GAO 

United States Government Accountability Office

Report to Congressional Committees

IRAQ

Iraqi Refugees and 

Special Immigrant 

Visa Holders Face 

Challenges Resettling 

in the United States 

and Obtaining U.S. 

Government 

Employment 

March 2010 

GAO-10-274 
What GAO Found

United States Government Accountability Office

Why GAO Did This Study

Highlights

Accountability Integrity Reliability

March 2010

IRAQ

Iraqi Refugees and Special Immigrant Visa Holders

Face Challenges Resettling in the United States and 

Highlights of GAO-10-274, a report to Obtaining U.S. Government Employment 

congressional committees 

Since the February 2006 bombing 

of the Al-Askari Mosque in Samara 

that triggered the displacement of 

thousands of Iraqis, the United 

States has taken a lead role in 

resettling the displaced. The 

administration has indicated its 

intent to assist those Iraqis who 

supported the United States in Iraq. 

In addition, Congress authorized 

the Departments of Defense (DOD) 

and State (State) to jointly 

establish and operate a program to 

offer temporary employment to 

Iraqi special immigrant visa (SIV) 

holders in the United States. 

This report provides information 

on the (1) status of resettled Iraqis 

in the United States and the initial 

challenges they face, (2) benefits 

afforded Iraqi refugees and SIV 

holders, and (3) challenges they 

face obtaining employment with 

the federal government. GAO 

conducted this review under the 

Comptroller General’s authority. 

GAO analyzed data on Iraqi 

refugees and SIV holders in the 

United States, and laws and 

regulations on the benefits afforded 

to them. GAO also analyzed U.S. 

government employment and 

personnel security requirements. 

GAO interviewed officials from five 

key agencies regarding these 

requirements. 

This report does not contain 

recommendations. DOD provided 

official comments. State and the 

Departments of Homeland Security 

and Health and Human Services 

(HHS) provided technical 

comments. GAO incorporated 

these comments, as appropriate. 

Between fiscal years 2006 and 2009, the United States admitted 34,470 Iraqi 

refugees under State’s Refugee Admissions Program. In addition, State issued 

4,634 SIVs to Iraqis pursuant to two programs, established by Congress to help 

Iraqis who previously worked for the U.S. government in Iraq. Resettlement 

agencies, working under cooperative agreements with State, have resettled 

Iraqis throughout the United States but particularly in California and 

Michigan. These agencies have found that Iraqis arrive in the United States 

with high levels of trauma, injury, and illness, which contribute to the 

challenges they face in resettling in a new country. In addition, entry-level jobs 

normally available to refugees are scarce and more competitive in the current 

economic downturn. Iraqi refugees generally have high levels of education, 

according to U.S. officials and representatives from the resettlement agencies. 

Nevertheless, Iraqis have struggled to find entry-level employment in the 

United States. 

Iraqi refugees and SIV holders are eligible for resettlement assistance and 

public benefits upon arrival in the United States. State provides resettlement 

agencies $1,800 per person to cover basic housing, food, and assistance for 

accessing services during their first 30 days in the United States; however, 

support may continue for up to 90 days if basic needs have not been met. 

Refugees automatically receive these benefits; Iraqi SIV holders must elect to 

receive them within 10 days of receiving their visas. In addition, qualified Iraqi 

refugees and, as a result of December 2009 legislation, qualified SIV holders 

can receive certain assistance for up to 7 years through public benefits 

programs. Prior to December 19, 2009, Iraqi SIV holders’ eligibility for public 

benefits generally ceased after 8 months. Both groups can also receive up to 8 

months of cash and medical assistance from HHS if they do not qualify for 

public benefits. In addition, HHS funds social services, including job 

preparation, English language classes, and assistance with job interviews, for 

which Iraqi refugees and SIV holders may be eligible for up to 5 years. 

Iraqi refugees and SIV holders, including those who acted as interpreters and 

linguists for civilian agencies and military commands in Iraq, have limited 

opportunities for federal employment. Most federal positions in the United 

States require U.S. citizenship and background investigations; certain 

positions, including most positions related to Arabic or Iraq, also require 

security clearances, which noncitizens cannot obtain. However, GAO did 

identify positions at DOD’s Defense Language Institute and State’s Foreign 

Service Institute open to qualified noncitizens. Finally, State and DOD have 

not established the temporary program intended to offer employment to Iraqi 

SIV holders under authority granted the agencies in fiscal year 2009 

legislation. Although both agencies have positions requiring Arabic language 

skills, neither identified any unfilled needs that could be met by employing 

Iraqi SIV holders through this joint program. View GAO-10-274 or key components.

For more information, contact Joseph A. 

Christoff at (202) 512-8979 or 

christoffj@gao.gov. 
Page i GAO-10-274 

Contents 

Letter 1

Background 3 

Iraqi Refugees and SIV Holders Arrive under Three Different U.S. 

Programs and Face Challenges upon Arrival in the United States 5 

As of December 2009, Iraqi SIV Holders Are Eligible for 

Resettlement Assistance and Public Benefits to the Same Extent 

as Refugees 12 

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

Government Employment 16 

Agency Comments and Our Evaluation 20 

Appendix I Objectives, Scope, and Methodology 24 

Appendix II Initial Resettlement, by State, of Iraqi Refugees and 

Special Immigrant Visa Holders, Fiscal Years 2006 

through 2009 27 

Appendix III Comments from the Department of Defense 29 

Appendix IV GAO Contact and Staff Acknowledgments 30 

Tables 

Table 1: Iraqi Refugee Admissions to the United States, Fiscal 

Years 2006 through 2009 6 

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

through 2009 8 

Table 3: Arabic Language Positions in the United States at DOD 

and State for Eligible Noncitizens, as of November 6, 2009 19 

Table 4: Initial Resettlement, by State, of Iraqi Refugees and 

Special Immigrant Visa Holders, Fiscal Years 2006 through 

2009 27 

 Iraqi Refugees 
Figures 

Figure 1: Initial Resettlement, by State, of Iraqi Refugees and 

Special Immigrant Visa Holders, Fiscal Years 2006 through 

2009 10 

Figure 2: Highlights of Resettlement Assistance Available to Iraqi 

Refugees and Special Immigrant Visa Holders in the 

United States 14 

Abbreviations 

CBP U.S. Customs and Border Protection 

DHS Department of Homeland Security 

DLI Defense Language Institute 

DOD Department of Defense 

DOJ Department of Justice 

FSI Foreign Service Institute 

HHS Department of Health and Human Services 

NDAA National Defense Authorization Act 

NGO nongovernmental organization 

OPE overseas processing entity 

OPM Office of Personnel Management 

ORR Office of Refugee Resettlement 

PRM Bureau of Population, Refugees, and Migration 

SCHIP State Children’s Health Insurance Program 

SIV special immigrant visa 

SNAP Supplemental Nutrition Assistance Program 

SSI Supplemental Security Income 

TANF Temporary Assistance for Needy Families 

UNHCR United Nations High Commissioner for Refugees 

USAID U.S. Agency for International Development 

USCIA U.S. Citizenship and Immigration Services 

This is a work of the U.S. government and is not subject to copyright protection in the 

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Page ii GAO-10-274 Iraqi Refugees
Page 1 GAO-10-274 

 

United States Government Accountability Office

Washington, DC 20548 

 

March 9, 2010 

Congressional Committees 

The February 2006 bombing of the Al-Askari Mosque in Samara triggered 

sectarian violence in Iraq and increased the number of displaced Iraqis. 

The United States has taken a lead role in resettling displaced Iraqis under 

the Department of State’s (State) Refugee Admissions Program. In 

addition, Congress established two special immigrant visa (SIV) programs 

to help qualified Iraqis who previously worked for the U.S. government in 

Iraq to immigrate to the United States.1

 The administration has indicated 

its intent to assist those Iraqis who supported the United States in Iraq. 

