay www.centerforasianamericanmedia.org

www.discoveringdominga.com FUNDED BY Living in Iowa, Denese Becker was Independent Television Service haunted by memories of her Mayan Center for Asian American Media childhood. A quest for her lost identity The Corporation for Public Broadcasting in Guatemala turns into a journey of Sundance Documentary Fund political awakening that reveals a geno- Roy W. Dean Fund cidal crime and the still-unmet cry for The Wellspring Foundation justice from the survivors. The LEF Foundation The Peter S. Reed Foundation “History can be especially compelling The Lucius and Eva Eastman Fund when it’s personal. Witness the latest film in the P.O.V. series, the story of an Iowa woman’s return to the scene of a 1982 Guatemalan massacre that claimed her parents.” — Josh Friedman, Los Angeles Times

DISTRIBUTED BY Berkeley Media 510-486-9900 www.berkeleymedia.com

213 MY JOURNEY HOME DISTRIBUTED BY Center for Asian American Media Executive Producers: Jeff Bieber 415-552-9550 and Renee Tajima-Pena www.centerforasianamericanmedia.org Producers: Renee Tajima-Pena and Lourdes Portillo FUNDED BY www.pbs.org/weta/myjourneyhome/ ITVS journey/ Center for Asian American Media Rockefeller Foundation My Journey Home traverses the conflicted, Film/Video/Multimedia Fellowship cultural landscape of the United States through the perspective of new Creative Capital American voices known and unknown. San Francisco Art Commission Cultural Traveling back to Nigeria, Vietnam, Equity Grant Mexico, and the American Southwest, they delve into their personal histories of buried pasts, a missing father, and mixed heritages. DISTRIBUTED BY “Journey looks at more than cultural LCMAC identities; it’s interested in personal and 510-233-8015 family ones as well. This all-encompass- www.pasajero.info ing approach is what gives it its bite.” FUNDED BY — TV Guide The James Irvine Foundation DISTRIBUTED BY Cultural Contact WETA SENTENCED HOME 703-998-2802 Producers/Directors: David Grabias FUNDED BY and Nicole Newnham Corporate funding provided by Farmers Insurance Sentenced Home tells the personal stories behind the ongoing deportations Additional funding was also provided by: of Cambodian-Americans as a result of The Corporation for Public Broadcasting post-9/11 U.S. immigration policy. The Latino Public Broadcasting documentary follows three deportees’ The Rockefeller Foundation sagas full-circle—from birth in the Charles Stewart Mott Foundation Killing Fields, to their youth on America’s mean streets, to an unwilling return PASAJERO, A JOURNEY decades later—while exploring the social, OF TIME AND MEMORY REFUGEE cultural, and historical reasons for the deportees’ fate. Producer: Eugene Rodriguez Producer/Director: Spencer Nakasako Director: Ricardo Braojos www.refugeethemovie.com “…a bracing account of three Cambodian www.pasajero.info Americans—”children of the Khmer For Mike Siv, the trip begins innocently Rouge”—who came to this country as Pasajero, A Journey of Time and enough. “Me and my homies, David and refugees and have now, under new rules Memory is the story of a group of young Paul, we’re going to Cambodia. We’ll see enforced by the callous Immigrant Mexican-American musicians who accom- the sights, visit family, have some fun.” Responsibility Act of 1996, been deported pany their mariachi maestro on his These three young refugees, raised on to a nation they do not remember.” homecoming to Mexico. Together they the streets of San Francisco’s tough —Anthony Kaufman, The Village Voice perform a forgotten style of roots mari- Tenderloin district, head back to achi music and dance and meet people Cambodia for the first time, and they DISTRIBUTED BY who embody the spirit of old Mexico. will never be the same. Sentenced Home Productions 323-661-4700 “Pasajero successfully combines music “…a vivid sense of personal adventure . [email protected] with storytelling, creating a tale of a for- . . sports considerable dynamism, narra- gotten Mexican tradition told by the folks tive oomph and emotional directness.” FUNDED BY who lived it and the young people strug- — Dennis Harvey, VARIETY Center for Asian American Media gling to reclaim their heritage.” The Sundance Documentary Fund — Les Blank, documentary filmmaker ITVS 214 Generous individual donors PROFILES DISTRIBUTED BY Women Make Movies 212-925-0606 www.wmm.com

FUNDED BY The Corporation for Public Broadcasting The Lef Foundation The Women in Film Foundation Film Finishing Fund/Dockers Khakis for Women Independent Vision Grant 90 MILES Producer/Director: Juan Carlos Zaldívar e asked colleagues in the LOS TRABAJADORES Wmedia field to recommend 90 Miles is a feature documentary about Producer/Director: Heather Courtney other films about the contem- how the relationships within a Cuban porary immigrant experience. family are shaped by the rift between Through the stories of two men, Ramon and Juan, and through the controversy This section contains many of the United States and Cuba and the immigration process. It is a film about surrounding the relocation of a day-labor their suggestions—new stories the effects of immigration, a struggle site from downtown to a residential about the contributions, for identity, and what happens to people neighborhood, Los Trabajadores examines challenges, and individual around the world because of politics. the misconceptions and contradictions journeys of immigrants to the inherent in America’s paradoxical history DISTRIBUTED BY United States. of both dependence on and discrimination Frameline against immigrant workers. 415-703-8650 www.frameline.org DISTRIBUTED BY New Day Films FUNDED IN PART BY 888-367-9154 Jerome Foundation www.newday.com The Lucius and Eva Eastman Fund The New York Foundation for the Arts FUNDED BY The Cuban Artist Fund Texas Filmmakers Production Fund New York State Council on the Arts Texas Council for the Humanities Public Broadcasting Service City of Austin Cultural Contracts The Corporation for Public Broadcasting National Endowment for the Arts SEARCHING FOR ASIAN AMERICA Series Producer: Donald Young www.pbs.org/searching/

Through intimate profiles of individuals and communities from across the country, this 90-minute program serves up a taste of what it’s like to be Asian American in today’s ever-changing United States. Hosted by popular Today show host Ann Curry.

DISTRIBUTED BY MAI’S AMERICA Center for Asian American Media Producer/Director: Marlo Poras 415-552-9550 www.centerforasianamericanmedia.org A spunky, mini-skirted daughter of Ho Chi Minh’s revolution leaves cosmopoli- FUNDED BY tan Hanoi on a high-school exchange The Corporation for Public Broadcasting program and finds an America she never dreamt existed when she lands in rural Mississippi. 215 NEW & COMING A DREAM IN DOUBT their lives as child refugees fleeing a violent civil war and as social pariahs ATTRACTIONS Producer: Tami Yeager after they are sent back to El Salvador. They find acceptance among poor A Dream in Doubt is a one-hour docu- Salvadoran youth who idolize them and mentary about post 9/11 hate crimes form new branches of Los Angeles’ two against Sikhs in Phoenix. Balbir Singh most violent gangs. Alex, Bullet, and Sodhi was the first American killed in Weazel reform their lives and try to help the backlash against “Arab-looking” halt the spread of gang violence in Americans after 9/11. This program tells Central America, but this work puts the story of his murder and other recent them in the line of fire of warring gang hate crimes. members and reemerging death squads. For more information: For more information: n this section, we identify 718-388-9258 [email protected] Idocumentaries currently [email protected] www.fruitsofwar.com in production that tackle wide- ranging immigration and immi- CROSSING ARIZONA grant integration issues. Keep GOLDEN VENTURE Executive Producer: Joel Pomeroy an eye out for these works- Producer: Peter Cohn in-progress suggested by Crossing Arizona is an up-to-the- Golden Venture tells the story of four colleagues in immigration, moment look at the hotly debated Chinese immigrants who came to the filmmaking, and philanthropy. issues of illegal immigration and border United States on the freighter Golden security on the U.S.-Mexico border. Venture, which ran aground off New York For more information: City in 1993. The INS rounded up the Rainlake Productions survivors and locked them in prisons 212-343-0777 where some languished for four years. [email protected] Golden Venture is a global epic played www.rainlake.com out in the shadow of national politics. www.crossingaz.com For more information: Hillcrest Films DASTAAR 212-799-6788 [email protected] Producer/Director: Kevin Lee www.goldenventuremovie.com

Dastaar: Defending Sikh Identity presents the struggle of the Sikh American GRASSROOTS RISING community against discrimination and violence caused by ignorance of the Executive Producer: Linda Mabalot dastaar, the turban which is an essential Producers: Leslie A. Ito & Robert C. Winn symbol of the Sikh faith. Grassroots Rising is an evocative explo- For more information: ration of Asian Pacific Islander working [email protected] families in Los Angeles. The film weaves www.alsolikelife.com/Filminformation/ together powerful interviews, live-action dastaar.html footage, and the voices of low-wage Asian immigrants at the forefront of worker-led movements to build a just FRUITS OF WAR community in Los Angeles.

Director: Josiah Hooper For more information: 213-680-4462 Fruits of War tells the story of three [email protected] young men—Alex, Bullet, and Weazel— www.grassrootsrising.com who were deported to El Salvador for crimes committed while involved in Los Angeles street gangs. The film chronicles

216 THE GUESTWORKER MADE IN L.A. NEW YEAR BABY Producers/Directors: Cynthia Hill Producers: Almudena Carracedo Producer/Director: Socheata Poeuv and Charles Thompson and Robert Bahar Director: Almudena Carracedo Born in a Thai refugee camp on The Guestworker profiles 66-year-old Cambodian New Year, Socheata grew up Candelario Gonzales Moreno who has Made in L.A. documents the lives, in the United States never knowing that been coming to the United States from struggle, and personal transformation of her family had survived the Khmer Mexico for 40 years to harvest our crops three Latina immigrants working in gar- Rouge genocide. In New Year Baby, she and provide for his family. Without ben- ment factories in Los Angeles. Through embarks on a journey to Cambodia in efits, without retirement, he battles their stories, filmed over three years, search of the truth and why her history against the elements, his own age, and Made in L.A. artfully reveals the chal- had been buried in secrecy for so long. the backbreaking work, returning to the lenges facing immigrants and explores same farm year after year as The the ever-changing impact of globaliza- For more information: Guestworker. tion on their lives. 917-538-9644 [email protected] For more information: For more information: www.newyearbaby.net 919-682-6795 [email protected] [email protected] www.madeinla.com www.docsouth.com STRUGGLE & FLOW: IN NINE TRACKS MAQUILAPOLIS Producer/Director: Mike Siv Producer/Director: Vicky Funari The film portrays Prach Ly’s life from Maquilapolis is a documentary by and his birth in a concentration camp in about workers in Tijuana’s assembly fac- Cambodia, to his escape to Thailand, to tories, the maquiladoras. The project is his growing up in the housing projects a collaboration among the filmmaker, of Long Beach, and ultimately, to his artist Sergio De La Torre, and Tijuana trying to make it as a Cambodian rapper. women’s organization Grupo Factor X. For more information: For more information: LETTERS FROM THE OTHER SIDE [email protected] 707-557-0946 Producer/Director: Heather Courtney [email protected] www.maquilapolis.com/project_eng.html WHOSE CHILDREN ARE THESE? Letters from the Other Side interweaves video letters carried across the U.S.- Producer/Director: Theresa Thanjan Mexico border by the film’s director with MY AMERICAN DREAM Whose Children Are These? provides a the personal stories of women left Producers/Directors: Michael Camerini glimpse into the post 9/11 world of behind in post-NAFTA Mexico. The film- and Shari Robertson three youngsters affected by the federal maker speaks directly with her subjects policy of Special Registration and preju- through her unobtrusive camera, provid- Demographics, globalization, and global dice. The film tells the stories of three ing a look at the lives of the people terrorism all have turned the process of Muslim youth: an honors student whose who are most affected by today’s immi- shaping U.S. immigration policy into a father was put into a detention center, gration and trade policies. unique, and in many ways profound, a popular high-school athlete who con- national drama. My American Dream For more information: fronts pending deportation, and a will be a multipart television series fol- 512-565-1628 youngster who finds a new life’s calling lowing a wide-ranging group of partici- [email protected] to combat bias crimes in New York City pants in the struggle to reshape immi- www.sidestreetfilms.com as a youth activist. gration policy in post-9/11 America. For more information: For more information: NYC Maharani Productions The Epidavros Project, Inc. 917-549-3481 [email protected] [email protected] www.wellfoundedfear.org www.nycmaharanifilms.com

217 218 History of U.S. Immigration Law and Policy

he history of U.S. immigration reflects the social, economic, and Tpolitical climate of the time. It also illustrates the nation’s ongoing ambivalence about immigration, as well as offers insights on the role of race, prejudice, fear, and nativism in shaping U.S. immigration policy. This section provides a quick overview of U.S. immigration law and policy from the 1700s to May 2006.

“ es, we need to control our borders. No one argues with that… But we Y don’t need ballot initiatives that make people think we want them to abandon their hopes because some of us don’t believe the American Dream is big enough to share anymore.” —Senator John McCain, R-AZ, 2005

“ e can’t strenthen our nation’s borders Wby strangling our nation’s economy.” —Representative John Boehner, R-OH December 2005

219 220 HISTORY OF 1790: Congress passed a law allowing 1965: Thanks to the Civil Rights naturalization for “free white persons.” Movement of the 1960s, the 1965 U.S. IMMIGRATION This racial requirement remained in Immigration Act eliminated race-based LAW AND POLICY effect until 1952, although naturaliza- admission criteria and instituted ones tion was opened to immigrants from based on the would-be immigrant’s certain Asian countries in the 1940s. skills, profession, or relationship to family in the United States. 1798: The passage of the Aliens and Sedition Acts authorized the President 1975: Congress passes legislation to to deport any foreigner deemed to be permit the resettlement of Southeast dangerous. Asian refugees in the aftermath of the Vietnam War. 1882: Passage of the Chinese Exclusion Act codified racism into federal law, 1986: The Immigration Reform and denying citizenship for Chinese immi- Control Act granted amnesty to about grants and suspending their entry into three million undocumented immigrants the United States. It was not repealed and instituted sanctions for employers until 1943. who hire undocumented workers.