Many worked for the United States as translators, interpreters, or 

contractors. In addition, Congress authorized the Departments of Defense 

(DOD) and State to jointly establish and operate a program to offer 

temporary employment to Iraqi SIV holders in the United States as 

translators, interpreters, or cultural awareness instructors.2

GAO previously reported on U.S. and international efforts to protect and 

assist Iraqi refugees in neighboring countries.3

 In this report, we (1) 

provide information on the status of resettled Iraqis in the United States 

and the initial challenges they face, (2) review the benefits afforded Iraqi 

refugees and SIV holders, and (3) review the challenges Iraqi refugees and 

SIV holders face in obtaining employment with the federal government. 

Due to broad congressional and national interest in the U.S. engagement in 

Iraq, this work was conducted under the Comptroller General’s authority 

to conduct evaluations on his own initiative. The late Senator Edward 

Kennedy, former chairman of the Senate Committee on Health, Education, 

Labor, and Pensions, also requested that GAO conduct this work. 

1

Under these programs, Iraqi nationals who worked for the U.S. government, as defined in 

each program’s authorizing legislation, and met other conditions are eligible to receive 

special immigrant visas. See National Defense Authorization Act for Fiscal Year 2006, Pub. 

Law No. 109-163, Section 1059 and National Defense Authorization Act for Fiscal Year 2008, 

Pub. Law No. 110-181, Section 1244. 

2

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

3

GAO, Iraqi Refugee Assistance: Improvements Needed in Measuring Progress, Assessing 

Needs, Tracking Funds, and Developing an International Strategic Plan, GAO-09-120

(Washington, D.C.: Apr. 21, 2009). 

 Iraqi Refugees 
 

To address our objectives, we collected and analyzed relevant laws, 

regulations, and agency policies on Iraqi refugees and SIV holders 

resettling in the United States and the benefits afforded them. We also 

interviewed officials from State’s Bureaus of Population, Refugees, and 

Migration (PRM) and Consular Affairs; the Department of Homeland 

Security’s (DHS) U.S. Citizenship and Immigration Services (USCIS) and 

Customs and Border Protection (CBP); and the Department of Health and 

Human Services’ (HHS) Office of Refugee Resettlement (ORR). We also 

interviewed representatives from 10 resettlement agencies that work with 

PRM and ORR to provide benefits and services to refugees and SIV 

holders. In addition, we analyzed relevant laws, regulations, executive 

orders, and agency policies on U.S. government employment and 

personnel security requirements. We interviewed officials from the Office 

of Personnel Management (OPM) regarding requirements for U.S. 

government employment. We also interviewed program, human resource, 

and security officials from five key agencies—DOD, State, DHS, the 

Department of Justice (DOJ), and the U.S. Agency for International 

Development (USAID)—regarding their employment and personnel 

security requirements for positions in the United States. We chose these 

agencies because they have national security missions, ongoing programs 

in Iraq, and need for personnel with Arabic language skills. We focused on 

employment in the United States because generally Iraqi refugees and SIV 

holders who want to apply for U.S. citizenship must reside in the United 

States for a certain period of time. In addition, refugees’ ability to apply for 

permanent resident status4

 could be delayed if they travel overseas.5 We 

did not develop an inventory of the agencies’ needs for Arabic language 

skills or Iraqi expertise. The majority of our audit work was completed 

prior to the December 2009 passage of the fiscal year 2010 Department of 

Defense Appropriations Act,6

 which changed Iraqi SIV holders’ eligibility 

for public benefits, and the fiscal year 2010 Consolidated Appropriations 

 

4

Permanent residents are foreign nationals who are legally permitted to live permanently in 

the United States. They differ from other legal noncitizens, such as students, who are 

admitted into the country for a specific purpose and temporary period of time. 

5

By law, refugees must apply for permanent resident status 1 year after entry into the 

United States. In addition, according to USCIS officials, if an Iraqi refugee returned to Iraq, 

it could raise issues during the inspection process when attempting to return to the United 

States, or as part of any application to adjust his/her immigration status or obtain U.S. 

citizenship, as it could signal that the individual’s initial refugee claim may be fraudulent. 

6

See Department of Defense Appropriations Act, 2010, Pub. Law No. 111-118, Section 

8120(a), Dec. 19, 2009. 

Page 2 GAO-10-274 Iraqi Refugees
 

Act,7 which made changes to a long standing restriction on the use of 

appropriated funds to employ noncitizens by the federal government in the 

United States. We updated our report to reflect these changes, as 

appropriate. A detailed description of our scope and methodology is 

included in appendix I. 

We conducted our work from July 2009 to March 2010 in accordance with 

all sections of GAO’s Quality Assurance Framework that are relevant to 

our objectives. The framework requires that we plan and perform the 

engagement to obtain sufficient and appropriate evidence to meet our 

stated objectives and to discuss any limitations in our work. We believe 

that the information and data obtained, and the analysis conducted, 

provide a reasonable basis for any findings and conclusions. 

According to the International Organization for Migration, the February 

2006 bombing of the Al-Askari Mosque in Samara triggered sectarian 

violence, which increased the number of displaced Iraqis. Although 

military operations, crime, and general insecurity remained factors, 

sectarian violence became the primary driver for population displacement. 

Many Iraqis fled their country and immigrated to neighboring countries, 

particularly to Syria and Jordan. 

Background 

According to United Nations High Commissioner for Refugees (UNHCR), 

the 1951 United Nations Convention Relating to the Status of Refugees and 

its 1967 Protocol provide the foundation for modern refugee protection. 

According to the Convention, a refugee is someone who, “owing to a wellfounded fear of being persecuted for reasons of race, religion, nationality, 

membership of a particular social group, or political opinion, is outside the 

country of his nationality, and is unable or, owing to such fear, is unwilling 

to avail himself of the protection of that country....” UNHCR is mandated 

to find solutions to the plight of refugees. According to UNHCR, three 

solutions are available: 

• First, voluntary repatriation is the preferred solution for the majority of 

refugees. Most refugees prefer to return home as soon as circumstances 

permit (generally when a conflict has ended and a degree of stability has 

been restored). UNHCR promotes, supports, and facilitates voluntary 

 

7

See Consolidated Appropriations Act, 2010, Pub. Law No. 111-117, Division C, Title VII, 

Section 704, Dec. 16, 2009. 

Page 3 GAO-10-274 Iraqi Refugees
 

repatriation as the best solution for displaced people, provided it is safe 

and reintegration is viable. 

• Second, UNHCR may help refugees integrate and settle in the “asylum,” or 

host, country where they reside as refugees. Some refugees cannot or are 

unwilling to return because they would face persecution. According to 

UNHCR, relatively few host countries allow refugees to settle. 

• Third, UNHCR may assist refugees in permanently resettling in third 

countries. According to UNHCR, only a small number of nations take part 

in UNHCR resettlement programs worldwide and accept annual quotas of 

refugees. According to State, historically, less than 1 percent of registered 

refugees are resettled in third countries. Of the Iraqis resettling in third 

countries in 2009, UNHCR referred 75 percent (about 62,000) for 

resettlement in the United States.8

This report focuses on the third solution—those Iraqis resettled in the 

United States. When Iraqi refugees and SIV holders arrive in the United 

States, they have access to federal- and state-funded assistance9

 to help 

them reach self-sufficiency in their new communities. State has primary 

responsibility for funding and administering initial reception and 

placement benefits for refugees and SIV holders upon their arrival in the 

United States. State’s PRM has cooperative agreements with 10 

resettlement agencies that coordinate with local affiliates across the 

country to make referrals and to administer resettlement services and 

other assistance. HHS’s ORR administers cash and medical assistance, and 

employment and other social services through the states and resettlement 

agencies that coordinate services for refugees across the country. 

Regarding federal government employment, individuals are generally 

employed in the competitive, excepted, or Senior Executive Service. When 

hiring for competitive service positions, agencies use a competitive 

examination process set forth in Title 5 of the U.S. Code. Some agencies 

have excepted service positions for which they are not required to follow 

OPM’s competitive examination process; instead, the agencies have the 

 

8

The number of UNHCR referrals is greater than the number of Iraqi refugees admitted to 

the United States in fiscal year 2009 because not all individuals referred by UNHCR are 

admitted to the United States, and because individuals referred in 2009 may be admitted in 

subsequent years. 

9

Refugee and SIV families may be eligible for certain state-funded assistance programs, 

depending on their state’s eligibility standards. 

Page 4 GAO-10-274 Iraqi Refugees
 

authority to establish their own hiring procedures. When agencies hire for 

career senior executive positions—top-level policy, supervisory, and 

managerial positions—the individual’s executive and managerial 

qualifications must be reviewed and approved by an OPM-administered 

Senior Executive Service Qualifications Review Board. According to OPM 

data, the majority of civil service employees in the United States are in the 

competitive service. 

Between fiscal years 2006 and 2009, the United States has admitted 34,470 

Iraqi refugees under State’s Refugee Admissions Program. Since fiscal year 

2007, State has issued 4,634 SIVs to Iraqis.10 Resettlement agencies, 

working under cooperative agreements with State, have resettled Iraqis 

throughout the United States, but particularly in California and Michigan. 

These agencies have found that Iraqis arrive in the United States with high 

levels of trauma, injury, and illness, which contribute to the challenges 

they face in resettling in a new country. In addition, entry-level jobs 

normally available to refugees are scarce and more competitive in the 

current economic downturn. 

Iraqi Refugees and 

SIV Holders Arrive 

under Three Different 

U.S. Programs and 

Face Challenges upon 

Arrival in the United 

States 

Iraqi Refugees and SIV 

Holders Arrive under One 

of Three Different U.S. 

Programs 

State’s PRM manages the U.S. Refugee Admissions Program (USRAP)—

the U.S. government’s program for accepting and processing refugee 

applications for resettlement in the United States. PRM’s regional refugee 

coordinator accepts referrals from UNHCR, embassies, and certain 

nongovernmental organizations (NGO). Certain categories of Iraqis with 

U.S. affiliations do not need a referral and may apply directly for refugee 

consideration under a direct access program in Jordan, Egypt, and Iraq.11

Overseas processing entities (OPE), working under a cooperative 

agreement with State, prescreen the referrals and prepare application 

forms by collecting and verifying personal and family information, 

obtaining details of persecution or feared harm, and initiating security 

name checks. Once the OPE prescreens the case, it is provided to DHS’s 

U.S. Citizenship and Immigration Services (USCIS), which makes periodic 

 

10Issuance data do not indicate the number of Iraqi SIV holders who were admitted into the 

United States. 

11With the passage of a provision in the National Defense Authorization Act (NDAA) for 

Fiscal Year 2008, Pub. Law No. 110-181, certain refugees of special humanitarian concern 

could apply directly to USRAP. Such refugees include Iraqis who worked for the U.S. 

government, for a media organization or NGO headquartered in the United States, or for 

U.S. contractors, and their family members. 

Page 5 GAO-10-274 Iraqi Refugees
 

visits to the region to interview refugees and adjudicate their applications 

for resettlement in the United States. Once USCIS preliminarily approves 

cases, they are returned to the OPE, which continues processing medical 

screenings, sponsorship (i.e., the identification of the U.S.-based 

resettlement agency that will provide initial resettlement benefits), travel 

arrangements, and cultural orientation, among other things. The cultural 

orientation, which is a voluntary course for all refugees over the age of 15, 

addresses essential topics related to processing, travel, and resettlement, 

such as the role of the resettlement agency, housing, employment, health, 

and money management. While the OPE coordinates outprocessing, PRM 

secures a sponsoring resettlement agency in the United States. From fiscal 

years 2006 through 2009, the United States admitted 34,470 Iraqi refugees 

(see table 1). 

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

2009 

Fiscal 

year 

Referred from UNHCR, 

embassies, and certain NGOs

Applied through Direct 

Access Program Other Total

2006 183 0 19 202

2007 1,592 0 16 1,608

2008 13,600 187 35 13,822

2009 15,758 2,905 175 18,838

Total 31,133 3,092 245 34,470

Source: State. 

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

DHS and State’s Bureau of Consular Affairs also have implemented two 

SIV programs, established by Congress, to further assist qualified Iraqis 

who worked for or on behalf of the U.S. government and who want to 

immigrate to the United States. Both programs cover the principal Iraqi 

applicants and their dependents. Iraqi SIV holders are admitted into the 

United States as lawful permanent residents. The first SIV program, 

established under section 1059 of the NDAA for fiscal year 2006, targets 

Page 6 GAO-10-274 Iraqi Refugees
 

Iraqi and Afghan translators and their dependents.12 The second SIV 

program, established under section 1244 of the NDAA for fiscal year 2008, 

targets certain Iraqis who had been U.S. government employees, 

contractors, or subcontractors and their dependents. In January 2008, 

Congress authorized that up to 5,000 Iraqis per year for the next 5 fiscal 

years, who had worked for or on behalf of the U.S. government in Iraq and 

had experienced or were experiencing an ongoing serious threat as a 

consequence, can receive SIVs.13 Some Iraqi refugees may also qualify for 

the SIV programs. 

To apply for special immigrant status, eligible Iraqis may file a petition, 

including a favorable recommendation from their U.S. civilian or military 

supervisor documenting their service. USCIS sends approved petitions to 

State’s National Visa Center, which contacts applicants to set up an inperson interview at an embassy or a consulate. Consular officials 

interview applicants, review the submitted documents and security and 

medical clearances, and issue an immigrant visa if candidates satisfy all 

criteria. At the end of fiscal year 2009, State had issued 2,389 SIVs to 

principal Iraqi applicants out of a maximum authorized 11,050 principalapplicant visas. Under the two programs, the United States issued 4,634 

Iraqi SIVs from fiscal years 2007 through 2009 (see table 2). It is unclear 

how many Iraqis with SIVs have entered the United States. USCIS provided 

us with data on the number of Iraqi and Afghan SIV holders who were 

admitted into the United States as permanent residents (or green card 

holders) between fiscal years 2007 and 2009. Iraqi and Afghan SIVs are 

issued based on an applicant’s nationality. USCIS provided us these data 

 

12In January 2006, Congress authorized that up to 50 Iraqi or Afghan translators who 

worked directly with U.S. armed forces and met other conditions outlined in the law could 

receive SIVs during any fiscal year. Spouses and children of principal applicants are also 

eligible to receive SIVs, although these are not counted against the authorized cap. See 

NDAA for Fiscal Year 2006, Pub. Law No. 109-163, Section 1059. In June 2007, Congress 

amended the program, authorizing an increase in the limit to 500 SIVs each for fiscal years 

2007 and 2008 and expanding it to cover both translators and interpreters who worked 

directly for the U.S. armed forces and those who worked under chief of mission authority. 

In fiscal year 2009, the authorized number of SIVs for this program reverted to 50 annually. 

See An Act to Increase the Number of Iraqi and Afghani Translators and Interpreters Who 

May Be Admitted to the United States as Special Immigrants, and for Other Purposes, Pub. 

Law No. 110-36, June 15, 2007. 