1906: The ability to speak and under- 1995: California voters approved stand English became a requirement Proposition 187 to prohibit undocu- for naturalization. mented immigrants from accessing publicly funded education, welfare, and 1917: Congress designated Asia as “a health services. The proposition was barred zone,” prohibiting immigration later found to be unconstitutional. from all Asian countries except Japan and the Philippines. 1996: Three acts of Congress—welfare reform, immigration reform, and anti- 1919: The Palmer Raids resulted in terrorism legislation—significantly the deportation of 10,000 labor reduced immigrants’ access to social and immigrant activists. safety-net programs, toughened border enforcement, closed opportunities for 1921-1930: Thousands of Mexican undocumented immigrants to legalize workers, including many U.S. citizens, their status, made it difficult to gain were deported. asylum, stripped many due-process 1924: The Johnson-Reed Act created a rights, reduced access to the courts, new national-origins quota system and greatly expanded grounds for favoring immigrants from northern deportation. Europe and banning immigration by 2001: Shortly after the attacks of persons “ineligible to citizenship,” a September 11, 2001, Congress passed provision that primarily affected the the USA PATRIOT Act, giving the federal Japanese. government, among other things, broad 1942-1945: The United States interned powers to indefinitely detain suspected 120,000 Japanese Americans. terrorists. At least 1,200 South Asian and Middle Eastern men were swept up 1942-1964: The “Bracero” guestworker in government dragnets, detained with- program, begun to meet wartime labor out charge, and denied due-process shortages, brought close to five million rights. Few, if any, of these detainees farmworkers, predominantly Mexicans, were charged with involvement in to the United States. terrorist activities.

1954: Operation Wetback deported more than 1.1 million Mexican immigrants.

221 2002: The Department of Homeland In spring 2006, as this report was being Security put in place “Special finalized, Congress debated immigration Registration” which required all non- reform legislation. Some proposals immigrant males age 16 and older from focused strictly on strengthening border 24 countries to report in person, regis- and other immigration enforcement, ter, and be fingerprinted. All but one of while others called for guestworker pro- the countries targeted by this program grams, opportunities for undocumented were those with large Muslim popula- immigrants to earn legal status, and tions. An estimated 13,000 men were provisions to address the family-visa placed in deportation proceedings backlogs. Depending on the outcome of during the first year of this program. this debate, the political environment Although it was terminated, Special for immigrants could change dramatical- Registration was the most visible and ly in the upcoming years, possibly systematic government-instituted pro- driving some immigrants deeper in the gram to detain members of specific shadows or giving those who could ethnic groups in the United States benefit from any new laws the opportu- since the internment of Japanese nity to become fully integrated into Americans during World War II. U.S. society.

2005: Congress passed the REAL ID Act, raising the standard for political asylum seekers, creating additional grounds for SOURCES: deporting immigrants, and restricting National Immigration Forum. 2005. Immigration Basics 2005. Washington, D.C.: National Immigration Forum. the issuance of driver’s license and National Immigration Forum. 2002. Immigration Policy state ID documents to certain cate- Handbook 2002. Washington, D.C.: National gories of immigrants. More than 150 Immigration Forum. anti-immigrant bills were introduced Cho, Eunice Hyunhye, et al. 2004. BRIDGE: Building in 30 states, although few bills were Race and Immigration Dialogue in the Global Economy. Oakland, CA: National Network for Immigrant and eventually enacted into law. Arizona, Refugee Rights. Virginia, and Arkansas adopted anti- immigrant laws that target vulnerable populations, including undocumented immigrants, day laborers, and low- income families. Arizona’s Proposition 200, approved by the state’s voters, requires state and local government employees to report undocumented immigrants seeking publicly funded health and social services to federal immigration authorities.

2006: The State of Georgia passed the Georgia Security and Immigration Compliance Act. Under this state law, effective July 1, 2007, Georgia employers must use a federal database to verify their workers’ immigration status; recipients of most state benefits, including welfare and Medicaid, must prove their legal status; workers who cannot provide a Social Security number or other taxpayer identification are required to pay a six percent state withholding tax; corrections officials must report incarcerated undocumented immigrants to federal authorities; and local authorities are authorized to seek training to enforce federal immigration laws.

222 Fast Facts

“ y conception of what it means to be an immigrant rights activist is Mthat one must also be involved in the integration side of the debate, in the huge question of whether there is economic and social mobility for today’s immigrants. The issues I care most about are what kind of life immigrants are going to be able to achieve in this country… I feel it is imperative that more people conceptualize their role in being pro immigrant as being pro school reform, pro health care access, and pro labor rights enforcement, among other things we need to think about to make strong, vibrant, healthy communities. When so many are struggling to move up, to provide for their families, how do we design policies that truly provide opportunity and a level playing field for everyone?”

—Margie McHugh, Senior Advisor Migration Policy Institute, Washington, DC

DEMOGRAPHIC TRENDS 225

PATTERNS OF IMMIGRATION STATUS 228

IMMIGRANTS IN THE U.S. ECONOMY 229

IMMIGRANT CHILDREN AND EDUCATION 230

LANGUAGE ACQUISITION 231

IMMIGRANTS’ ACCESS TO INSURANCE AND HEALTH CARE 232

223 224 DEMOGRAPHIC Immigrant numbers and growth rates • The foreign-born averaged 25 are significant.1 percent of the population in central TRENDS cities in 2000, with the highest per- • The foreign-born population in the centages in Miami (60 percent), Los United States tripled in the past four Angeles (40 percent), and San Francisco, decades and currently totals about 37 San Jose, and New York (all above 35 million, or nearly 12 percent of the percent).7 total population. • More immigrants now live in • By 2010, the foreign-born suburbs (12.8 million) than in central population is expected to increase to cities (9.8 million).8 43 million, or 13.5 percent of the total population. Fewer immigrants are from Europe; more are from Latin America and But immigrants’ percentage of the Asia. total U.S. population is below the nation's historic high. • Sixty-six percent of legal immigrants were from Europe and • Proportionately, the United States Canada before the 1965 Immigration is less a nation of immigrants now than Act eliminated national origin quotas a century ago, when nearly 15 percent that favored European countries.9 of the population was foreign-born.2 • By 2004, European and Canadian • Many other countries have propor- immigrants had declined to 16 percent tionately larger immigrant populations. of all foreign-born, while a larger For example, 17 percent of Canada’s percentage of immigrants were from total population is foreign-born, as is other countries: Mexico (31 percent), 24 percent of Australia’s.3 other Latin American countries (23 Immigrant settlement is shifting from percent), Asia (26 percent), and Africa, traditional to new gateway states and the Middle East, and other regions 10 from central cities to suburbs. (4 percent).

• In 2000, two-thirds of all the foreign-born lived in the traditional “big six” immigrant states (California, New York, Texas, Florida, Illinois, and New Jersey), down from three-quarters in the decades before 1995.4

• From 1990 to 2000, the foreign- born population grew by 145 percent in 22 “new growth” states, compared to 57 percent average growth nationwide.5

• The biggest growth between 1990 and 2000 occurred in the Southeast, Mountain, and Plains states, led by North Carolina (274 percent), Georgia (233 percent), Nevada (202 percent), Arkansas (196 percent), and Utah (171 percent).6

225 SNAPSHOT OF THE FOREIGN-BORN IN THE UNITED STATES

TOTAL NUMBER % OF ANNUAL IMMIGRATION STATUS (2005) TOTAL (Federal fiscal year 2003)

FOREIGN-BORN RESIDENTS

Naturalized citizens: Lawful permanent 11.5 million 31% 555,000 LPRs became citizens residents in U.S. at least 3-5 years who have completed naturalization process.

Lawful permanent residents (LPRs): 10.5 million 28% 651,000 LPR visas granted Persons legally admitted to reside and • 333,000 immediate relatives of U.S. citizens work permanently in U.S.; most visas • 159,000 other relatives of citizens & LPRs are granted through family relationships • 87,000 other legal admissions, such as to relatives of citizens and LPRs (about diversity visas 74% of total) and employment skills • 82,000 employment visas (12% of total).

Refugees: Persons unable or unwilling 2.6 million 7% 45,000 refugee/asylee visas granted to return to their country because of persecution or a well-founded fear of persecution; refugees are admitted overseas, and asylees apply in the U.S. Both may apply to become LPR after one year. Of the post-1980 refugee arrivals, 1.3 million are now LPRs, and 1.3 million are now naturalized citizens.

Temporary legal residents: Persons legally 1.3 million 3% 1.46 million temporary resident visas, including admitted for a specified purpose and a 662,000 students and dependents, and 798,000 temporary period. temporary workers and dependents

Undocumented immigrants: Persons 11.1 million 30% An estimated 500,000 undocumented immigrants residing in the U.S. without legal permission. have entered the United States per year since 2000 Estimated numbers: • 50-65% entered without inspection. • 25-40% overstayed visa. • 10% quasi-legal (e.g., Temporary Protected Status, asylum applicants, persons awaiting green card).

TOTAL FOREIGN-BORN RESIDENTS 37 million 100% 2.6 million resident arrivals annually

VISITORS TO THE UNITED STATES Tourists 24.4 million Visitors for business 4.2 million

TOTAL ANNUAL VISITORS 28.6 million

SOURCES: Total numbers and percent foreign-born for 2005 and data on undocumented immigrants from Passel, Jeffrey S. 2006. The Size and Characteristics of the Unauthorized Migrant Population in the U.S. Washington, D.C.: Pew Hispanic Center. March. Naturalization data for FY 2003 from Migration Policy Institute. 2005. Backlogs in Immigration Processing Persist. Washington, D.C.: Migration Policy Institute. June. Legal admission data for FY 2003 from Capps, Randy and Jeffrey S. Passel. 2004. Describing Immigrant Communities. Washington, D.C.: Urban Institute. December.

226 TOP-TEN IMMIGRANT-SENDING COUNTRIES TO THE UNITED STATES

2004 1960

1. Mexico 1. Mexico 2. India 2. Germany 3. Philippines 3. Canada 4. China,-People’s-Republic 4. United Kingdom 5. Vietnam 5. Italy 6. Dominican-Republic 6. Cuba 7. El Salvador 7. Poland 8. Cuba 8. Ireland 9. Korea 9. Hungary 10. Colombia 10. Portugal

TOP-TEN REFUGEE-SENDING TOP SOURCES OF COUNTRIES TO THE UNITED UNDOCUMENTED IMMIGRANTS STATES IN 2004 TO THE UNITED STATES

1. Somalia 1. Mexico (57%) 2. Liberia 2. Other Latin American countries (24%) 3. Laos 3. Asia (9%) 4. Sudan 4. Europe and Canada (6%) 5. Ukraine 5. Africa and other (4%) 6. Caribbean 7. Cuba 8. Ethiopia 9. Iran 10. Moldova

SOURCES: United States. Department of Homeland Security. 2006. Yearbook of Immigration Statistics: 2004. Washington, D.C.: U.S. Department of Homeland Security, Office of Immigration Statistics. Passel, Jeffrey S. 2006. Size and Characteristics of the Unauthorized Migrant Population in the U.S. Washington, D.C.: Pew Hispanic Center. March.

227 PATTERNS OF Immigrants with legal status make up The undocumented population has 70 percent of the U.S. foreign-born increased since the mid-1990s. IMMIGRATION population.11 STATUS • Annual arrivals of undocumented Demographers estimate that in 2005:12 immigrants have exceeded legal admissions since the mid-1990s. Since 2000, • Legal permanent residents were legal admissions have averaged 610,000 32 percent of the foreign-born (11.8 a year and unauthorized entries have million, including 1.3 million who averaged 700,000 a year. In contrast, in arrived as refugees). the 1980s, legal admissions averaged 650,000 a year and unauthorized entries • Naturalized citizens were 35 percent averaged 140,000.19 (12.8 million, including 1.3 million who arrived as refugees). • As of March 2006, between 11.5 and 12 million undocumented immigrants • Temporary legal residents (such as resided in the United States, constitut- students and temporary workers) were ing 30 percent of all immigrants.20 3 percent (1.3 million). • Although the number of undocu- • Unauthorized migrants were 30 mented immigrants in the U.S. has percent (11.1 million). grown, the rate of undocumented migra- Many immigrants are becoming citi- tion from Mexico has remained steady, zens, but many more who are eligible as a percentage of the Mexico popula- 21 face barriers to naturalization. tion, since 1980.

• The number of naturalized citizens Immigrants, regardless of their immi- almost doubled between the mid-1990s gration status, are thoroughly woven and 2002, from 6.5 to 11 million.13 into the fabric of American families and communities. • Although naturalization numbers and rates have increased, at least eight • Eighty-five percent of all immigrant million immigrants are eligible to families with children are mixed-status naturalize but have not.14 families, with at least one immigrant parent and one U.S. citizen child.22 • Language is a major barrier: 60 percent of naturalization-eligible immigrants • Three-quarters of children in 23 have limited proficiency in English.15 immigrant families are U.S. citizens.

• Delays in immigration processing • Two-thirds of the 4.9 million have increased waiting times for natural- children with undocumented parents 24 ization and green cards: Between 1990 and are U.S. citizens. 2003, the number of applications pending approval increased by more than 1,000 percent, from 540,688 to 6.08 million.16

• Nevertheless, immigrants’ interest in becoming U.S. citizens remains high. • In the first three months of 2006, the U.S. Department of Homeland Security received more than 185,000 naturalization applications, representing a 19 percent increase over the same period last year.17 • In March 2006, the U.S. Citizenship and Immigration Services received a record 6.6 million hits on its website. The website received 2.2 million requests to download forms, including the N-400 for naturalization—a leap from 1.8 million requests in February.18

228 IMMIGRANTS IN Immigrants are a significant, increas- • The foreign-born in lower-skilled ing percentage of the U.S. labor force occupations include:32 THE U.S. ECONOMY growth.25 • 41 percent of workers in farming, fishing, and forestry. • Immigrants constituted more than • 33 percent of building and 50 percent of the overall growth in the maintenance workers. labor force in the last decade. • 22 percent of workers in food preparation/serving and construction/ • Between 1994 and 2004, the mining. native-born labor force grew by 7 percent (118 million to 126 million), while the • Immigrants from Mexico or Central immigrant labor force grew by 66 America are more likely than native- percent (12.9 million to 21.4 million). born workers to have less than a high school education (59 percent versus 6 • Between 2000 and 2050, new immi- percent).33 grants and their children will account for 83 percent of the growth in the • Nearly half of all immigrant workers working-age population and 60 percent earn less than 200 percent of the mini- of total U.S. population growth. mum wage, compared to one-third of native workers. The average low-wage Immigrants will fill workforce gaps immigrant worker earned $14,400 in created by aging native-born workers. 2001.34 • By 2030, the percentage of the U.S. • From 2004 to 2014, the greatest population over 65 will more than dou- growth in U.S. jobs, in both numbers ble, from over 12 to almost 20 percent, and percentage, will be at the upper while the working-age and child popula- and lower ends of the workforce. tion will shrink by 8 percent.26 Professional occupations will gain 6 • Eighty percent of immigrants are million jobs, representing a 21 percent working age, compared to 60 percent of increase. Service jobs will increase by 35 the native-born.27 5.2 million, or 19 percent.

Immigrants bring skills that meet the Immigration is stimulating growth in needs of the U.S. “hour-glass” econ- Asian-American and Latino businesses omy, filling jobs at the high and low and buying power. ends of the labor market. • Between 1997 and 2002, the num- • In 2000, the foreign-born ber of Asian-American businesses grew accounted for 38 percent of scientists 24 percent, and Latino businesses grew and engineers with doctorates and 29 31 percent, compared to 10 percent 36 percent of those with master’s degrees.28 growth for all U.S. firms.

• Among computer scientists and • Between 1990 and 2009, both mathematicians, half of all doctorate Asian-American and Latino buying holders and one-third of master’s degree power will grow 347 percent, compared holders were foreign-born.29 to a 158 percent increase in total U.S. buying power.37 • From 1996 to 2002, the foreign- born constituted 27 percent of the growth • By 2009, Asian-Americans and in doctors, scientists, and teachers.30 Latinos are projected to total 20 percent of the population and command • Immigrants from countries outside almost 14 percent of U.S. buying of Mexico and Central America are more power.38 likely to have completed college or graduate school (43 percent) than native-born workers (32 percent).31

229 IMMIGRANT Children of immigrants are one in five Many Latino and Asian-American school-age children.39 children of immigrants are English CHILDREN Language Learners (ELL) and AND EDUCATION • From 1970 to 2000, children of low-income.41 immigrants increased from 6 percent to 19 percent of all school-age children, • In 2000, 53 percent of the children constituting 11 million of 58 million of immigrants were Latino, and 18 total U.S. children. About 75 percent percent were Asian-American. of the children of immigrants are U.S. citizens. • Seventy-one percent of ELL children in elementary school were Latino, and • In 2000, 16 percent of all students 14 percent were Asian-American. in pre-kindergarten were children of immigrants, but only 2 percent were • Half of children of immigrants foreign-born. In the upper grades (6 to and two-thirds of ELL children are 12), children of immigrants were 19 low-income. percent of the total student population, Most ELL children are U.S.-born, but while the foreign-born were 7 percent live in linguistically isolated families of the total. and attend linguistically segregated 42 Like immigrants overall, children of schools. immigrants are concentrated in tradi- • In 2000, only about 3.5 million tional gateway states, but their children of immigrants were ELL, out of growth rates are highest in the new a total 11 million. gateway states.40 • More than half of ELL students in • In 2000, almost 70 percent of 2000 were born in the United States. school-age children of immigrants lived in the six states with the largest immi- • In 2000, six out of seven ELL grant populations: California, Texas, New children in grades one to five lived in York, Florida, Illinois, and New Jersey. linguistically isolated households; in secondary school, two out of three did so. • In 2000, nearly half (47 percent) of California’s students in PK to fifth grade • ELL students are highly concentrated were children of immigrants. Nine other in linguistically segregated schools, states had percentages above the national with half attending schools where 30 average of 19 percent: Nevada, New percent or more of their fellow students York, Hawaii, Texas, Florida, Arizona, are also ELL. New Jersey, Rhode Island, and New Mexico. • Seventy percent of ELL students are enrolled in only 10 percent of the • The highest growth in school enroll- nation’s schools.43 ment of immigrant children was in new gateway states in the Southeast, Midwest, and interior West. Between 1990 and 2000, children of immigrants in PK to fifth grade grew most rapidly in Nevada (206 percent), followed by North Carolina (153 percent), Georgia (148 percent), and Nebraska (125 percent).

230 LANGUAGE English acquisition rates are high • Half had a ninth-grade education among immigrants who come to the or less. ACQUISITION United States as children and rise • Sixty-two percent had children, across the generations.44 compared to 36 percent of all U.S. households. • Almost 80 percent of first-generation (foreign-born) children from Mexico and English ability is linked to higher 88 percent from China speak English wages and economic opportunities. “well” or “very well.” • Nearly two-thirds of low-wage • Among the second generation, 92 immigrant workers do not speak English percent of Latinos and 96 percent of proficiently.50 Asians are English proficient and many are bilingual in their mother tongue (85 • Immigrants who speak English percent of second-generation Latinos fluently may earn 17 percent more than and 61 percent of second-generation those who do not, after adjusting for Asians). socioeconomic factors such as education and work experience.51 • By the third generation, 72 percent of Latinos and 92 percent of Asians • In 1999, only 26 percent of speak English only. refugees who did not speak English were employed, compared with 77 High rates of immigration have percent of those who spoke English increased the number of recently well or fluently.52 arrived, first-generation adults with limited English skills. LEP speakers face additional barriers to economic mobility and integration. • In 2002, among adults aged 18 to 64, over 17 million immigrants spoke • Almost half of LEP adults have nine English very well, over 7 million spoke years or less of education, and 64 per- 53 it well, close to 6 million did not speak cent do not have a high school degree. it well, and more than 2.5 million did • LEP workers in Los Angeles and not speak English at all.45 New York were twice as likely as other 54 • Many limited English proficient immigrant workers to lack legal status. (LEP) adults are relatively recent immi- • About 60 percent of permanent grants, with 60 percent arriving in the residents eligible to become citizens United States over the past ten years.46 may have difficulty taking the natural- • In 2000, about 2 out of 3 working- ization exam because they are limited 55 age adults (ages 18-55) who did not in English. speak English at home were foreign- The demand for English classes far born (19 million of 29.4 million).47 exceeds the supply. • In 2000, about 9 out of 10 work- • In 2002-2003, nearly 1.2 million ing-age adults who were very limited adults attended English-as-a-Second- English proficient10 were foreign-born Language (ESL) classes, representing (6.5 million of 7.4 million).48 43 percent of all enrollees in adult 56 • In 2000, among the LEP immigrants:49 education. • One-third arrived in the United • Shortages of ESL courses exist in States since 1995, and 59 percent many other communities.57 For example, arrived since 1990. Massachusetts has more than 180,000 • More than half (57 percent) were residents on waiting lists for ESL from Mexico. classes, with an average wait of six • Three-quarters spoke Spanish at months to two years.58 home. Fourteen percent spoke Asian languages.

231 Significant numbers of immigrants 14 percent of U.S.-born, non-Hispanic IMMIGRANTS’ ACCESS are uninsured. whites had no usual source of care, and TO INSURANCE AND 14 percent were uninsured.66 • In 2003, between 43 to 52 percent HEALTH CARE of all non-citizens were uninsured, • In 2000, half of adult Mexican compared with only 15 percent of immigrants with no usual source of care native-born citizens and 21 percent of and no health insurance had not seen a naturalized citizens.59 doctor in the previous two years.67

• Low-income non-citizens are the Language presents a significant most likely to be uninsured: Among barrier to health care. low-income adults, 70 percent of Latino • Immigrants who lack English non-citizens lacked insurance in 1999, proficiency are less likely to be insured: compared to 34 percent of low-income Among low-income adults, 72 percent of Latino citizens and 28 percent of low- non-citizen Latinos who spoke primarily income white citizens.60 Spanish lacked insurance, compared to • Children’s insurance rates are 55 percent of non-citizen Latinos who affected by their own status as well spoke primarily English and 28 percent as that of their parents: Among low- of white citizens.68 income Latinos, 74 percent of non- • Federal law requires states, counties, citizen children lacked health insurance and private health providers that receive in 1999, compared to 30 percent of federal funds to make reasonable efforts citizen Latino children with non-citizen to provide language assistance to LEP parents and 17 percent of citizen Latino individuals.69 children with citizen parents.61 • Only eleven states have taken • Approximately 4.5 million legal advantage of federal reimbursement immigrants who have arrived in the o pay for language services for their United States after the 1996 welfare Medicaid and State Children’s Health law are effectively barred from receiving Insurance Programs (SCHIP), though federally funded health insurance until some states are in the process of devel- they become citizens.62 oping pilot projects.70 Immigrants have limited access to States vary in their use of state health care. funding to cover immigrants and their • In 1997, 37 percent of low-income children.71 non-citizens reported not having a • As of 2004, 22 states and the usual source of care, compared to 19 District of Columbia were using state percent of the low-income native-born.63 funds to provide health coverage to • Non-citizens are more likely to be some or all of the low-income documented without a usual source of care and less immigrant children and pregnant women likely to go to emergency rooms than who lost federal coverage in the 1996 citizens. On average, non-citizen children welfare law. had fewer medical, dental, and mental • About two-thirds of these states health visits than citizen children.64 also cover seniors, people with disabili- • In 2000, over 25 percent of adult ties, and the parents of immigrant Mexican immigrants had not seen a children. doctor in the previous two years, about • Seven states also use federal SCHIP four times the rate for non-Hispanic funds to cover prenatal care for all whites.65 women, regardless of immigration status. • In 2000, 48 percent of Mexican immigrants ages 18-64 had no usual source of health care, and 58 percent had no health insurance. In contrast,

232 1. Capps, Randy, Michael Fix, Julie Murray, Jason 26. Calculation from Table 2a, U.S. Census Bureau. ENDNOTES Ost, Jeffrey S. Passel, and Shinta Herwantoro. 2005. 2004. Interim Projections by Age, Sex, Race, and The New Demography of America’s Schools: Hispanic Origin. Washington, D.C.: U.S. Census Immigration and the No Child Left Behind Act. Bureau. Washington, D.C.: Urban Institute. 27. Larsen, Luke J. 2004. The Foreign-Born 2. Schmidley, Dianne. 2001. Profile of the Foreign- Population in the United States: 2003. Current Born Population in the United States: 2000 (Current Population Reports P20-551. Washington, D.C.: Population Reports, U.S. Census Bureau. U.S. Census Bureau. 3. Capps, Fix, Murray, Ost, et al., 2005. 28. National Science Board. 2004. Science and Engineering Indicators 2004. Arlington, VA: 4. Capps, Randolph, Michael E. Fix, and Jeffrey S. National Science Foundation. Passel. 2002. “The Dispersal of Immigrants in the 1990s,” Immigrant Families and Workers: Facts and 29. Ibid. Perspectives, Brief No. 2. Washington, D.C.: The 30. Council of Economic Advisors. Economic Report Urban Institute. http://www.urban.org/publications/ of the President 2005. Washington, D.C.: U.S. 410589.html. Accessed May 2, 2006. Government Printing Office. 5. Ibid. 31. Calculation from Table 4, Congressional Budget 6. Passel, Jeffrey S. and Wendy Zimmermann. 2001. Office. 2003. The Role of Immigrants in the U.S. Are Immigrants Leaving California? Washington, D.C.: Labor Market. Washington, D.C.: Congressional Urban Institute. Budget Office. 7. Singer, Audrey. 2004. The Rise of New Immigrant 32. Ewing, Walter A. 2005. “The Economics of Gateways. Washington, D.C.: Brookings Institution Necessity: Economic Report of the President Center on Urban and Metropolitan Policy. Underscores the Importance of Immigration,” Immigration Policy in Focus, Vol. 4, Issue 3. 8. Ibid. American Immigration Law Foundation. 9. Fix, Michael, Wendy Zimmerman, and Jeffrey S. 33. Calculation from Table 4, Congressional Budget Passel. 2001. The Integration of Immigrant Families Office. 2003. The Role of Immigrants in the U.S. in the U.S. Washington, D.C.: The Urban Institute. Labor Market. Washington, D.C.: Congressional 10. Capps, Randy, and Jeffrey S. Passel. 2004. Budget Office. Describing Immigrant Communities. Washington, 34. Capps, Randy, Michael Fix, Jeffrey S. Passel, D.C.: The Urban Institute. Jason Ost, and Dan Perez-Lopez. 2003. A Profile of 11. Passel, Jeffery S. 2006. The Size and the Low-Wage Immigrant Workforce. Washington, Characteristics of the Unauthorized Migrant D.C.: Urban Institute. Population: Estimates Based on the March 2005 35. Bureau of Labor Statistics, “2004-2014 Current Population Survey. Washington, D.C.: Pew Projections, Occupational Employment,” Hispanic Center. Occupational Outlook Quarterly, Winter 2005-06. 12. Ibid. Washington, D.C.: U.S. Bureau of Labor Statistics. 13. Fix, Michael E., Jeffrey S. Passel, and Kenneth 36. Minority Business Development Agency. 2005. Sucher. 2003. Trends in Naturalization. Washington, State of Minority Business Enterprises. Washington, D.C.: Urban Institute. D.C.: U.S. Dept. of Commerce. 14. Ibid. 37. Humphreys, Jeffrey M. 2004. “The Multicultural Economy 2004: America’s Minority Buying Power.” 15. Ibid. Georgia Business and Economic Conditions, Vol. 64, 16. Jernegan, Kevin. 2005. “MPI Fact Sheet: No. 3, Third Quarter 2004. Athens, GA: University of Backlogs in Immigration Processing Persist.” Georgia Selig Center for Economic Growth. Washington D.C.: Migration Policy Institute. 38. Ibid. http://www.migrationpolicy.org/pubs/Jernegan_Fact _Sheet_June_2005.pdf. Accessed May 2, 2006. 39. Capps, Randy, Michael Fix, Julie Murray, Jason Ost, Jeffrey S. Passel, and Shinta Herwantoro. 2005. 17. Ataiyero, Kayce T. 2006. “Citizenship in the The New Demography of America’s Schools: Spotlight, 154 New Americans Sworn in as U.S. Sees Immigration and the No Child Left Behind Act. Spike in Applications.” Chicago Tribune. May 11. Washington, D.C.: Urban Institute. 18. Jordan, Miriam. 2006. “Immigrant Issue 40. Ibid. Produces Push for Citizenship.” The Wall Street Journal. April 10. 41. Ibid. 19. Passel, 2005. 42. Ibid. 20. Passel, Jeffrey S. 2006. Size and Characteristics 43. De Cohen, Clemencia, Nicole Deterding, and of the Unauthorized Migrant Population in the U.S. Beatriz Chu Clewell. 2005. Who’s Left Behind? Washington, D.C.: Pew Hispanic Center. March. Immigrant Children in High and Low LEP Schools. Washington, D.C.: The Urban Institute. 21. Massey, Douglas S., Jorge Durand, and Nolan J. Malone. 2003. Beyond Smoke and Mirrors: Mexican 44. Alba, Richard. 2005. “Bilingualism Persists, But Immigration in an Age of Economic Integration. New English Still Dominates.” Washington, D.C.: York, NY: Russell Sage Foundation Publications. Migration Policy Institute, Migration Information Source. 22. Capps, Fix, Murray, et al., 2005. 45. Wrigley, Heide Spruck, Elise Richer, Karin 23. Capps, et al., New Demography of America’s Martinson, Hitomi Kubo, & Julie Strawn. 2003. The Schools, 2005. Language of Opportunity: Expanding Employment 24. Passel, 2006. Prospects for Adults with Limited English Skills. Washington, D.C.: Center for Law and Social Policy. 25. Congressional Budget Office. 2005. The Role of Immigrants in the U.S. Labor Market. Washington, D.C.: Congressional Budget Office.