13The applicants must meet other conditions outlined in the law. The law allows that, if the 

5,000 ceiling is not met in any given year, the unused authorized amounts can be carried 

over to the following year. Spouses and children of principal applicants are also eligible to 

receive SIVs, although these are not counted against the 5,000 cap. See NDAA for Fiscal 

Year 2008, Pub. Law No. 110-181, Section 1244. 

Page 7 GAO-10-274 Iraqi Refugees
 

by applicants’ country of birth, but could not provide the data by 

nationality. Therefore, we report only Iraqi SIV issuance data. 

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

Principal applicants Dependents 

Fiscal year Number authorized Number issued Number issued Total issued

Section 1059a 

2007 500 429 383 812

2008 500 357 350 707

2009 50 28 59 87

Total 1,050 814 792 1,606

Section 1244 

2008 5,000 169 125 294

2009 5,000 1,406 1,328 2,734

Total 10,000 1,575 1,453 3,028

Section 1059 and Section 1244 

Total 11,050 2,389 2,245 4,634

Source: State. 

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

States. 

a

The Section 1059 program targets Iraqi and Afghan translators and their dependents. These data are 

only for Iraqi SIV holders and do not include Afghan SIV holders. 

Page 8 GAO-10-274 Iraqi Refugees
 

Iraqi Refugees and SIV 

Holders Have Resettled 

Across the United States 

Since fiscal year 2006, Iraqi refugees and SIV holders have resettled in 

communities across the United States. Placement decisions consider the 

location of an individual’s family members, potential medical needs, and 

municipal and sponsoring agency capacity to accept and provide for 

refugees and SIV holders. The largest populations of recently resettled 

Iraqis are in California, Michigan, Texas, Arizona, Illinois, and Virginia (see 

fig. 1 and app. II for more information). 

Page 9 GAO-10-274 Iraqi Refugees
Figure 1: Initial Resettlement, by State, of Iraqi Refugees and Special Immigrant Visa Holders, Fiscal Years 2006 through 2009

Page 10 GAO-10-274 Iraqi Refugees

States with Highest Volume of Refugee and SIV Holder Arrivals

People (in thousands)

0123456 7 8 9

California

Michigan

Texas

Arizona

Illinois

Virginia

Combined Refugees and SIV Holders

0-99

100-999

1,000-4,999

5,000-10,000

54

76

12

125 2,977

143

2,598

8,468

219

491

496

72

11

697

16

611

79 615

5,546

175

2,329

618

268

157

259

113

123

136

7

0

0

570

626

220

211 884

93

543

1,319

778

504

401

5

238

296

73

954

149

88

9

54

113

AL

AZ

AR

CA CO

FL

GA

ID

IL IN

IA

KS KY

LA

ME

MI

MN

MS

MO

MT

NE NV

VT -

NH -

MA -

RI -

CT -

NJ -

DE -

MD - 

DC -

NM

NC

ND

OH

OK

OR

PA

SC

SD

TN

TX

UT

VA

WA

WV

WI

Source: GAO analysis of State PRM data.

WY

HI

AK

909

NY

INSTRUCTIONS

Roll your mouse over the 

state name to see more 

information. To print 

expanded information, see 

appendix II.

Note: Iraqi SIV data include only those 1,995 SIV holders (out of 4,634 total issued visas) who 

signed up to receive PRM-funded resettlement and placement benefits. Arrival data are only for the 

state in which Iraqis were resettled as of their 30th day in the United States.
 

According to NGOs and resettlement agencies, the U.S. refugee 

resettlement program has been strained by a growing number of Iraqi and 

Afghan refugees and the economic downturn in the United States. In June 

2009, the International Rescue Committee reported that the high levels of 

trauma, injury, and illness among Iraqi refugees contribute to the 

precarious nature of their resettlement.14 Moreover, unemployment and 

homelessness threaten Iraqi refugees and other populations recently 

resettled in the United States, according to NGOs and resettlement 

agencies. In October 2009, the Georgetown Law School reported that a 

Michigan resettlement office received funding in 2008 for 300 refugees, but 

served more than 1,200. Caseworkers, dealing with an average of 120 cases 

at a time—up from 30 the year before—could not provide what they 

considered sufficient employment services.15 According to the 

International Rescue Committee report and resettlement agency officials 

we interviewed, some Iraqi refugees face eviction because they cannot pay 

their rent. 

Iraqi Refugees and SIV 

Holders Face Challenges 

Resettling in the United 

States 

The present economic downturn has made jobs normally available to 

refugees, such as entry-level jobs with limited English proficiency, scarce 

and more competitive. An ORR official stated that, before the current 

economic recession, refugees could regularly secure such jobs, but since 

the recession these positions are generally not available. Most of the 

resettlement agencies stated that it is taking longer than usual—often as 

long as 6 months, and in some cases, 9 to 10 months—for incoming 

refugees to find employment. U.S. officials and resettlement agencies 

stated that without jobs, some refugees are unable to get by on the levels 

of assistance afforded them by the U.S. refugee resettlement program. 

Iraqi refugees, in particular, have faced difficulties finding work despite 

their relatively high levels of education, according to PRM, ORR, and 

USCIS officials, and representatives from the resettlement agencies. 

According to an ORR official and resettlement agency officials, the U.S. 

resettlement program does not take into account refugees’ prior work 

experience and education in job placements. Rather, the focus of the 

program is on securing early employment for refugees. PRM data indicate 

that many Iraqi refugees who were resettled in the United States in fiscal 

 

14International Rescue Committee, Iraqi Refugees in the United States: In Dire Straits (June 

2009). 

15Georgetown Law School, Refugee Crisis in America: Iraqis and Their Resettlement 

Experience (October 2009). 

Page 11 GAO-10-274 Iraqi Refugees
 

years 2007 through 2009 reported having some secondary education.16

PRM, ORR, and the resettlement agencies reported that educated Iraqis 

are struggling to find entry-level employment in the United States, much 

less employment in their professional field of work. For example, we 

interviewed three Iraqi refugees about their experience searching for 

employment in the United States. Two had worked for the U.S. 

government in Iraq, and one was unable to find an entry-level position 

requiring no formal education. This individual estimated that he had 

applied for more than 30 low-skill jobs, such as for a busboy and cleaner, 

before his former U.S. supervisor in Iraq helped him find a job. 

Iraqi refugees and SIV holders are eligible for PRM-funded basic needs 

support and services upon arrival in the United States. In addition, 

qualified Iraqi refugees and—as a result of December 2009 legislation—

qualified Iraqi SIV holders can receive certain assistance generally for up 

to 7 years through public benefits programs. Prior to December 19, 2009, 

Iraqi SIV holders’ eligibility for public benefits generally ceased after 8 

months. Both groups can receive up to 8 months of ORR-funded cash and 

medical assistance. 

According to PRM, its assistance typically lasts for 30 days; however, 

support may continue for up to 90 days if basic needs have not been met. 

All refugees automatically receive this assistance, which includes travel 

arrangements to their assigned resettlement location, basic housing, food 

allowances, school enrollments, and referrals for medical needs, through 

the resettlement agencies. As of January 1, 2010, PRM provides the 

resettlement agencies $1,800 per refugee to cover the direct and 

administrative costs of the assistance. Prior to January 1, 2010, PRM 

provided resettlement agencies $900 per refugee. Iraqi SIV holders do not 

automatically receive these benefits; they must sign up to receive them 

within 10 days of receiving their visas. SIV holders who do not accept PRM 

benefits make their own travel arrangements and may resettle anywhere in 

the United States. According to PRM data, 1,995 SIV holders (out of 4,634 

total issued visas for these years) have participated in the PRM program 

since 2007, when Iraqi SIV holders were first authorized to access these 

benefits. 