233 46. Richer, Elise. 2003. “Expanding Employment 67. Ibid. Prospects for Adults with Limited English Skills,” 68. Ibid. presentation to National Association for Welfare Research and Statistics Conference, July 15, 2003. 69. Title VI of the 1964 Civil Rights Act. www.clasp.org/publications/LEP_presentation.pdf. 70. According to the National Health Law Program, Accessed May 2, 2006. these eleven states are Hawaii, Idaho, Kansas, 47. Ibid. Maine, Massachusetts, Minnesota, Montana, New Hampshire, Utah, Vermont and Washington State. In 48. Ibid. addition, Virginia and Texas plan to implement pilot 49. Wrigley, Heidi, Spruce, et al, 2003. programs in 2006. National Health Law Program. 2005. Medicaid/SCHIP Reimbursement Models for 50. Capps, Randy, et al. 2003. A Profile of the Low Language Services. Los Angeles, CA: National Health Wage Immigrants Workforce. Washington, D.C.: The Law Program. Urban Institute. 71. Fremstad, Shawn, and Laura Cox. 2004. Covering 51. Gonzalez, Libertad. 2004. “Nonparametric New Americans: A Review of Federal and State Bounds on the Returns to Language Skills.” IZA Policies Related to Immigrants’ Eligibility and Access Discussion Paper No. 1098. to Publicly Funded Health Insurance. Washington, http://ssrn.com/abstract=527122 (accessed Apr. D.C.: Kaiser Commission on Medicaid and the 29, 2005); Richer, 2003. Uninsured. 52. Fremstad, Shawn. 2003. Immigrants, Persons with Limited Proficiency in English, and the TANF Program: What Do We Know? Washington, D.C.: Center on Budget and Policy Priorities. 53. Ibid. 54. Wrigley, Spruck, Richer et al, 2003. 55. Fix, Michael, et al. 2003. Trends in Naturalization. Washington, D.C.: Urban Institute. 56. Fix, Michael, et al. 2005. Leaving Too Much to Chance: A Roundtable on Immigrant Integration Policy. Washington, D.C.: Migration Policy Institute. 57. Gozdziak, Elzbieta and Susan Martin. 2005. Beyond the Gateway: Immigrants in a Changing America. Lanham, MD: Lexington Books. 58. Redell, Peter. 2005. “Study: ESL Funding Badly Needed.” MetroWest Daily News, June 20, 2005. 59. Fremstad, Shawn and Laura Cox. 2004. Covering New Americans: A Review of Federal and State Policies Related to immigrants’ Eligibility and Access to Publicly Funded Health Insurance. Washington, D.C.: Henry J. Kaiser Family Foundation. 60. Grantmakers Concerned with Immigrants and Refugees. Immigration-Employment Fact Sheet. http://www.gcir.org/about_immigration/fact_sheets /health.htm. Accessed May 2, 2006. 61. Kaiser Commission on Medicare and the Uninsured. 2003. “Medicaid and the Uninsured.” http://www.kff.org/uninsured/upload/Immigrants- Health-Care-Coverage-and-Access-fact-sheet.pdf. Accessed May 2, 2006. 62. Ibid. 63. For more detailed explanation of the impact of the 1996 laws and immigrant eligibility for various federal health and social service programs, see National Immigration Law Center. 2004. Guide to Immigrant Eligibility for Federal Programs. Los Angeles, CA: National Immigration Law Center. 64. Kaiser Commission on Medicare and the Uninsured, 2003. “Medicaid and the Uninsured.” http://www.kff.org/uninsured/upload/Immigrants- Health-Care-Coverage-and-Access-PDF.pdf. Accessed May 2, 2006. 64. Ibid. 66. Wallace, Steven P. and Veronica F. Gutierrez. 2004. “Mexican Immigrants Lack Health Services in the U.S. October.” http://www.healthpolicy.ucla.edu/pubs/ publication.asp?pubID=101#download. Accessed May 2, 2006.

234 Glossary of Terms

his section provides a brief explanation of major immigration and Timmigrant integration terms utilized in this report and in the field. The terms are organized in alphabetical order for easy reference.

TERMS 1.5 generation Language access Acculturation Lawful Permanent Resident

Alien LEP

Americanization Melting Pot

Assimilation Migrant

Asylee Nativism

Bicultural Newcomer

Bilingual Newcomer program

Citizen Non-Immigrant

ELL Receiving country

English Plus Refugee

English-Only Second generation

ESL Segmented assimilation

First generation Sending country

Foreign-born Social capital

Gateway Transnational

Globalization Undocumented immigrant

Guestworker Vocational English as a Second Language (VESL) Human capital Workforce development Immigrant

Inclusion

Incorporation

Integration

235 236 GLOSSARY 1.5 generation. Children born abroad Bicultural. Identifying with the cultures but brought to the receiving society of two different language groups. To before adolescence; sometimes treated be bicultural is not necessarily the as “second generation” in sociological same as being bilingual. studies because these immigrants’ language proficiency, educational levels, Bilingual education. An educational and other characteristics resemble program in which two languages are those of the second generation. used to provide content matter instruction. Acculturation. Process through which immigrants are expected to learn the Bilingual. The ability to use two cultural patterns of the country of languages; bilingual persons may have immigration, e.g., its language, cultural varying proficiency across the four values, and practices. Some observers language dimensions (listening, speak- criticize the concept for assuming ing, reading, and writing). People may that the receiving society is culturally become bilingual either by acquiring homogenous and that immigrants two languages at the same time in must relinquish their own ethnic group childhood or by learning a second culture to integrate successfully. language sometime after acquiring their first language. Alien. Any person not a citizen or national of the United States. Citizen. Person who owes allegiance to a nation state and is entitled to its Americanization. A movement of often protection and to exercise rights of forced adoption of U.S. cultural prac- membership, such as voting. Under tices and the English language that U.S. law, citizens include persons born flourished in the United States during in the United States or its territories, and immediately after World War I; certain persons born abroad to a U.S. equated assimilation with accultura- citizen, and non-citizens who become tion in the Anglo-conformity mode. citizens through naturalization. Contrast with “melting pot.” ELL. English language learners (ELLs) Assimilation. Incorporating immigrants are children whose first language is and refugees into the receiving society not English and who are in the process through an often multi-generational of learning English; sometimes referred process of adaptation. The initial for- to as English learners (EL). Also see mulation of assimilation posited that limited English proficient (LEP). both immigrants and host society adapt to each other, but the term has English plus. A movement based on the come to be associated with immi- belief that all U.S. residents should grants’ relinquishing their linguistic have the opportunity to become and cultural characteristics in order proficient in English plus one or more to become part of the economic and other languages. social structure of mainstream society. English only. An umbrella term that is Asylee. Person admitted to the United used to refer to different federal and States because they are unable or state legislative initiatives and various unwilling to return to their country national, state, and local organiza- of nationality due to persecution or tions, all of which involve the effort a well-founded fear of persecution to make English the official language based on their race, religion, member- of the United States. The initiatives ship in a social group, political opin- and organizations vary in the degree ion, or national origin. Asylees apply to which they promote the suppres- when already in the United States or sion of non-English languages. at a point of entry. They may apply for permanent resident status one year after being granted asylee status. In this report, the more general term “immigrant” is used to encompass asylees unless the term “asylee” is more appropriate to a particular context. 237 ESL. English as a second language (ESL) of globalization is considered to Integration. A dynamic, two-way is an educational approach to teach have begun with the rise of trade process in which newcomers and the non-English speakers in the use of and other elements of international receiving society work together to the English language. For primary and exchange after World War II. build secure, vibrant, and cohesive secondary students, ESL instruction communities. Emphasis on the two- is based on a special curriculum that Guestworker. A person legally admitted way process of change by both typically involves little or no use of to work for a temporary period of immigrants and members of receiving the native language, focuses on lan- time, usually to fill labor shortages society contrasts with alternative use of guage (as opposed to content), and is and without options to remain term “integration” to signify one-way usually taught during specific school legally. U.S. immigration law contains process of adaptation by immigrants periods. For the rest of the school day, several numerically limited non- to fit in with a dominant culture. students may be placed in mainstream immigrant temporary worker cate- classrooms, an immersion program, or gories, including agricultural workers, Language access. Signifies efforts by a bilingual education program. nurses, and persons of extraordinary public agencies and the private sector ability or achievement in the sciences, to make their programs, services, and First generation. Immigrants who are arts, education, business, or athletics. products more accessible to persons born outside of the receiving country who are not proficient in English, (e.g., who are foreign-born). See also Human capital. A person’s knowledge through use of translated materials, “1.5 generation” (immigrants born and abilities, such as educational bilingual personnel, interpreters, and abroad but brought to the United level, literacy, and work experience; other means. Federal agencies and States while still children). human capital is correlated with recipients of federal funds are obli- socio-economic position and mobility. gated to take reasonable steps to Foreign-born. The Census considers provide meaningful language access Immigrant. A person who leaves his or anyone not born a U.S. citizen to be to their programs and activities to her country to settle permanently in foreign-born. The foreign-born include persons who are limited English another country. In U.S. immigration immigrants who have become citizens Proficient, or risk violating the pro- law, immigrant refers to all aliens in (through naturalization) or who have hibition against national origin the United States who have not been any of the variety of immigration discrimination under Title VI of the admitted under one of the law’s non- statuses (e.g., legal permanent resident, 1964 Civil Rights Act and other laws. refugees/asylees, temporary legal immigrant categories. In this report, residents, or undocumented). “immigrant” is the general term used Lawful Permanent Resident (LPR). An to describe persons born abroad who alien who has been legally admitted to Gateway. The place of immigrants’ first have come to settle in the United reside and work permanently in the settlement. Historically, immigrants States, regardless of their immigra- United States; the LPR visa is often settled in major port cities, such as tion status or whether they have called a “green card” (even though New York, Boston, Chicago, and San become U.S. citizens. the cards are no longer green). Francisco; these major settlement areas are referred to as “traditional Inclusion. Process by which immigrants Limited English Proficient (LEP). A gateways” or “historic gateways.” In become participants in particular term used to describe people who the 1990s, immigrants dispersed to sub-sectors of society, such as edu- are not fluent in English. Definitions new settlement areas such as North cation, labor market, or political of this term are not always consistent Carolina, Georgia, Nevada, and Utah; representation. Emphasizes active across different contexts. The Census, such states are often referred to as and conscious efforts by both public government agencies, and many “new gateways” or “new immigrant agencies and employers as well as experts define LEP individuals to destinations.” immigrants themselves; meant to include anyone over the age of five contrast with exclusion or social who speaks English less than “very Globalization. Increased global interde- exclusion. well”. LEP is also the term used by pendence among peoples and countries, the federal government and most Incorporation. Used by some social globalization is characterized by states and local school districts to scientists seeking a neutral term to increased international trade, invest- identify those students who have refer to the process by which immi- ment, and migration as well as greater insufficient English to succeed in grants become part of a society, in technological and cultural interchange. English-only classrooms. In the K-12 an attempt to avoid normative impli- The first era of globalization occurred school context, English language cation sometimes associated with in the nineteenth century with rapid learner (ELL) or English learner (EL) terms such as “assimilation.” increases in international flows of is used increasingly in place of LEP. goods, capital, and labor. After retrenchment during World War I and the Great Depression, the second era

238 Melting Pot. Metaphor for concept that Receiving country. A country in which Transnational. Persons, commercial, traits of immigrants of different back- immigrants settle. Alternate terms or non-profit enterprises, or other grounds and ethnicities converge with include “receiving community,” “host developments with ties to more those of the native-born to forge a society,” or “host community.” than one country. Increasingly, new, unified American identity. The “transnational” is used to refer to term was popularized by Israel Zangwill, Refugee. A person admitted to the relationships between and among an English author and Jewish leader, United States because s/he is unable individuals and other entities, while whose 1908 play The Melting Pot fea- or unwilling to return to the country “international” is used to refer to tured a Russian Jewish immigrant who of nationality due to persecution or relationships between and among survived a pogrom and looked forward a well-founded fear of persecution nation states. to a life in America free of ethnic based on race, religion, membership divisions and hatred. Melting pot is in a social group, political opinion, Undocumented immigrant. A person sometimes contrasted with the cul- or national origin. Refugees apply for residing in the United States without tural mosaic or “salad bowl” concept, admission at a facility overseas and legal immigration status; includes where each “ingredient” retains its may apply for permanent resident both persons who entered without distinction while contributing to a status one year after being granted inspection and those who entered successful final product. admission. In this report, the more with a legal visa that is no longer general term “immigrant” is used to valid. Also referred to as unautho- Migrant. In the broadest sense, a encompass refugees unless the term rized or illegal immigrants. person who leaves his or her country “refugee” is more appropriate to a of origin to seek residence in another particular context. Vocational English as a Second country. Often used in the United Language (VESL). VESL programs States to refer to migrant farmworkers Second generation. In the Census, the focus on teaching English skills that and their families, who follow the second generation consists of native- are used in the workplace or in a seasonal harvest of crops for born children of foreign-born parents. particular occupation or vocational employment in agriculture. In some sociological research, second area. Many VESL programs also com- generation may also include foreign- bine language education with Nativism. Nativism is a hostile reaction born children brought to the U.S. instruction in job-specific skills. to immigrants, associated in American before adolescence (the 1.5 generation). history with fears that new immigrants Workforce development. A range of would inject political and cultural Segmented assimilation. Concept programs and approaches used to values at odds with the American way developed by sociologists Alejandro prepare people for jobs; workforce of life. Portes, Rubén Rumbaut, and Min development programs may provide Zhou in the 1990s to explain the job training, higher education, Newcomer program. In the public varying patterns of assimilation English language training, and other education system, a program that experienced by members of different skills. At the federal level, workforce addresses the specific needs of recent ethnic groups. Focuses on the second development programs are spread immigrant students, most often at the generation, and posits that while across a number of departments, middle and high school level, espe- many immigrants will find different including the Department of Labor cially those with limited or interrupted paths to mainstream success, others (Workforce Investment Act, or WIA, schooling in their home countries. will find their pathways blocked by and other job training programs), the Major goals of newcomer programs are segmented labor markets and racial Department of Health and Human to acquire beginning English language discrimination and experience Services (Temporary Assistance to skills along with core academic skills negative assimilation. Needy Families, or TANF, among and to acculturate to the U.S. school others), and the Department of system. Sending country. A country whose Education (Perkins Vocational and citizens emigrate, either permanently Technical Education Program and the Newcomer. An immigrant in the initial or temporarily; in classical migration Adult Education and Family Literacy years after arrival; in this publication theory, typically used to refer to Program, among others). often used interchangeably with counties whose natives migrate immigrant. abroad in search of employment.

Non-immigrant. Under U.S. immigration Social capital. The ability to gain law, a foreign citizen legally admitted access to resources by virtue of mem- to the United States for a specified bership in social networks and other purpose and a temporary period; social structures. includes both legal temporary residents (e.g., diplomats, foreign students, tourists, and temporary workers) and visitors (e.g., tourists and business visitors). 239 SOURCES

Integration and Migration Terms

Alba, Richard and Victor Nee. 2003. Remaking the American Mainstream: Assimilation and Contemporary Immigration. Cambridge, MA: Harvard University Press.

Bean, Frank D. and Gillian Stevens. 2003. America’s Newcomers and the Dynamics of Diversity. New York, NY: Russell Sage Foundation.

Castles, Stephen, et al. 2002. Integration: Mapping the Field. Oxford, NY: University of Oxford Centre for Migration and Refugee Studies. December.

Legal-Status Terms

U.S. Census Bureau. 2003. The Foreign- Born Population: 2000. Washington, D.C.: U.S. Census Bureau. December.

U.S. Department of Homeland Security, Office of Statistics, “Data Standards and Definitions,” www.uscisgov/graphics/shared/statistics/standards/stddef.

Language & Education Terms

Glossary of Education Terms, National Clearinghouse for English Language Acquisition and Language Instruction Educational Programs, George Washington University, Graduate School of Education and Human Development. www.ncela.gwu.edu “Ask an Expert.”

Smith, Rebecca, Amy Sugimori, Luna Yasui, and Sarah Massey. 2002. Low Pay, High Risk: State Models for Advancing Immigrant Workers’ Rights. New York, NY: National Employment Law Project.

240 Recommended Readings

his section provides an annotated list of recommended books, reports, Tand other publications. Organized by issue area, it is readily accessible to readers wishing to dig deeper on a wide range of immigration and integration topics.

IMMIGRANT INTEGRATION 243

DEMOGRAPHICS 244

IMMIGRATION POLICY 244

UNDOCUMENTED MIGRATION 245

RECEIVING COMMUNITIES: IMPACT & RESPONSE 246

LANGUAGE 247

EDUCATION 247

WORKFORCE & ECONOMIC MOBILITY 249

FAMILY WELL-BEING & SOCIAL PROGRAMS 250

HEALTH 251

CITIZENSHIP & CIVIC PARTICIPATION 251

RACE, INTERETHNIC RELATIONS, & NATIVISM 252

EQUAL TREATMENT & OPPORTUNITY 253

241 242 RECOMMENDED IMMIGRANT INTEGRATION Reports the results of a roundtable on opportunities and risks to immigrant READINGS Alba, Richard and Victor Nee. 2003. integration in three policy domains: Remaking the American Mainstream: pre-kindergarten to12 education; work Assimilation and Contemporary and work supports; and naturalization Immigration. Cambridge, MA: Harvard and the redesign of the citizenship University Press. Analyzes competing test. Suggests areas for future models of how immigrants assimilate research and program development. and assesses evidence showing that www.migrationpolicy.org. “new” immigrants are achieving upward economic and social mobility Jacoby, Tamar, ed. 2004. Reinventing despite changing economic structures the Melting Pot: The New Immigrants and persistent racial barriers. This and What It Means to Be American. academic synthesis argues that, New York, NY: Basic Books. Introduces although assimilation is not a panacea contemporary immigration controver- for eliminating racism, the ethnic sies with articles representing the diversity of new immigrant streams spectrum of political opinion, from may change the mainstream and help progressive to conservative. Academics blur racial boundaries. and policy analysts discuss immigration in historical and contemporary Bean, Frank D. and Gillian Stevens. contexts; the immigrant bargain; how 2003. America’s Newcomers and the assimilation works; economics, poli- Dynamics of Diversity. New York, NY: tics, and race; and what it means to Russell Sage Foundation. Provides be American. insightful discussion of why migration occurs and assesses major theories Joppke, Christian and Ewa Morawska, of how immigrants incorporate into eds., 2003. Toward Assimilation and receiving society. Analyzes detailed Citizenship: Immigrants in Liberal evidence on successful economic, Nation-States. New York, NY: linguistic, and social incorporation Palgrave Macmillan. Scholars address among contemporary immigrant changing concepts of immigrant groups; discusses how increased racial integration in the United States and and ethnic diversity created by immi- Europe; essays examine changing gration may blur the racial divide, state policies toward multiculturalism transforming the United States into a and assimilation and variety of ways multi-ethnic, multi-racial society. immigrants move between transna- www.russellsage.org. tionalism and assimilation.

Fix, Michael, Wendy Zimmerman, Perlmann, Joel. 2005. Italians Then, and Jeffrey S. Passel. 2001. The Mexicans Now: Immigrant Origins Integration of Immigrant Families. and Second-Generation Progress, Washington, D.C.: Urban Institute. 1890 to 2000. New York, NY: Russell Assesses demographic trends indicat- Sage Foundation. Uses a century of ing how well immigrant families are Census data and other research to faring and explores conceptual and present comprehensive comparison policy design issues that should inform of contemporary Mexican immigrants an immigrant integration agenda. with progress of Italians who came at Reviews federal spending on immigrants the beginning of the last century. in areas key to integration, such as Examines wages, schooling, and eco- education, and outlines policy issues nomic outcomes to show that Mexican affecting future directions in safety second-generation progress, though net, education, employment, and slowed, is better in several respects housing programs. www.urban.org. than earlier Italian generations. Key recommendations to boosting progress Fix, Michael, Demetrios G. include reversing growing wage Papademetriou, and Betsy Cooper. inequality in United States, legalizing 2005. Leaving Too Much to Chance: undocumented Mexican immigrants, A Roundtable on Immigrant and improving high school graduation Integration Policy. Washington, D.C.: rates. www.russellsage.org. Migration Policy Institute. November.

243 Portes, Alejandro and Ruben G. data with information on diverse Martin, Philip and Elizabeth Midgley. Rumbaut. 2001. Legacies: The Story Asian-American groups in major set- 2003. “Immigration: Shaping and of the Immigrant Second Generation. tlement areas, including California, Reshaping America,” Population Berkeley, CA: University of California Hawaii, Atlanta, Minneapolis-St.Paul, Bulletin 58, no. 2. Washington, D.C.: Press. Landmark analysis of rising Houston, Las Vegas, and Seattle. Population Reference Bureau. Puts immigrant second generation exam- www.advancingequality.org. contemporary demographic change ines their patterns of acculturation, into historical context by synthesizing family and school life, language, iden- Congressional Budget Office. 2004. data and research on immigration tity, experiences of discrimination, A Description of the Immigrant patterns and policies since 1820. Also self-esteem, ambition, and achieve- Population. Washington, D.C.: covers economic effects, naturaliza- ment. Findings from longitudinal Congressional Budget Office. Presents tion, and migration from Mexico study of more than 5,000 immigrant concise portrait of immigration popu- under NAFTA. www.prb.org. children and parents of multiple lation with 2002-03 data on sources nationalities in Miami/Ft. Lauderdale and types of immigrants, their geo- Singer, Audrey. 2004. The Rise of New and San Diego are tested against graphic concentrations, and educational, Immigrant Gateways. Washington, hypothesis of segmented assimilation occupational, and income distribution. D.C.: Brookings Institution Center theory that immigrant parents facing www.cbo.gov. on Urban and Metropolitan Policy. negative government reception, social Documents dramatic shift of immi- Eissa, Salih Omar. 2005. “Diversity and prejudice, and weak support from grant settlement to new gateway Transformation: African Americans co-ethnic community will have greater areas in the 1990s, with detailed and African Immigration to the difficulties guiding their children to analysis of 2000 Census data on United States,” Immigration Policy mainstream success. metropolitan settlement patterns. Brief, March. American Immigration Compares and contrasts recent immi- Reitz, Jeffrey G. 1998. Warmth of Law Foundation: Washington, D.C. grant settlement in 45 metropolitan the Welcome: The Social Causes of Describes history of African migration areas, ranging from historic centers Economic Success for Immigrants in to the United States and how signifi- to emerging gateways. Different Nations and Cities. cant increases in contemporary migra- www.brookings.edu/urban. Boulder, CO: Westview Press. Examines tion from Africa are helping re-shape with extensive data how the economic makeup of U.S. blacks. www.ailf.org. performance of immigrants with similar IMMIGRATION POLICY Larsen, Luke J. 2003. The Foreign skills is shaped by differing national Born Population in the United Carnegie Endowment for International and urban social institutions in States: March 2003. Washington, Peace and Instituto Tecnológico receiving societies. Finds that immi- D.C.: U.S. Census Bureau. Updates Autónomo de México U.S.-Mexico grant-origin groups in United States 2000 Census information with data Migration Panel. 2001. Mexico-U.S. have lower earnings than their simi- from March 2002 Current Population Migration: A Shared Responsibility. larly skilled counterparts in Canada or Survey; charts portray information Washington, D.C.: Carnegie Endowment Australia due to greater potential for on foreign-born by region of birth, for International Peace. Urges recog- inequality in American labor market, residence in United States, age, citi- nition that increased bilateral trade education, and social welfare systems. zenship, educational attainment, must be matched by bilateral efforts household income by nativity, and to manage flow of workers. Proposes DEMOGRAPHICS poverty levels. www.census.gov. four principles fundamental to long- term stabilization of U.S.-Mexican Asian American Justice Center and Malone, Nolan, Kaari F. Baluja, Joseph migration: 1) improve the treatment Asian Pacific American Legal M. Costanzo, and Cynthia J. Davis. of Mexican migrants by making legal Center. 2006. A Community of 2003. The Foreign-Born Population: visas and legal status more widely Contrasts: Asian Americans and 2000. Washington, D.C.: U.S. Census available; 2) reduce volume and Pacific Islanders in the United Bureau. Portrays foreign-born from deaths from unauthorized migration States. Washington, D.C.: Asian 2000 Census, with tables on number by cooperative enforcement against American Justice and Asian Pacific and distribution by state of citizen- criminal smuggling and preventing American Legal Center. Profiles ship status and regions of origin; also dangerous border crossings; 3) jointly growth and settlement patterns of maps distribution by county and gives build a viable border region; and 4) major Asian-American groups, along data on age profiles and percent reduce emigration pressures by focusing with tables on their ethnicity, educa- foreign-born by race and Hispanic development initiatives on areas of tion, age, housing, language, poverty, origin. www.census.gov. high out-migration and strengthening language, and immigration and citi- the Mexican economy. zenship status. Supplements national www.carnegieendowment.org.