As of December 2009, 

Iraqi SIV Holders Are 

Eligible for 

Resettlement 

Assistance and Public 

Benefits to the Same 

Extent as Refugees 

 

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

Page 12 GAO-10-274 Iraqi Refugees
 

Qualified Iraqi refugees and, as of December 19, 2009, qualified Iraqi SIV 

holders may be eligible for federal public benefit programs, including 

Temporary Assistance for Needy Families (TANF), Medicaid and State 

Children’s Health Insurance Program (SCHIP), Supplemental Security 

Income (SSI), and Supplemental Nutrition Assistance Program (SNAP, 

formerly the Food Stamp Program),17 for generally up to 7 years, 

depending on the program and the state.18 Permanent residents (such as 

Iraqi SIV holders) are generally barred from receiving certain public 

benefits for their first 5 years in the United States.19 However, in 2007, 

Congress passed legislation establishing that Iraqi SIV holders could 

receive public benefits for up to 6 months.20 In 2008, Congress extended 

their allowance to 8 months.21 The DOD Appropriations Act for fiscal year 

2010 included a provision which allows Iraqi SIV holders to be eligible for 

public benefits to the same extent, and for the same period of time, as 

refugees. Relevant agencies are in the process of issuing guidance to 

further define the application of this provision to Iraqi SIV holders. 

In addition, ORR funds social services, for which Iraqi refugees and SIV 

holders may be eligible, for up to 5 years. ORR social services, which 

include job preparation, English language classes, and assistance with job 

interviews, do not have income requirements and are designed to find 

refugees employment within 1 year of enrollment. Figure 2 provides 

information on the types of resettlement assistance available to qualified 

Iraqi refugees and SIV holders, and the impact of the December 19, 2009, 

legislation on the duration of time for which they may be eligible for this 

assistance. 

 

17HHS oversees TANF, Medicaid, and SCHIP. The Social Security Administration oversees 

SSI, and the U.S. Department of Agriculture oversees SNAP. 

18While TANF, Medicaid, SNAP, and SSI all serve low-income people, the financial 

eligibility thresholds, or income limits, for these benefits differ. Specifically, TANF’s 

income limit varies by state. Medicaid income limits can also vary by state, as well as type 

of recipient. For example, the Medicaid income limits for children generally range from 100 

to 185 percent of the federal poverty guidelines. The SNAP income limit is generally set at 

130 percent of the federal poverty guidelines. In contrast, SSI’s income limit is set at a fixed 

dollar amount. 

19See the Personal Responsibility and Work Opportunity Reconciliation Act of 1996, Pub. 

Law No. 104-193, Aug. 22, 1996. 

20Consolidated Appropriations Act, 2008, Pub. Law No. 110–161, Dec. 26, 2007. 

21NDAA for Fiscal Year 2008, Pub. Law No. 110–181, Jan. 28, 2008. 

Page 13 GAO-10-274 Iraqi Refugees
 

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

States 

PRM reception and 

placement services

Program

Immediate needs

Cash and medical assistance 

Social and employment services

Other benefits

Description Benefits eligibility timeline (from date of arrival, in years)

Reception at airport. Transportation to 

resettlement destination. 

Initial food, housing, and necessary clothing. 

Referrals to medical, training, and other social 

service programs.

Upon arrival Upon arrival 

TANF

Either...

or...

Either...

or...

Time-limited cash assistance and other 

support services for qualifying low-income 

individuals with dependent children.

Refugee Cash 

Assistance (RCA)

Program similar to TANF for refugees and Iraqi 

SIV holders who do not qualify for TANF.

Medicaid/SCHIPe Health care coverage for qualifying low-income 

individuals.

Up to 7 years

Up to 5 years

Up to 8 months

Up to 8 months

Up to 3 months

Years

0 1 2 3 4 5 6 7 

Refugee Medical 

Assistance (RMA)

Program similar to Medicaid for refugees and 

Iraqi SIV holders who do not qualify for 

Medicaid.

ORR social services Emphasis on getting refugees early employment, 

including employment preparation and job

placement and retention services.

SNAP, formerly Food 

Stamp Program

Food assistance for qualifying low-income 

individuals. 

SSI Cash assistance to low-income individuals

who are aged, blind, or disabled. 

Source: GAO.

Up to 7 yearsc

Iraqi refugees and SIV holders

As of December 19, 2009 Prior to December 19, 2009

Up to 5 yearsf

Eligible indefinitely

Up to 8 monthsa,b

Up to 8 months

Up to 3 months

Years

0 1 

Up to 8 monthsa,b

Up to 8 months

Up to 8 monthsa,d

Up to 8 monthsa,g,h

Iraqi SIV holders

Up to 8 months

Page 14 GAO-10-274 Iraqi Refugees
 

Notes: 

Section 8120(a) of the DOD Appropriations Act for fiscal year 2010 changed Iraqi SIV holders’ 

eligibility, as of December 19, 2009. Relevant agencies are in the process of issuing guidance to 

further define the application of this provision to Iraqi SIV holders. 

This figure does not include all exceptions to the general eligibility time frames for refugees and SIV 

holders to receive federal programs. Rather, we included those exceptions most relevant to the Iraqi 

SIV holders and refugees who have entered the United States since the start of the Iraq war. 

In general, to receive benefits, Iraqi refugees and SIV holders must meet all financial and nonfinancial 

eligibility criteria of each program. However, PRM’s reception and placement benefits and ORR’s 

social services benefits are not subject to financial eligibility criteria. In addition, once refugees or 

permanent residents obtain citizenship, their eligibility for SSI, TANF, Medicaid, SCHIP, or SNAP is 

the same as the eligibility for any U.S. citizen. Their eligibility for ORR Social Services ends when 

they obtain citizenship. 

a

Iraqi SIV holders in the United States who were veterans of, or on active duty in, the United States 

Military, or their spouse, unmarried dependent child, or unremarried surviving spouse, continued to be 

eligible beyond 8 months. 

b

Iraqi SIV holders generally would have been re-eligible after 5 years, though states are authorized to 

provide or deny Medicaid or TANF to most permanent residents after they completed the 5-year 

waiting period. 

c

The SSI Extension for Elderly and Disabled Refugees Act (Pub. Law No. 110-328) provides 

additional benefits for up to 2 years, and in certain cases 3 years, for qualifying immigrant SSI 

recipients who meet certain requirements. This extension is effective from October 1, 2008, until 

September 30, 2011, after which time noncitizens’ eligibility reverts to 7 years. 

d

Iraqi SIV holders would have needed to be in the United States for 5 years and have been credited 

with 40 work quarters to be re-eligible for SSI benefits. 

e

Both refugees and SIV holders are eligible for emergency Medicaid from the date of their arrival in 

the United States, if they otherwise meet the eligibility requirements for their state’s Medicaid 

program. 

f

ORR social services include citizenship and naturalization preparation services and referral and 

interpretation services, which may be offered beyond 5 years. 

g

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

h

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

As figure 2 also shows, Iraqi refugees and SIV holders who are not eligible 

for TANF or Medicaid may be eligible for ORR-funded Refugee Cash 

Assistance (RCA)22 and Refugee Medical Assistance (RMA) for up to 8 

months.23 According to ORR, most Iraqi refugees and SIV holders who do 

not qualify for TANF or Medicaid are eligible for RCA and RMA. Refugee 

resettlement assistance programs, such as cash assistance, ensure that 

refugees become self-sufficient as quickly as possible after they arrive in 

the United States. To participate in RCA, qualifying refugees and SIV 

holders must register for employment services and generally accept the 

 

22According to ORR officials, adults without dependent children are the most frequent 

cases of individuals who do not qualify for TANF, but who do qualify for RCA. 