244 Chisti, Muzaffar A., Doris Meissner, and regularizing status of migrants in UNDOCUMENTED MIGRATION Demetrios G. Papademetriou, Jay U.S.; 2) reducing incentives to hire Peterzell, Michael J. Wishnie, and undocumented workers through Massey, Douglas S., Jorge Durand, Stephen W. Yale-Loehr. 2003. enforcing tax, labor, and worker-safety and Nolan J. Malone. 2003. Beyond America’s Challenge: Domestic laws; and 3) developing strategies to Smoke and Mirrors: Mexican Security, Civil Liberties, and help migrants better use earnings for Immigration in an Era of Economic National Unity after September 11. savings and investment in Mexican Integration. New York, NY: Russell Washington, D.C.: Migration Policy communities. www.ailf.org. Sage Foundation. Analyses how Institute. Documents ineffectiveness Mexico-U.S. migration functioned his- of the government’s efforts to improve National Immigration Forum. 2005. torically and how U.S. militarization security after September 11 and the Immigration Backlogs Are Separating of the border and restrictive policies effect of these domestic security actions American Families. Washington, DC: of immigrant disenfranchisement on civil liberties and national unity. National Immigration Forum. Explains adopted after 1986 have led to nega- Proposes alternative framework to how severe increases in visa backlogs tive, unintended consequences for the enhance immigration enforcement and (due to inadequate numbers of visas United States and Mexico as well as domestic security based on mobilizing and administrative delays) force rela- the migrants themselves. Contends intelligence and information capabili- tives to wait up to 4 to 12 years to that U.S. policy of promoting greater ties, protecting borders, supporting join family members. Recommends integration of North American markets law enforcement, and engaging Arab improvements to expand and expedite for goods, capital, and information and Muslim American communities. legal channels for family reunifica- but attempting to deny the reality of www.migrationpolicy.org. tion. www.immigrationforum.org. labor integration is destined to fail, and proposes policies to bring labor National Immigration Forum. Massey, Douglas S. 2005. “Five Myths migration aboveboard and accepted Immigration Basics 2005. Washington, about Immigration: Common as part of the emerging transnational D.C.: National Immigration Forum. Misconceptions Underlying U.S. economy. www.russellsage.org. Border—Enforcement Policy,” Introduces the basics of U.S. immi- Immigration Policy in Focus, Vol. 4, gration system by explaining different Mehta, Chirag, Nik Theodore, Ilina No. 6, August. Washington, D.C.: visa categories and how U.S. immigra- Mora, and Jennifer Wade. 2002. American Immigration Law Foundation tion system works. Gives brief overview Chicago's Undocumented Immigrants: Immigration Policy Center. Contends of naturalization process and which An Analysis of Wages, Working that roots of undocumented immi- immigrants are eligible for public Conditions, and Economic grant crisis lie in policymakers’ funda- benefits. www.immigrationforum.org. Contributions. Chicago, IL: University mental misunderstanding of the of Illinois at Chicago Center for Urban Rosenblum, Marc R. 2006. causes of migration and migrants’ Economic Development. Paints detailed “‘Comprehensive’ Legislation v. motivations. Uses data to rebut basic picture of penalties on wages and Fundamental Reform: The Limits of misconceptions: that migration is living conditions imposed on undocu- Current Immigration Proposals,” caused by lack of economic develop- mented workers by their lack of legal MPI Policy Brief No. 13, January. ment and rapid population growth in status, with results relevant to other Washington, D.C.: Migration Policy home countries; that migrants are large urban areas where undocumented Institute. Explains four key areas attracted mainly by wage differentials are concentrated. Survey of 1,323 where 2006 Congressional immigra- or public benefits; and that most immigrant workers found Latin tion reform proposals fall short of intend to settle permanently in the American workers earned less than comprehensive reform: 1) the visa United States. www.ailf.org. other comparable workers (22 percent supply is not well targeted to meet for men and 36 percent for women) demand; 2) labor needs are overly Massey, Douglas S. 2005. “Beyond and reported higher levels of unsafe reliant on temporary non-immigrants; the Border Buildup: Towards a New working conditions, wage-and-hour 3) labor-protection policies are cum- Approach to Mexico-U.S. Migration.” violations, and lack of health insur- bersome and ineffective; and 4) size Immigration Policy in Focus, Vol. 4, ance. www.uic.edu/cuppa/uicued. No. 7, September. Washington, D.C.: of unauthorized population may not American Immigration Law Foundation decrease. Recommends criteria for Passel, Jeffrey S. 2006. The Size and Immigration Policy Center. Shows alternative policies that would bal- Characteristics of the Unauthorized how punitive immigration and border ance visa demands, prevent negative Migrant Population in the U.S.: enforcement policies have backfired, economic and social impacts, and Estimates Based on the March 2005 resulting in higher numbers of undoc- reduce unauthorized flows. Current Population Survey. umented spread across larger areas of www.migrationpolicy.org. Washington, D.C.: Pew Hispanic Center. United States. Recommends 1) regu- lllustrates key features of the size, lating border on binational basis by family composition, and employment increasing annual quotas, establishing a flexible temporary labor program,

245 of the estimated 11.5 to 12 million Brooks Masters, Suzette and Ted Through survey of schools, churches, undocumented in the U.S. in 2006. Permutter. 2001. Networking the law enforcement, and local NGOs, Clear graphics show numbers, legal Networks: Improving Information identified seven challenges to inte- status, and migration trends, “mixed” Flows in the Immigration Field. New gration: language, lack of understand- family status, and concentration by York, NY: New School University ing of U.S. rules, cultural conflict and industry and occupation. International Center for Migration, racism, low wages, education/training www.pewhispanic.org. Ethnicity and Citizenship. Analyzes needs, basic needs, and lack of access information needs of over 120 immi- to legal status and advice. Passel, Jeffrey S. 2005. Unauthorized grant advocacy and service organiza- www.unl.edu/lri. Migrants: Numbers and Characteristics. tions around the country, as well as Washington, D.C.: Pew Hispanic Center. the methods used by these groups Chicago Council on Foreign Relations. Describes undocumented population, to obtain and impart information. 2004. Keeping the Promise: with many graphics based on March Compiles the most popular listservs Immigration Proposals from the 2004 Current Population Survey. In and websites and identifies key unmet Heartland. Chicago, IL: The Chicago addition to migration trends and information needs. Recommends Council on Foreign Relations. Reports employment, reports on dispersal to greater collaboration among informa- results of multi-stakeholder task different areas of United States, and tion providers, education initiatives force, including key politicians and gives detail on family composition, to improve technology use, new infor- corporate and union leaders, convened children, and poverty not covered in mation products to address unmet to examine importance of immigration Passel’s 2006 report on the unautho- needs, and creation of greatly to the Midwest. Documents how rized population. www.pewhispanic.org. expanded communication and immigration helps prevent population information networks. decline, reinvigorate economic growth, Powers, Mary G., Ellen Percy Kraly, and contribute to cultural diversity. and William Seltzer. 2004. “IRCA: Capps, Randy, Jeffrey S. Passel, Daniel Recommends series of policy propos- Lessons of the Last Legalization Perez-Lopez, and Michael Fix. 2003. als to reform immigration system, Program,” Migration Information The New Neighbors: A User’s Guide strengthen communities through an Source, July. Washington, D.C.: to Data on Immigrants in U.S. integration agenda, and provide Migration Policy Institute. Reviews Communities. Washington, D.C.: The infrastructure to implement recom- research on how 1986 legalization Urban Institute. Designed to help mendations. www.ccfr.org. program affected the undocumented, local policy makers, program man- including results of large-scale, longi- agers, and advocates use U.S. Census Gozdziak, Elzbieta and Susan F. tudinal study conducted in 1989 and and other data sources to identify Martin, eds. 2005. Beyond the 1992 with 4,000 immigrants who characteristics, contributions, and Gateway: Immigrants in a Changing legalized. Although many arrived with needs of immigrant populations in America. Lanham, MD: Lexington low skill levels and took low-wage their local communities. Identifies Books. Describes the growth and pop- jobs, by 1992 the majority had moved national trends that provide a context ulation characteristics of immigrants up to better jobs as a result of legal- for understanding immigration to in new settlement states and exam- ization. www.migrationpolicy.org. local communities; provides detailed ines implications for integration of information on relevant data sources, immigrants moving into areas that lack what information they contain, and a tradition of receiving newcomers. RECEIVING COMMUNITIES: how to use them; presents sample Provides case studies of new immi- IMPACT AND RESPONSES immigrant profile (for Rhode Island) grant settlements in North Carolina, to show how data can inform policy Atlanta, Minnesota, Virginia, Utah, Applied Research Center. 2002. options. www.urban.org. and Arkansas. Mapping the Immigrant Infrastructure. Oakland, CA: Applied Research Center. Caranza, Miquel A. and Lourdes Kochlar, Rakesh, Roberto Suro, and Examines models of immigrant and Gouveia. 2002. The Integration of Sonya Tafoya. 2005. The New Latino refugee organizations by evaluating the Hispanic/Latino Workforce: Final South: The Context and Consequences data from interviews with over 120 Project Report. Lincoln, NE: Nebraska of Rapid Population Growth. key leaders and case studies of six Task Force on the Productive Integration Washington, D.C.: Pew Hispanic local organizations; assesses the of the Immigrant Workforce Population. Center. Documents economic and effect of the post-September 11 polit- Task Force commissioned by the social impact of rapid influx of Latino ical environment on immigrant and Nebraska legislature evaluates poten- immigrants in response to burgeoning refugee communities. www.arc.org. tial for integrating new Latino work- economic growth in the South. ers whose numbers grew by 155 per- Focuses on settlement patterns, eco- cent between 1990-2000 in response nomic context, and policy impact on to new beef- and poultry-processing education and housing stock of immi- jobs. Paints portrait of newcomers’ gration in six states with growth economic, education, English lan- rates higher than rest of the United guage, and citizenship status. States: Arkansas, Alabama, Georgia, 246 North Carolina, South Carolina, and State of California, Little Hoover adults; and recommends policies and Tennessee). Finds that, although eco- Commission. 2002. We the People: practices that can help LEP adults nomic boom in South lowered overall Helping Newcomers Become gain access to higher-paying jobs. poverty rates by seven percent, Latino Californians. Sacramento, CA: Little www.clasp.org. poverty rates increased 30 percent Hoover Commission. Assessment by because economic development relied bi-partisan state oversight agency Martinez, Tia Elena and Ted Wang. on Latino workers filling low-skilled concludes that California has not 2005. Supporting English Language jobs in manufacturing, construction, come to terms with challenge of Acquisition: Opportunities for and services. www.pewhispanic.org. nation’s largest immigrant population. Foundations to Strengthen the Recommends that state realign public Social and Economic Well-Being of Northwest Federation of Community and community efforts to effectively Immigrant Families. Sebastopol, CA: Organizations. 2006. In Our Own integrate immigrants and urge federal Grantmakers Concerned with Words: Immigrants’ Experiences in government to reform failed immigra- Immigrants and Refugees and the the Northwest. Seattle, WA: Northwest tion policies. Proposed “California Annie E. Casey Foundation. Provides Federation of Community Organizations. Residency Program” would include thorough introduction to language Reports on immigrant experiences and undocumented immigrants who com- acquisition through demographic por- ability to resettle in United States, mit to becoming responsible resi- trait and review of major issues and based on in-depth interviews with dents, on grounds that denying serv- research findings on helping immi- 230 immigrants in Washington, ices and opportunities delays integra- grant adults and children learn Oregon, and Idaho, representing 19 tion, reduces their contributions, and English. Recommends criteria for countries. Combination of data and bloats state costs. www.lhc.ca.gov. selecting English proficiency programs extensive quotes portrays danger of that improve employability and help border crossing, difficulty of obtain- build family literacy. www.gcir.org. ing legal status, workplace discrimi- LANGUAGE nation, and lack of access to services. Shin, Hyon B. and Rosalind Bruno. Recommends states and federal gov- Alba, Richard. 2004. Language 2003. Language Use and English- ernment work together to create Assimilation Today: Bilingualism Speaking Ability: 2000. Census paths to citizenship, strengthen Persists More Than in the Past, But 2000 Brief. Washington, DC: U.S. worker protections, broaden opportu- English Still Dominates. Albany, NY: Census Bureau. Presents data on lan- nities for immigrants to become part Lewis Mumford Center for Comparative guage spoken at home and the ability of community life, and protect Urban and Regional Research, State of people ages five and over to speak immigrants from discrimination. University of New York at Albany. English; describes population distri- www.nwfco.org. Analyzes 2000 Census data on lan- butions and characteristics for the guages spoken at home by school-age United States, as well as regions, Santa Clara County Office of Human children in newcomer families, and states, counties, and selected places Relations Immigrant Action finds that English is almost univer- with populations of 100,000 or more. Network. 2000. Bridging Borders in sally accepted by the children and www.census.gov. Silicon Valley. Santa Clara, CA: Santa grandchildren of the immigrants who Clara County Office of Human Relations. have come to the United States in Reports results of comprehensive, 18- great numbers since the 1960s, simi- EDUCATION month community planning effort in lar to earlier generations of immi- Advocates for Children of New York California’s Silicon Valley, where grants. www.albany.edu/mumford. and The New York Immigration immigrants and their children com- Coalition. 2002. Creating a Formula prise more than 60 percent of the Kubo, Hitomi, Karin Martinson, Elise for Success: Why English Language population. Planning effort engaged Richer, Julie Strawn, and Heide Learner Students Are Dropping Out multiple stakeholders, including immi- Spruck Wrigley. 2003. The Language of School, and How to Increase grants and established residents, who of Opportunity: Expanding Graduation Rates. New York, NY: identified 16 action areas. Detailed Employment Prospects for Adults Advocates for Children of New York. research findings, analysis, and policy with Limited English Skills. June. Uses school data and student recommendations cover wages and Washington, DC: Center for Law and focus groups to assess why increasing working conditions, housing, health Social Policy. Describes the demo- numbers of English language learners access, mental health, criminal justice, graphics and economic circumstances (ELLs) in New York City dropped out domestic violence, food, employment of low-income LEP adults; profiles of school after the state adopted training, language access, child care, successful language and job training higher graduation standards. and legal services. services available to them, including Recommendations include: 1) target- www.immigrantinfo.org/borders. a summary of research findings on employment programs for low-skilled ing middle and high schools where