23RCA and RMA has decreased over time, according to ORR. As of April 1, 1981, refugees 

were eligible for 36 months of RCA and RMA benefits. Since October 1, 1991, refugees are 

limited to 8 months. 

Page 15 GAO-10-274 Iraqi Refugees
 

first job offered, unless they can show good cause for not accepting the 

position. 

Current requirements make it difficult for qualified Iraqi refugees and SIV 

holders to obtain U.S. government employment. Specifically, most federal 

jobs in the United States require U.S. citizenship and background 

investigations, and Arabic language positions often require security 

clearances, which noncitizens cannot obtain. Over the course of our work, 

we identified two institutes at DOD and State that have some flexibility in 

hiring noncitizens for U.S. positions. Finally, DOD and State have not 

implemented a program intended to employ SIV holders under authority 

granted in 2009 legislation. 

Iraqi Refugees and 

SIV Holders Face 

Challenges in 

Obtaining U.S. 

Government 

Employment 

Most Federal Positions in 

the United States Require 

U.S. Citizenship and 

Background 

Investigations; Most Arabic 

Positions Also Require a 

Security Clearance 

U.S. government hiring requirements limit the extent to which 

noncitizens—including Iraqi refugees and SIV holders—can be employed 

in federal government positions in the United States. Iraqi refugees and 

SIV holders seeking federal government employment also face challenges 

posed by requirements for background investigations, and, for certain 

positions, security clearances. 

First, U.S. government agencies are restricted from employing noncitizens 

in competitive service positions.24 For example, USCIS reported that it 

may employ only U.S. citizens and nationals as Arabic language special

because the positions are in the competitive service. Under a provision 

passed in the fiscal year 2010 Consolidated Appropriations Act, agencies 

can use appropriated funds to employ qualifying permanent residents and 

refugees seeking U.S. citizenship in the excepted service or the Senior 

ists 

 

24Under Executive Order No. 11935, only U.S. citizens and nationals may be employed in 

competitive service positions. 41 Fed. Reg. 37,301 (1976). See also 5 C.F.R. sec. 7.3 and sec. 

338.101. In rare cases, agencies can employ noncitizens in competitive service positions, 

when necessary, to promote the efficiency of the service—such as if the agency is unable 

to find qualified U.S. citizens to fill these positions. However, the agency must also be in 

compliance with other laws on federal hiring of noncitizens. 

Page 16 GAO-10-274 Iraqi Refugees
 

Executive Service.25 Second, a particular agency may have specific 

legislation that prohibits that agency from employing noncitizens in 

certain positions. For example, State may employ only U.S. citizens in the 

Foreign Service,26 including its overseas positions that require Arabic.27

Similarly, DHS’s Transportation Security Administration may only employ 

U.S. citizens as Transportation Security Officers.28

According to OPM officials, it is difficult to complete background 

investigations, which are required for all U.S. government employees,29 on 

Iraqi refugees and SIV holders. For example, it is difficult to obtain the 

information necessary to verify Iraqi refugees’ or SIV holders’ employment 

history and other information required for the investigation.30 In addition, 

OPM officials stated that the background checks used to hire Iraqis as part 

of the U.S. mission in Iraq are not sufficient to substitute for the 

background investigation required for civil service employment in the 

United States. 

In addition, some U.S. government positions may also require security 

clearances to ensure that national security information is entrusted only to 

those who have proven reliability and loyalty to the nation; however, 

 

25For many years, Congress has passed an annual ban on the use of appropriated funds for 

compensating federal employees working in the United States who are not U.S. citizens or 

nationals unless they met one of several exceptions. Under the Consolidated 

Appropriations Act, 2010, Pub. Law No. 111-117, Division C, Title VII, Section 704, Dec. 16, 

2009, this general prohibition still applies, though there were changes in several of the 

exemptions. Under the 2010 provision, certain groups are now exempt, including: persons 

who are lawfully admitted for permanent residence and are seeking citizenship as outlined 

in 8 U.S.C. 1324b(a)(3)(B); and persons who are admitted as refugees under 8 U.S.C. 1157 

or granted asylum under 8 U.S.C. 1158 and who have filed a declaration of intention to 

become lawful permanent residents and then citizens, when eligible. 

2622 U.S.C. sec. 3941. 

27In 2008, 43 percent of Foreign Service officers in Arabic language-designated positions did 

not meet the language requirements of their positions (107 officers in 248 filled positions). 

See GAO, Department of State: Comprehensive Plan Needed to Address Persistent Foreign 

Language Shortfalls, GAO-09-955 (Washington, D.C.: Sept. 17, 2009). 

2849 U.S.C. sec. 44935(e)(2)(A)(ii). 

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

30The investigation must include a national agency check, including a check of the FBI’s 

fingerprint files and written inquiries to appropriate local law enforcement agencies, 

former employers, references, and schools attended, according to the Executive Order. 

Page 17 GAO-10-274 Iraqi Refugees
 

noncitizens cannot obtain security clearances.31 Four of the five agencies 

we reviewed reported that security clearances are required for most or all 

of their positions that require or prefer knowledge of Arabic or Iraq; 

USAID requires security clearances for all direct-hire positions. For 

example, DOD, DHS, and DOJ have intelligence positions that may require 

Arabic, but all such positions require a security clearance. Similarly, 

USAID officials said that, while they have a preference for persons who 

speak Arabic or have knowledge of Iraq, all civil service and all Foreign 

Service positions at USAID require security clearances. In addition, 

officials in the Human Rights Violators and War Crimes Unit in DHS’s 

Immigrations and Customs Enforcement reported that, as of September 

2009, there were 20 open investigations that would benefit from Arabic 

language skills. However, all staff in the unit must have security 

clearances. 

DOD and State Have Some 

Flexibility to Hire 

Noncitizens for Positions 

in the United States 

Certain federal positions in the United States at DOD and State are open to 

noncitizens, including Iraqi refugees and SIV holders. Specifically, as of 

November 6, 2009, DOD’s Defense Language Institute (DLI) reported 

having 501 Arabic positions—including 32 open positions; all were 

available to noncitizens. Similarly, all 21 Arabic positions at State’s 

Foreign Service Institute (FSI) are available to noncitizens, according to 

FSI (see table 3). Both DLI and FSI reported that they had previously hired 

foreign nationals to fill these types of positions. 

 

31Executive Order No. 12968. 60 Fed. Reg. 40,245 (1995). The Executive Order also lays out 

the provisions for Limited Access Authorizations, which are not security clearances, but 

which allow noncitizens limited and controlled access to specific classified information 

required by their position. An agency can grant a Limited Access Authorization only if the 

past 10 years of the individual’s life can be investigated; additional investigative procedures 

can also be undertaken. 

Page 18 GAO-10-274 Iraqi Refugees
 

Table 3: Arabic Language Positions in the United States at DOD and State for 

Eligible Noncitizens, as of November 6, 2009 

DLI Arabic positions FSI Arabic positions

U.S. citizens 275 14

Noncitizens 194 7

Open positions 32 0

Total 501 21

Sources: DOD and State. 

Note: DOD data on the number of Arabic positions are based on the needs of the services and may 

be higher because they include supervisory staff who speak Arabic. Under DLI’s Faculty Personnel 

System, supervisory staff may be moved into teaching positions. DLI and FSI determined the number 

of noncitizens by examining personnel records. 

DLI and FSI can hire noncitizens, including Iraqi refugees and SIV holders, 

because language instructor positions at DLI and FSI are in the excepted 

service.32 Neither DLI nor FSI require security clearances because Arabic 

instructors do not require access to classified information, according to 

personnel officials at each institute. However, the positions do require 

background investigations. The positions may also require degrees or 

other educational backgrounds. 