247 ELLS are underperforming; 2) imple- severe shortages of trained teachers. University Press. Comprehensive effort menting new strategies to reach stu- The 30 percent of LEP children who to understand why African Americans dents at high risk because they arrive attend mostly suburban ;ow-LEP and Latinos earn lower grades and in the United States as teenagers; 3) schools are isolated within their drop out of college more often than improving instruction in both ESL and schools and have few support programs Anglos or Asians; uses new national core classes as well as increase the to serve their needs. www.urban.org. longitudinal data on college freshmen number of teachers certified for ESL to examine the influence of neighbor- and bilingual instruction; 4) imple- Gershberg, Alan, Anne Danenberg, hood, family, peer group, and early ment a language access policy to and Patricia Sanchez. 2004. Beyond schooling on who enters and succeeds enable immigrant parents to partici- ‘Bilingual’ Education: New Immigrants in college. pate more actively in their children’s and Public School Policies. schools. www.advocatesforchildren.org. Washington, D.C.: Urban Institute. Matthews, Hannah and Danielle Ewen. Draws lessons for other states from 2006. Reaching All Children? Capps, Randy, Michael Fix, Julie the program and policy landscape of Understanding Early Care and Murray, Jason Ost, Jeffrey S. Passel, immigrant education in California, Education Participation among and Shinta Herwantoro. 2005. The which is home to 40 percent of the Immigrant Families. Washington, New Demography of America’s nation’s ELLs. Assesses national con- D.C: Center for Law and Social Policy. Schools: Immigration and the No troversy surrounding “bilingual” ver- Examines why children of immigrants Child Left Behind Act. Washington, sus English-only education. Detailed are less likely to participate in early D.C.: Urban Institute. Provides policy recommendations include education programs despite value of detailed demographic portrait from addressing significant challenges these programs in enhancing school 2000 Census on rapid growth of immi- immigrant students face aside from readiness and integration. Analyzes grant children, who often belong to learning English: reducing stigmatiza- participation by age and type of child one of the “protected classes” of the tion of immigrant and ELL students, care arrangements, preschool/kinder- No Child Left Behind Act because fostering parental participation, deal- garten enrollment, and socio-demo- they are LEP, low income, and/or a ing with legal and immigration- graphics factors affecting participation. member of a racial or ethnic minority related issues, and helping children Concludes with policy recommenda- group. Presents information on chil- navigate the school system and tions for improving enrollment at dren of immigrants, LEP children, and access health care. www.urban.org. state and local level. www.clasp.org. children of immigrants in low-income families; how family income and Karoly, Lynn A., Rebecca M. Kilburn, Olsen, Laurie, Jhumpa Bhattacharya, parental education interact with lin- and Jill S. Cannon. 2005. Early and Amy Scharf. 2004. Ready or guistic proficiency and isolation; and Childhood Interventions: Proven Not? School Readiness and the characteristics of children of Results, Future Promise. Santa Immigrant Communities. Oakland, Latino, Asian, and black immigrants, Monica, CA: Rand Corporation. CA: California Tomorrow. Describes with comparisons among children Comprehensive review of high-quality, how narrowly focused standardized with parents from different countries. early childhood intervention programs tests are being used to inappropri- www.urban.org. documents that well-designed pro- ately exclude and track young children grams for disadvantaged children age in immigrant families, and recom- Cosentino de Cohen, Clemencia, four and younger can significantly mends how school readiness programs Nicole Deterding, and Beatriz Chu benefit children’s academic and social can be designed to support immigrant Clewell. 2005. Who’s Left Behind? development and save money in later families and build on the powerful Immigrant Children in High and Low social program costs. Immigrant chil- role of culture and language in a LEP Schools. Washington, D.C.: Urban dren are disproportionately affected child’s development. Institute. Extensive analysis of by two of the four “childhood risk” www.californiatomorrow.org. national data on elementary schools factors that intervention programs are identifies risks for LEP students in intended to counteract: living in Ruiz-de-Velasco, Jorge, Michael Fix, both high- and low-LEP schools. The poverty and having parents who do and Beatriz Chu Clewell. 2001. high concentration of LEP students— not speak English at home. Overlooked and Underserved: with more than 70 percent attending www.rand.org. Immigrant Children in U.S. only 10 percent of the nation’s Secondary Schools. Washington, DC: schools—makes provision of special- Massey, Douglas S., Camille Z. The Urban Institute. Explores the ized services more cost efficient, but Charles, Garvey F. Lundy, and Mary institutional barriers and lack of puts these children at risk because J. Fischer. 2002. The Source of the resources that prevent secondary their predominately urban high-LEP River: The Social Origins of Freshmen schools from meeting the educational schools have high rates of poverty, at America’s Selective Colleges and needs of a growing number of LEP less-experienced principals, and Universities. Princeton, NJ: Princeton students. Provides a national profile

248 of LEP students, examines their edu- status, wages, occupations, and Moran, Tyler and Daranee Petsod. cational barriers, and offers educators gender of low-wage immigrant workers, 2003. Newcomers in the American and policymakers strategies to over- who made up 20 percent of all low- Workplace: Improving Employment come those barriers. www.urban.org. wage workers in 2000. www.urban.org. Outcomes for Low-Wage Immigrants and Refugees. Sebastopol, CA: Congressional Budget Office. 2005. Grantmakers Concerned with WORKFORCE & The Role of Immigrants in the U.S. Immigrants and Refugees and the ECONOMIC MOBILITY Labor Market. Washington, D.C: Neighborhood Funders Group Working Congressional Budget Office. Group on Labor and Community. Appleseed. 2006. Banking Immigrant Combines updated statistics, original Profiles conditions keeping immigrant Communities: A Toolkit for Banks calculations, and reviews of academic workers in working poverty, including and Credit Unions. Washington, D.C.: research to describe impact of immi- language and cultural barriers, Appleseed Network. Despite the grow- grants on U.S. labor market. Presents exploitative working conditions, ing numbers of Latino immigrants, an detailed information on educational, immigration-status vulnerabilities, estimated 40 to 60 percent do not occupational, and wage status of restrictions on access to public serv- have a bank account, limiting their high- and low-wage immigrant work- ices and benefits, and workforce ability to obtain credit to buy a home ers; looks at implications for the development and education systems or finance a business and making future as baby boomers exit the labor that do not respond to their needs. them vulnerable to high fees charged force. www.cbo.gov. Improving employment outcomes will by fringe financial services providers. require dual strategy of enhancing the Fine, Janice. 2006. Worker Centers: Toolkit educates banks on why and education of immigrant workers to Organizing Communities at the Edge how to reach immigrant communities move them out of low-wage jobs and of the Dream. Ithaca, NY: Cornell with practical strategies on how to improving existing working condi- University Press/Economic Policy bank outside the branch, engage the tions, wages and benefits. Describes Institute. Documents growing role of community, cross-sell services, deliver innovative approaches to addressing worker centers in protecting rights home mortgages, support the Earned these barriers and concludes with ten and promoting social connection for Income Tax Credit and financial recommendations for funding strate- low-wage immigrant workers. education, and understand the impor- gies. www.gcir.org. tance of remittances. Identifies 137 worker centers in 80 www.appleseed.network.org. cities and 31 states which help Papademetriou, Demetrios and Brian recover unpaid wages, provide English Ray. 2004. “From Homeland to a Appleseed. 2006. Expanding classes, and other services; advocate Home: Immigrants and Immigrant Access to Mainstream for enforcement and new laws; and Homeownership in Urban America,” Financial Services: Positive Practices organize their members through lead- Fannie Mae Papers, Vol. III, Issue 1, and Emerging Opportunities from ership development. Assesses centers’ March. Examines factors influencing the Latin American Immigrant strengths and weaknesses in helping immigrant homeownership rates, Experience. Washington, D.C.: workers navigate worlds of work and which helped minorities account for Appleseed Network. Outlines policies legal rights in the United states. 40 percent of the increase in home- and practices that help immigrants Short version available as an Economic owners between 1990 and 2000. access the banking system and build Policy Institute Briefing Paper, Describes variations in immigrant credit, and describes key avenues for December 2005, at www.epi.org. ownership rates across metropolitan community partnerships, successful regions (traditional urban gateways, Mishel, Lawrence, Jared Bernstein, approaches to financial education, new immigrant gateways, new fast- and Sylvia Allegretto. 2005. The and alternative banking approaches growing cities, and slow-growth desti- State of Working America that attract immigrant customers. nations) and among different foreign- 2004/2005. Ithaca, NY: Cornell Profiles successful immigrant banking born groups. Reviews initiatives that University Press/Economic Policy initiatives around the country and encourage ownership, including savings Institute. Leading portrait of economic includes useful bibliography. programs, underwriting flexibility, factors facing low-wage workers, www.appleseed.network.org. and education programs. updated bi-annually by the Economic www.fanniemae.com. Capps, Randolph, Michael Fix, Jason Policy Institute, examines trends in Ost, Jeffrey Passel, and Dan Perez- benefit growth and inequality, the Valenzuela, Abel Jr., Nik Theodore, Lopez. 2003. A Profile of the Low- shift to low-paying industries, the Edwin Melendez, and Ana Luz Wage Immigrant Workforce. impact of demographic change on Gonzalez. 2006. On the Corner: Day Washington, DC: Urban Institute. poverty, and international compar- Labor in the United States. Los Examines the size, educational attain- isons; includes information on Asian, Angeles, CA: Center for the Study of ment, English language ability, legal Hispanic, and immigrant workers. Urban Poverty, University of California at Los Angeles. Profiles growing national phenomenon of day laborers

249 based on first national study, which access to health care higher in states David and Lucille Packard Foundation. surveyed 2,660 day laborers at 264 with less generous programs to replace 2004. “Children of Immigrant hiring sites in 20 states. Detailed the federal cuts. www.urban.org. Families.” The Future of Children, information on worker characteristics, Vol. 14, No. 2, Summer. Special issue, type of work and wages, and working Capps, Randy, Michael Fix, Everett with pieces from many contributors, conditions finds they are regularly Henderson, and Jane Rearson- profiles strengths and challenges of denied payment and endure hazardous Anderson. 2005. A Profile of Low- children growing up in immigrant working conditions. Vast majority are Income Working Immigrant Families. families and the types of resources immigrant and Latino, 28 percent are Washington, D.C.: Urban Institute. and supports they need to become U.S. citizens and 75 percent are Finds that although working immi- engaged and productive citizens. undocumented, and almost two-thirds grant families were twice as likely as Donald J. Hernandez describes major have children. Policy recommenda- working native families to be low demographic trends over the past tions include ways to support worker income or poor, they were much less half-century, with wide range of data centers, improve enforcement of labor likely than low-income native families on cultural, family, social, economic, and employment laws, expand work- to participate in the EITC, receive and housing circumstances of children force development opportunities, and income assistance, Food Stamps, or across racial/ethnic and country-of- enact realistic immigration reform. housing assistance, and/or have their origin groups. Demetra Smith www.sscnet.ucls.edu/issr/csup. children enrolled in child care. Nighingale and Michael Fix assess www.urban.org. how social and economic policies that could support immigrant families are Capps, Randy, Michael Fix, Jason Ost, FAMILY WELL-BEING affected by economic and labor mar- Jane Reardon-Anderson, and Jeffrey AND SOCIAL PROGRAMS ket trends. Ruby Takanishi examines S. Passel. 2004. The Health and services that children from birth to Well-Being of Young Children of Berube, Alan. 2005. ¿Tienes EITC? A age eight need, with special focus on Immigrants. Washington, D.C.: Urban Study of the Earned Income Tax education needs and barriers. Cynthia Institute. Synthesizes national data Credit in Immigrant Communities. Garcia Coll and Laura A. Zalacha sources to portray major factors Washington, D.C.: Brookings address special needs of middle child- affecting children in immigrant fami- Institution. Estimates immigrant par- hood, highlighting critical roles racial lies under age six, the key years for ticipation in the EITC from IRS and and cultural factors play for children child development. Clear graphs por- Census data in light of research indi- who are not part of mainstream soci- tray poverty, family structure and cating immigrants overall have lower ety. Andrew J. Fuligni and Christina parents’ work; risk factors for poor than average participation rates. Hardway review research on educa- school performance; hardship and Finds high immigrant participation tional achievement, work skills, and benefit use; health status; and child rates in densely populated urban zip health of adolescents from immigrant care arrangements. Concludes with codes but low rates in “moderate” families. Additional articles explore suggestions for further research. immigrant zip codes, primarily sub- challenge of growing up American www.urban.org. urbs, where 27 percent of all immi- from different ethnic and racial per- grants live; immigrants in suburbs are Center on Budget and Policy spectives and assess how policymak- more dispersed and do not have same Priorities. 2005. Accomplishments ers and stakeholders can respond access to NGO and tax preparer of the Safety Net. Washington, D.C.: strategically to demographic change groups as those in urban areas. Center on Budget and Policy propelled by immigrant families. www.brookings.edu. Priorities. Synthesizes research find- www.futureofchildren.org. ings on role of safety-net programs, Capps, Randy. 2001. Hardship among Fix, Michael and Wendy Zimmermann. which have reduced the number of Children of Immigrants: Findings 1999. All Under One Roof: Mixed- Americans living in poverty in half, from the 1999 National Survey of Status Families in an Era of Reform. and lifted nearly one of every three America's Families. Washington, D.C.: Washington D.C.: Urban Institute. otherwise-poor children above the Urban Institute. Documents hardship Explores why and how mixed immigra- poverty line in 2003. Report examines among children in immigrant families tion status families are created and role of income support, food and resulting from the 1996 welfare law examines how the 1996 welfare curbs nutrition programs, health care pro- benefit cuts that had a disproportion- on noncitizens' use of public benefits grams, and the Earned Income Tax ate impact on immigrants. Hardship may have the unintended effects of Credit. www.cbpp.org. was greater for children of immigrants reducing citizen children's use of ben- than natives in three areas of basic efits. www.urban.org. need: food, housing, and health care. Examination of eight high-immigrant states showed hunger and lack of

250 Fremstad, Shawn. 2003. Immigrants, Fremstad, Shawn and Laura Cox. National Immigration Law Center. Persons with Limited Proficiency in 2004. Covering New Americans: A 2002. Immigrant-Friendly Health English, and the TANF Program: Review of Federal and State Policies Coverage Outreach and Enrollment. What Do We Know? Washington, Related to Immigrants’ Eligibility Los Angeles, CA: National Immigration D.C.: Center for Budget and Policy and Access to Publicly Funded Law Center. Explains special concerns Priorities. Reviews data on how immi- Health Insurance. Washington, D.C.: that keep immigrant families from grants fare under work-focused, time- Kaiser Commission on Medicaid and participating in public-benefit pro- limited TANF program; discusses pol- the Uninsured. Reviews significant grams even when eligible. Describes icy implications of research showing declines in health coverage for legal confusion about eligibility, confiden- that many immigrants who remain on immigrants after enactment of 1996 tiality, public charge, sponsor liability, welfare rolls have significant barriers welfare law. Examines impact of new and language access, and gives step- to employment, including limited state replacement programs, and by-step suggestions for overcoming proficiency in English and low skill reviews ways to reduce enrollment barriers in the application process, levels. www.cbpp.org. barriers, including confusion over improving enrollment strategies, and program eligibility, language barriers, conducting outreach to immigrant National Immigration Law Center. and concerns that enrollment will families. www.nilc.org. 2002. Guide to Immigrant Eligibility jeopardize immigration status. for Federal Programs, 4th ed. Los www.cbpp.org. Angeles, CA: National Immigration CITIZENSHIP & Law Center. Explains complexity of Grantmakers In Health. 2005. For the CIVIC PARTICIPATION immigrant eligibility for federal bene- Benefit of All: Ensuring Immigrant fit programs after 1996 welfare law Health and Well-Being. Charlotte, Bloemgaard, Irene. 2002. “The North restrictions, as well as replacement N.C.: Grantmakers In Health Issues American Naturalization Gap: An programs enacted by states to soften Brief No. 24. Summarizes challenges Institutional Approach to Citizenship impact of federal cuts. Gives detailed immigrants face maintaining good Acquisition in the United States information on eligibility for foster health on arrival in United States, and Canada.” International care and other children’s programs as including lack of health care cover- Migration Review, Vol. 36, No. 1, well as programs providing cash, age, linguistic barriers, and cultural Spring. Reviews competing academic food, housing, employment, educa- adjustments; describes how grantmak- theories on why immigrant groups tion, legal services, and disaster ers can help improve immigrant have differing naturalization rates, relief. Clarifies how to identify immi- health by building capacity in immi- and reports results of comparative grant status; provides glossary of grant communities, promoting immi- study indicating that institutional terms. www.nilc.org. grant integration, expanding access support for naturalization by the and coverage, and supporting educa- receiving society can make a significant tion and outreach activities. difference. Aided by active Canadian HEALTH www.gih.org. government support for community groups promoting citizenship, Capps, Randy, Genevieve Kenney, Ku, Leighton and Timothy Waidmann. Portuguese immigrants in Toronto and Michael Fix. 2003. “Health 2003. How Race/Ethnicity, achieved naturalization rates twice as Insurance Coverage of Children in Immigration Status and Language high as Portuguese immigrants with Mixed-Status Immigrant Families.” Affect Health Insurance Coverage, similar socio-economic characteristics Snapshots of America’s Families III, Access to Care, and Quality of Care in Boston, where no government poli- No. 12. Washington, D.C.: Urban Among the Low-Income Population. cies or programs promoted citizen- Institute. Finds that policies designed Washington, D.C.: Kaiser Commission ship. It takes immigrants in the United to reduce language barriers and legal on Medicaid and the Uninsured. States 30 years to reach Canadian immigrants’ fears of receiving health Provides detailed comparative analysis naturalization rates of 73 percent. benefits helped expand coverage for of how race/ethnicity, immigration low-income citizen children with status, and language affect health Carnegie Corporation of New York. immigrant parents between 1999 and insurance coverage, access to care, 2003. The House We All Live In: A 2002, but that coverage rates for and quality of care; helpful charts Report on Immigrant Civic Integration. these children are still below children portray coverage rates and percent- New York, NY: Carnegie Corporation of with citizen parents. Very low rates ages by status and ethnicity who saw New York. Describes efforts to help of coverage offered by immigrants’ a doctor, were hospitalized, or post- immigrants’ integrate and become employers increases significance of poned seeking care. Policies that engaged in civic activities; summa- whether or not access to public cov- could play a key role in reducing dis- rizes recommendations for funders on erage is available. www.urban.org. parities include restoring federal cov- ways to support civic integration erage to legal immigrants, expanding through policies and programs that state replacement programs, increasing job-related coverage, and improving language access. www.kff.org. 251 help immigrants establish a solid eco- Paral, Rob. 2004. “Power and Stoll, Michael A. and Janelle S. Wong. nomic and educational foothold, Potential: The Growing Electoral 2003. Civic Participation in a become citizens and vote, and protect Clout of New Citizens,” Immigration Multiracial and Multiethnic Context. their civil rights and liberties. Policy in Focus, Vol. 3, Issue 4, Los Angeles,CA: Center for the Study www.carnegie.org. October. Uses Census data from 1996 of Urban Poverty, University of and 2000 election years to describe California at Los Angeles. Finds that Fix, Michael, Jeffrey S. Passel, and key characteristics of immigrant vot- classic indicators of civic participa- Kenneth Sucher. 2003. Trends in ers and groups in which immigrants tion (socioeconomic status, political Naturalization. Washington, DC: are a large percentage of the popula- orientation, religiosity) have less pre- Urban Institute. Uses 2000 Census tion, such as Latinos and Asian/Pacific dictive value in a multiracial urban and 2002 Current Population Survey Islanders. New citizens drawn from context, where recent immigration, data to examine sharp increases in these groups accounted for more than interracial ties, and other factors help naturalization rates in the 1990s as half of the net increase in persons explain differences in participation well as size and characteristics of the registered to vote between 1996 and among Anglos, black, Latinos, and pool of immigrants eligible to natu- 2000. Clear charts portray rates of different Asian immigrant groups. ralize. Of 11.3 million LPRs in 2002, citizenship, voter registration, and Extensive bibliography. 7.9 million were eligible to naturalize, voting by different groups; give data www.sscnet.ucla.edu/issr/csup. but these eligible immigrants have on 17 states where foreign-born citi- more limited English skills and lower zens number 100,000 or more. educational levels than those who www.ailf.org. RACE, INTERETHNIC naturalized in the 1990s. RELATIONS, & NATIVISM www.urban.org. Ramakrishnan, S. Karthick. 2005. Democracy in Immigrant America: Arab American Institute. 2002. Gerstle, Gary and John Mollenkopf, Changing Demographics and Political Healing the Nation: The Arab eds. 2001. E Pluribus Unum? Participation. Palo Alto, CA: Stanford American Experience after Contemporary and Historical University Press. Analyzes current September 11. Washington, D.C.: Perspectives on Immigrant Political national data to test applicability of Arab American Institute. Describes Incorporation. New York, NY: Russell traditional theories of political behav- response of the Arab-American com- Sage Foundation. Brings together his- ior to contemporary first- and second- munity to the September 11 attacks; torians and social scientists to com- generation immigrants. Assesses examines backlash, civil rights issues, pare contemporary immigrant political voting and other forms of political and efforts by Arab-Americans to incorporation with dynamics of the behavior among immigrants of differ- educate and inform the larger early twentieth century immigrant ent ethnic and socio-economic char- community. www.aaiusa.rog. wave; articles examine political acteristics and operating in different machines, naturalization, transna- contexts of political threat and insti- Bach, Robert. 1993. Changing tional loyalties, racial exclusion, and tutional mobilization; also examines Relations: Newcomers and the role of the schools in political non-voting political behavior (e.g., Established Residents in U.S. socialization. www.russellsage.org. signing petitions, attending meetings, Communities: A Report to the Ford contributing to political causes) Foundation by the National Board of McGarvey, Craig. 2004. Pursuing across immigrant generations and the Changing Relations Project. New Democracy’s Promise: Newcomer ethnicities. York, NY: Ford Foundation. Explores Civic Participation in America. sources of conflict and strategies to Sebastopol, CA: Grantmakers Rytina, Nancy F. 2006. Estimates of promote positive interaction among Concerned with Immigrants and the Legal Permanent Resident longtime residents and newcomers of Refugees in collaboration with Funders’ Population and Population Eligible widely different cultures in variety of Committee on Civic Participation. to Naturalize in 2004. Washington, U.S. communities. Despite fragmenta- Describes the basics of immigrant D.C.: Department of Homeland Security tion generated by economic restruc- civic participation, portrays different Office of Immigration Statistics. turing and new ethnic diversity, finds approaches to engagement through Estimates that eight million LPRs that many “community brokers,” stories of seven successful programs, were eligible to naturalize as of including teachers, clergy, and police, and examines various models and September 2004; provides tables by were able to forge ties and ease ten- pathways for civic and political par- year admitted, country of birth, and sions. Recommendations based on ticipation. Summarizes strategies for state of residence. study of four big-city neighborhoods funders and outlines additional www.dhs.gov/immigrationstatistics. (Chicago, Houston, Miami, and resources. www.gcir.org. Philadelphia); suburban Monterey Park, California; and rural Garden City, Kansas. www.fordfound.org.

252 Blackwell, Angela Glover, Stewart norm. Illustrates how everyday civility Smelser, Neil J., 2001. William Julius Kwoh, and Manuel Pastor. 2002. is negotiated and maintained in daily Wilson and Faith Mitchell, eds. Searching for the Uncommon Common interactions between merchants and America Becoming: Racial Trends Ground: New Dimensions on Race in their customers. and Their Consequences. Washington, America. New York, NY: W.W. Norton. D.C. National Academy Press. Examines how changing demographics Leadership Conference on Civil Rights Synthesizes research on key contem- are affecting national debate on race Education Fund. 2004. Cause for porary race issues. In Volume 1, lead- in five key dimensions: the black- Concern: Hate Crimes in America. ing scholars address demographic white paradigm versus multicultural- Washington, D.C.: Leadership changes, immigration trends, racial ism; diversity versus racial and social Conference on Civil Rights Education attitudes, racial and ethnic trends in justice; universal strategies versus Fund. Documents causes and inci- education, and residential segrega- strategies for a particular group; dence of hate crimes in the United tion; Volume 2 covers trends in the national versus local responsibility; States, including backlash incidents justice system, labor force and and structural factors versus individ- after September 11; profiles six dif- welfare, and health. ual initiative. Recommends strategies ferent major organized hate groups, to develop leaders with multiethnic, including armed border vigilante multiracial perspectives. groups, and examines effectiveness EQUAL TREATMENT of federal and state law enforcement & OPPORTUNITY Foner, Nancy and George M. efforts. www.civilrights.org. Frederickson, eds. 2004. Not Just American Bar Association Commission Black and White: Historical and National Asian Pacific American Legal on Immigration and Leadership Contemporary Perspectives on Consortium. 2002. Hate Crimes Conference on Civil Rights Immigration, Race, and Ethnicity in Community Toolkit. Washington, D.C.: Education Fund. 2004. American the United States. New York, NY: National Asian Pacific American Legal Justice through Immigrants’ Eyes. Russell Sage Foundation. Analyses Consortium. Provides information Washington, D.C.: American Bar how different racial and ethnic groups about hate crimes and how to report Association Commission on Immigration have related to each other, both his- them; resource sheets include fre- and Leadership Conference on Civil torically and today. Scholars trace the quently asked questions; checklists Rights Education Fund. Shows how history of different perspectives of for hate crime victims and community sharp restrictions of 1996 immigration race and ethnicity, the shifting role of organizations; and information on law have combined with post-September state policy, trends in intermarriage working with law enforcement and the 11 law and policy changes to create a and residential segregation, and media. www.advancingequality.org. two-tiered system of justice that sin- intergroup relations among Blacks, gles out immigrants for unequal treat- National Council of La Raza. 2004. Asian-Americans, and Latinos. ment. Combines clear description of Combating Anti-Immigrant legal changes with stories of affected Opportunism Post-September 11. Higham, John. 2002 rev. ed. Strangers individuals; recommends steps to Washington, D.C. Examines anti-immi- in the Land: Patterns of American restore due process and fair treat- grant sentiment in the United States Nativism, 1860-1925. New Brunswick, ment. www.abanet.org/publicserv/ prior to September 11; analyzes his- N.J: Rutgers University Press. Explains immigration. sources and impact of American tory and goals of major restrictionist nativism which flourished during the groups and examines how they have De Souza Briggs, Xavier, ed. 2005. The great cycle of immigration in the late taken advantage of the terrorist Geography of Opportunity: Race and nineteenth and early twentieth cen- attack to promote their anti-immi- Housing Choice in Metropolitan tury. Higham’s analysis of the differ- grant message. www.nclr.org. America. Washington, D.C.: Brookings ent strains of nativism, from anti-for- Institution. Shows how ambivalence Quiroz, Julie Teresa. 1995. Together in eign to anti-radical and anti-Catholic, towards new immigrants and racial Our Differences: How Newcomers and is considered masterful and is relied minorities has resulted in residential Established Residents are Rebuilding on by scholars today. segregation by race and income, and American Communities. Washington, how this segregation undermines edu- D.C: National Immigration Forum. Lee, Jennifer. 2002. Civility in the cation and job prospects as well as Profiles efforts to promote collabora- City: Blacks, Jews, and Koreans in health and safety. Outlines an agenda tion among established residents and Urban America. Boston, MA: Harvard to expand opportunity and assesses new immigrants in 16 communities University Press. Examining relation- viability of movement for regional across the country; examples include ships among African-American, Jewish, solutions. and Korean merchants and their black initiatives to create affordable hous- customers in New York and Philadelphia, ing, promote economic development, finds, contrary to frequent sensation- improve family literacy, and engage in alism of media coverage, that social neighborhood and citywide advocacy. order, routine, and civility are the www.immigrationforum.org.

253 Human Rights Watch. 2004. Blood, Opportunity Agenda. 2006. The Sweat, and Fear: Workers’ Rights in State of Opportunity in America. U.S. Meat and Poultry Plants. New Washington, D.C.: The Opportunity York, NY: Human Rights Watch. Agenda. Finds that after five decades Documents critical hazards to worker of progress in building a middle class, health and safety in the U.S. meat creating a safety net, and erecting and poultry industry, which increas- legal protections against official seg- ingly relies on immigrant workers. regation and overt exclusion of mar- Explains how government failure to ginalized groups, opportunity in the regulate the industry violates interna- U.S. is at risk. Clear charts and data tional human rights and labor stan- measure progress along six interre- dards protections; recommends way lated dimensions: mobility, equality, that federal and state governments participation in democracy, redemp- and meat and poultry companies can tion/rehabilitation, community, and improve conditions and comply with security. www.opportunityagenda.org. international standards. Smith, Rebecca, Amy Sugimori, Luna Jacobs, Lawrence and Theda Skocpol, Yasui, and Sarah Massey. 2002. Low eds. 2005. Inequality and American Pay, High Risk: State Models for Democracy: What We Know and Advancing Immigrant Workers' What We Need to Learn. New York, Rights. New York, NY: National NY: Russell Sage Foundation. Employment Law Project. Shows how Examines how dramatic increase in state laws and agency actions can economic inequality since the 1970s advance the labor rights of immigrant may have stalled or reversed gains workers; profiles selected local cam- toward U.S. ideals of participatory, paigns. Describes improved policies responsive democracy. Scholars mar- for language access, government shall evidence that economic inequal- benefits and services, confidentiality ity has diminished voice of middle provisions, access to drivers' licenses, and working class in politics, and rights and remedies under labor and reduced support for inclusive public employment law, and access to work- policies, like the G.I. Bill and Social ers' compensation. www.nelp.org. Security, that opened opportunities in the middle of the twentieth century.

Lawyers Committee for Human Rights. 2003. Assessing the New Normal: Liberty and Security for the Post- September 11 United States. Washington, D.C.: Lawyers Committee for Human Rights. Examines impact of post-September 11 policies on open government, personal privacy, and human rights, with special chapter describing impact on rights of immigrants, refugees, and minorities. www.humanrightsfirst.org.

254