DOD and State Have Not 

Used Their Statutory 

Authority to Employ Iraqi 

SIV Holders 

In fiscal year 2009, the NDAA33 authorized DOD and State to jointly 

establish a temporary program to employ Iraqi SIV holders who have 

resettled in the United States as translators, interpreters, and cultural 

awareness instructors, but the agencies have not done so. According to 

OPM officials, DOD and State are authorized to hire Iraqi SIV holders as 

(1) temporary employees in excepted service positions,34 or (2) as 

personal services contractors, in which case they are not federal 

employees. In the committee report for the fiscal year 2010 NDAA,35 the 

 

32In addition, all DOD positions and State’s language instructors, linguists, and other 

academic and training specialists are exempt from the ban against using appropriated 

funds to compensate noncitizens in federal government positions in the United States. See 

10 U.S.C. sec. 1584 and 22 U.S.C. sec. 4024(a)(4)(B). 

33Duncan Hunter National Defense Authorization Act for Fiscal Year 2009, Pub. Law No. 

110-417, Oct. 14, 2008, Sec. 1235. 

34According to State officials, State derives its authority to hire non-U.S. citizens from the 

Foreign Service Act. 

35Report of the Committee on Armed Services, House of Representatives, H.R. Rep. No. 

111-166 (2009). 

Page 19 GAO-10-274 Iraqi Refugees
 

House Armed Services Committee noted that Iraqi SIV holders’ fluency i

Arabic and knowledge of Iraq could be useful to the U.S. government. The 

committee also noted that many of the SIV holders worked on behalf of 

the United States and coalition forces for years, often at great risk to 

themselves or their families. Although DOD and State have needs for 

Arabic speakers, such as language instructors at DLI and FSI, DOD policy 

officials and State human resource officials stated that the agencies do not 

plan to establish this program to employ qualified Iraqi SIV holders to fill 

any unmet needs.

n 

nding for the program. 

 

36 A senior DOD policy official stated that DOD’s human 

resources divisions did not have a need for additional Arabic speakers. 

Moreover, DOD and State officials stated that the departments did not 

receive any fu

DOD provided written comments on a draft of this report (see appendix 

III). State, DHS, and HHS provided technical comments, which we 

incorporated, as appropriate. We also sent a draft of this report to DOJ, 

USAID, and OPM, but they did not provide comments. 

Agency Comments 

and Our Evaluation 

DOD noted that it is meeting its need for translators, interpreters, and 

cultural awareness instructors with knowledge of Arabic or Iraq through 

existing hiring authorities. Therefore, as we state in our report, DOD has 

not identified a need to establish the temporary employment program for 

Iraqi SIV holders pursuant to the NDAA for fiscal year 2009. 

We are sending copies of this report to interested congressional 

committees and the Secretaries of State, Defense, Health and Human 

Services, and Homeland Security, as well as the Attorney General, the 

Administrator of USAID, and the Director of OPM. This report will also be 

available at no charge on the GAO Web site at http://www.gao.gov. If you 

or your staff have any questions about this report, please contact me at 

(202) 512-8979 or christoffj@gao.gov. Contact points for our Offices of 

36GAO has reported about foreign language needs at DOD and State. See GAO, Military 

Training: DOD Needs a Strategic Plan and Better Inventory and Requirements Data to 

Guide Development of Language Skills and Regional Proficiency, GAO-09-568 (Washington, 

D.C.: June 19, 2009); and GAO-09-955. In addition, GAO plans to issue reports in 2010 on 

DHS’s foreign language requirements and on the supply, demand, capacity, and future need 

of foreign language expertise in the federal government. 

Page 20 GAO-10-274 Iraqi Refugees
 

Congressional Relations and Public Affairs may be found on the last page 

Joseph A. Christoff 

of this report. Key contributors to this report are listed in appendix IV. 

Director 

International Affairs and Trade 

Page 21 GAO-10-274 Iraqi Refugees
 

List of Committees 

The Honorable Carl Levin 

Chairman 

The Honorable John McCain 

Ranking Member 

Committee on the Armed Services 

United States Senate 

The Honorable John F. Kerry 

Chairman 

The Honorable Richard G. Lugar 

Ranking Member 

Committee on Foreign Relations 

United States Senate 

The Honorable Joseph I. Lieberman 

Chairman 

The Honorable Susan M. Collins 

Ranking Member 

Committee on Homeland Security 

 and Governmental Affairs 

United States Senate 

The Honorable John Cornyn 

Ranking Member 

Subcommittee on Immigration, Refugees, 

 and Border Security 

Committee on the Judiciary 

United States Senate 

The Honorable Ike Skelton 

Chairman 

The Honorable Howard McKeon 

Ranking Member 

Committee on Armed Services 

House of Representatives 

Page 22 GAO-10-274 Iraqi Refugees
 

The Honorable Howard L. Berman 

Chairman 

The Honorable Ileana Ros-Lehtinen 

Ranking Member 

Committee on Foreign Affairs 

House of Representatives 

The Honorable Edolphus Towns 

Chairman 

The Honorable Darrell E. Issa 

Ranking Member 

Committee on Oversight and Government Reform 

House of Representatives 

The Honorable Zoe Lofgren 

Chair 

The Honorable Steve King 

Ranking Member 

Subcommittee on Immigration, Citizenship, 

 Refugees, Border Security, and International Law 

Committee on the Judiciary 

House of Representatives 

The Honorable John F. Tierney 

Chairman 

The Honorable Jeffrey Lane Flake 

Ranking Member 

Subcommittee on National Security and Foreign Affairs 

Committee on Oversight and Government Reform 

House of Representatives 

Page 23 GAO-10-274 Iraqi Refugees
Appendix I: Objectives, Scope, and 

Methodology 

Page 24 GAO-10-274 

Appendix I: Objectives, Scope, and 

Methodology 

In this report, we (1) provide information on the status of resettled Iraqis 

in the United States and the initial challenges they face, (2) review the 

benefits afforded to Iraqi refugees and special immigrant visa (SIV) 

holders, and (3) review the challenges faced by Iraqi refugees and SIV 

holders in obtaining employment with the federal government. 

To provide information on the number and location of resettled Iraqis and 

the initial challenges they face, we collected and analyzed documentation 

and interviewed officials from the Department of State’s (State) Bureau of 

Population, Refugees, and Migration (PRM) and Consular Affairs; the 

Department of Health and Human Services’ (HHS) Office of Refugee 

Resettlement (ORR); and the Department of Homeland Security’s (DHS) 

U.S. Citizenship and Immigration Services (USCIS). In addition, we 

interviewed representatives from 10 resettlement agencies that work with 

PRM and ORR to provide benefits and services to Iraqi refugees and SIV 

holders: Church World Service; Episcopal Migration Ministries; Ethiopian 

Community Development Council; Hebrew Immigrant Aid Society; Iowa 

Department of Human Services, Bureau of Refugee Services; International 

Rescue Committee; Lutheran Immigration and Refugee Service; U.S. 

Committee for Refugees and Immigrants; U.S. Conference of Catholic 

Bishops; and World Relief. We also interviewed two nongovernmental 

organizations (NGO) that work with PRM and ORR to provide technical 

assistance to resettlement agencies on refugee employment and cultural 

adjustment issues. We reviewed reports issued by NGOs on the status of 

Iraqi refugees in the United States and the challenges they face in 

resettling in this country. We interviewed several Iraqi refugees about their 

resettlement experiences; their views or experiences may not be 

representative of other refugees or SIV holders. 

To determine the reliability of Consular Affairs data on Iraqi SIV issuances, 

we interviewed the Consular Affairs official who maintains this data. We 

determined that the data were sufficiently reliable to report on the number 

of Iraqi SIVs issued between fiscal years 2007 and 2009. USCIS provided us 

with data on the number of Iraqi and Afghan SIV holders who were 

admitted into the United States as permanent residents (or green card 

holders) between fiscal years 2007 and 2009. Iraqi and Afghan SIVs are 

issued based on an applicant’s nationality. USCIS provided us these data 

by applicants’ country of birth, but could not provide the data by 

nationality. As a result, we determined that these data were not 

sufficiently reliable to indicate how many Iraqi SIV holders were admitted 

into the United States during this time period. Therefore, we report only 

Iraqi SIV issuance data. To determine the reliability of PRM data on 

resettled Iraqi refugees and SIV holders, we interviewed the PRM officials 

 Iraqi Refugees 
Appendix I: Objectives, Scope, and 

Methodology 

who monitor and use these data. We determined that the data were 

sufficiently reliable to report on the number, locations, and reported 

general education levels of resettled Iraqis between fiscal years 2006 and 

2009. 

To review the benefits afforded Iraqi refugees and SIV holders, we 

collected and analyzed relevant laws, regulations, and agency policies 

regarding federally and state-funded and administered refugee 

resettlement programs. We interviewed officials from PRM and ORR to 

determine the types of benefits available and their eligibility requirements. 

The majority of our audit work was completed prior to the December 2009 

passage of the fiscal year 2010 Department of Defense (DOD) 

Appropriations Act, which changed Iraqi SIV holders’ eligibility for public 

benefits. 

To review the challenges Iraqi refugees and SIV holders face in obtaining 

employment with the federal government, we analyzed relevant laws, 

regulations, executive orders, and agency policies on U.S. government 

employment and personnel security requirements. The majority of our 

audit work was completed prior to the December 2009 passage of the 

fiscal year 2010 Consolidated Appropriations Act, which made changes to 

a long standing restriction on the use of appropriated funds to employ 

noncitizens by the federal government in the United States. We 

interviewed officials from the Office of Personnel Management (OPM) 

regarding requirements for U.S. government employment. We also 

interviewed program, human resource, and security officials from five key 

agencies—DOD (specifically, the Army), State, DHS, the Department of 

Justice, and the U.S. Agency for International Development (USAID)—

regarding their employment and personnel security requirements positions 

in the United States. We chose these agencies because they have national 

security missions, ongoing programs in Iraq, and needs for personnel with 

Arabic language skills; we did not include the intelligence community. We 

focused on employment in the United States because generally Iraqi 

refugees and SIV holders who want to apply for U.S. citizenship must 

reside in the United States for a certain period of time. In addition, 

refugees’ ability to apply for permanent resident status could be delayed if 

Page 25 GAO-10-274 Iraqi Refugees
Appendix I: Objectives, Scope, and 

Methodology 

they travel overseas.1 We did not develop an inventory of the agencies’ 

needs for Arabic language skills or Iraqi expertise. We also interviewed 

policy officials at DOD and State regarding the temporary program 

authorized by the fiscal year 2009 Duncan Hunter National Defense 

Authorization Act to employ Iraqi SIV holders who have resettled in the 

United States as translators, interpreters, and cultural awareness 

instructors at DOD and State. 

To assess the reliability of data on Arabic positions at DOD’s Defense 

Language Institute (DLI) and State’s Foreign Service Institute (FSI), we 

interviewed human resource officials at DLI, DOD’s U.S. Army Training 

and Doctrine Command, and FSI. We determined that the data were 

sufficiently reliable to report on the number of Arabic positions at DLI and 

FSI. 

 

1

By law, refugees must apply for permanent resident status 1 year after entry into the 

United States. In addition, according to USCIS officials, if an Iraqi refugee returned to Iraq, 

it could raise issues during the inspection process when attempting to return to the United 

States, or as part of any applications to adjust his/her immigration status or obtain U.S. 

citizenship, as it could signal that the individual’s initial refugee claim may be fraudulent. 

Page 26 GAO-10-274 Iraqi Refugees
Appendix II: Initial Resettlement, by State, of 

Iraqi Refugees and Special Immigrant Visa 

Holders, Fiscal Years 2006 through 2009 

Table 4 provides data on the numbers of Iraqi refugees and special 

immigrant visa (SIV) holders who were resettled in the United States from 

fiscal years 2006 through 2009. The six states with the highest numbers in 

each category are noted with an asterisk. 

Table 4: Initial Resettlement, by State, of Iraqi Refugees and Special Immigrant Visa 

Holders, Fiscal Years 2006 through 2009 

State Iraqi refugees 

Iraqi special immigrant 

visa holders Total

Alabama 204 7 211

Alaska 2 111* 113

Arizona 2,590* 8 2,598*

Arkansas 11 0 11

California 8,215* 253* 8,468*

Colorado 422 74 496

Connecticut 262 34 296

Delaware 5 0 5

District of Columbia 72 4 76

Florida 462 42 504

Georgia 856 28 884

Hawaii 0 0 0

Idaho 544 26 570

Illinois 2,244* 85 2,329*

Indiana 78 1 79

Iowa 255 13 268

Kansas 134 2 136

Kentucky 585 26 611

Louisiana 121 4 125

Maine 54 0 54

Maryland 362 39 401

Massachusetts 937 17 954

Michigan 5,416* 130* 5,546*

Minnesota 152 5 157

Mississippi 11 1 12

Missouri 560 58 618

Montana 7 0 7

Nebraska 91 32 123

Nevada 218 1 219

Appendix II: Initial Resettlement, by State, of 

Iraqi Refugees and Special Immigrant Visa 

Holders, Fiscal Years 2006 through 2009 

Page 27 GAO-10-274 Iraqi Refugees 
Appendix II: Initial Resettlement, by State, of 

Iraqi Refugees and Special Immigrant Visa 

Holders, Fiscal Years 2006 through 2009 

State Iraqi refugees 

Iraqi special immigrant 

visa holders Total

New Hampshire 149 0 149

New Jersey 229 9 238

New Mexico 139 4 143

New York 863 46 909

North Carolina 465 78 543

North Dakota 257 2 259

Ohio 579 36 615

Oklahoma 57 15 72

Oregon 215 5 220

Pennsylvania 725 53 778

Rhode Island 69 4 73

South Carolina 74 19 93

South Dakota 109 4 113

Tennessee 577 120* 697

Texas 2,595* 382* 2,977*

Utah 469 22 491

Vermont 86 2 88

Virginia 1,178* 141* 1,319*

Washington 581 45 626

West Virginia 14 2 16

Wisconsin 170 5 175

Wyoming 0 0 0

Total 34,470 1,995 36,465

Source: State. 

Note: SIV data include only those applicants who elected to receive Bureau of Population, Refugees, 

and Migration-funded resettlement and placement benefits. Arrival data are only for the state in which 

Iraqis were resettled as of their 30th day in the United States. 

Page 28 GAO-10-274 Iraqi Refugees
Appendix III: Comments from the Department Appendix III: Comments from the of Defense 

Department of Defense 

Page 29 GAO-10-274 Iraqi Refugees 
Appendix IV: GAO Contact and Staff Acknowledgments Appendix IV: GAO Contact and Staff 

Acknowledgments 

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

In addition to the contact named above, Tetsuo Miyabara, Assistant 

Director; Kathryn H. Bernet; Muriel Brown; Lynn Cothern; Martin de 

Alteriis; Etana Finkler; Corissa Kiyan; Mary Moutsos; Steven Putansu; and 

Lindsay Read made key contributions to this report. 

Page 30 GAO-10-274 Iraqi Refugees

GAO Contact 

Staff 

Acknowledgments 

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