1. Refugees and Resettlement:
Challenges and Successes
Jonathan Buechner
POLI 193-30
Prof. Donald Searing
December 13, 2016
In cooperation with:
The Center for New North Carolinians at UNCG
Human Relations Department - City of Greensboro

2. Buechner 1
Introduction
The UN High Commissioner for Refugees defines a refugee as a person who “owing to a
well-founded fear of being persecuted for reasons of race, religion, nationality, membership of a
particular social group or political opinions, is outside of the the country of his/her nationality
and is unable to, or owing to such fear, is unwilling to avail himself to the protection of that
country”.1
This summer, I worked with two agencies responsible for helping and promoting
refugee integration as well as helping to advocate for their fair treatment and equitable access to
resources here in the US. In this paper I argue that research shows that once newly resettled,
employment substantially helps immigrants and refugees with becoming more integrated to the
host country - however the process of finding a job, the type of work, and the barriers that these
populations face can be substantial, lending this process to be unjust and no equitable for all, and
that the resettlement process should be adapted to focus more on language acquisition and
cultural training, in order to maximize the full potential of new refugees and immigrants.
In first part of this paper, I will present some overall general research regarding
immigration in the US over the past two decades, and how the resettlement program has
changed. I will then discuss the history and background of both of the organizations I worked
with, as well as their role in helping the refugee and immigrant community in Greensboro. After,
I will apply this research to my own experiences working with the Center for New North
Carolinians and Human Relations Department.
1
"What Is a Refugee?" Accessed December 13, 2016. http://www.unrefugees.org/what-is-a-refugee/.

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History and Background of the Resettlement Process in the US
The United States has been a country of safety for refugees seeking asylum from wars,
persecution, and other disasters for many years. Formal legislation for refugee resettlement
began in 1948 following the 250,000 Europeans who were seeking somewhere to live after the
horrendous aftermath of World War II. This framework included permission to accept another
400,000 Europeans in the coming years as well as the ability to accept those fleeing from
communism mostly in China, Cuba, and Eastern Europe.2
These refugees were mostly assisted
by religious and non-profit organizations, which would set a precedent for the public-private
partnership that makes up the resettlement process today. After the end of the Vietnam war in
1975 thousands of refugees came into the US and as a result the 1980 Refugee Act was passed.
This law ensured the standardization of federally funded resettlement services, provided for the
regular and emergency admission of refugees from all nationalities and provided the legal
authority to create the Office of Refugee Resettlement under the Department of Health and
Human Services.3
Since then the US has received more refugees than any other country, per aggregate, and
has a strong support infrastructure to ensure integration into American society.4
In order to be
considered a “refugee” various conditions must be met. Those considered to be refugees flee
their home countries due to persecution from a variety of factors and they are processed through
the office of the United Nations High Commissioner for Refugees (UNHCR). This organization
not only grants legal status but also offers protection, assistance and legal and travel documents
2
"Refugee Admissions." Accessed December 13, 2016. https://www.state.gov/j/prm/ra/.
3
Ibid.
4
"U.S Refugee Resettlement and Integration: A Guide to High Impact Investments," The Sillerman Center for the
Advancement of Philanthropy, , accessed December 13, 2016, http://sillermancenter.brandeis.edu/PDFs/Donor
Guide - Refugee Resettlement and Integration v2.pdf.

4. Buechner 3
that may be necessary.5
The UNHCR then refers only about 1% of refugees for resettlement in a
third country; this is a last resort option if all efforts to help the refugee return home or establish
themselves in their country of asylum has failed. Referring to the US program specifically, one
can only be eligible for the Refugee Resettlement Program if they have been referred by the
UNHCR or by the US embassy of their asylum country.
How the Resettlement Process works
The Resettlement Program is under the authority of the State Department which develops
application criteria, admission ceilings, and presents cases to Immigration Services for
adjudication.6
Once a refugee application is processed by Immigration Services an officer
interviews them in their country of asylum and decides “whether the applicant is a refugee as
defined under US law”7
Many NGOs work to prepare refugee applicants for these interviews and
help to screen them before the process begins. If the refugee’s application is approved, then they
are matched with an American resettlement organization. Prior to travel to the US, refugees
must undergo medical and security clearances and voluntary agencies determine where in the US
the refugee will be resettled. Air travel is arranged by the International Organization for
Migration and refugees must sign a promissory note to ensure repayment of travel costs.8
Once refugees arrive in the US, various institutions and programs are in place to ensure a
smooth transition. For the first 90 days, a Reception and Placement program take effect and
refugees are automatically enrolled through resettlement agencies. Run through the Department
of State, it offers a $900 one-time grant to provide for basic necessities such as housing and
5
"How Do Refugees Come to America?" Accessed December 13, 2016. http://refugees.org/explore-the-issues/our-
work-with-refugees/refugeeresettlementprocess/.
6
Ibid.
7
Ibid.
8
Ibid.

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food.9
During the first 30 days a host of other services are provided such as help with finding
furniture, food stamps, clothing, social security application, school enrollment, and community
orientation. During the subsequent days, refugees may be eligible to apply to other programs
such as the Matching Grant through their resettlement agency which provides a cash stipend,
emergency rent assistance, and agree to an active employment search. There is also the Public
Cash Assistance Program through the Department of Social Services which is available up to 8
months after arrival. Additionally, the Work First program is available to families with children
to cover the basic costs during a time of job search and enrollees must provide proof of 35 hours
of employment training/volunteer work per week to still be considered eligible.10
These
initiatives are meant to be a “public-private partnership” with some funding coming from the
federal government under the State Department and Department of Social Services, but is mainly
intended to run in cooperation with community and resettlement agencies.
Since 1975, it is estimated that around 3 million refugees have been settled and processed
according to the State Department.11
In 2016, the largest groups of refugees have come from
Burma (Myanmar), the Democratic Republic of the Congo, and Somalia.12
With the recent
refugee crisis in Syria, the US has only managed to accept 2,800 Syrians comprising about 7% of
the total refugee population for 2016 - which pales in comparison to the almost 1 million Syrian
refugees taken in by countries in Europe such as Germany.13
Looking at North Carolina and
Greensboro more specifically, recent research from 2014 shows that 197 (24%) refugees came
from Burma, 136 (17%) from Iraq, 87 (11%) from Bhutan, 81 (10%) from the Democratic
9
Center for New North Carolinians Training Manual, 2016.
10
Ibid.
11
Igielnik, Ruth. "Where Refugees to the U.S. Come from." Pew Research Center. June 17, 2016. Accessed
December 13, 2016. http://www.pewresearch.org/fact-tank/2016/06/17/where-refugees-to-the-u-s-come-from/.
12
Ibid.
13
Ibid.

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Republic of the Congo, and 79 (10%) from Somalia - which is consistent with national
immigration trends.14
These refugees bring with them not only a vibrant culture and resilience,
but also new challenges that the existing resettlement process must cope with and adapt. This
makes the role of organizations such as CNNC and the Human Relations Department more
valuable in helping to ease their transition and connect them to valuable resources and
opportunities.
Center for New North Carolinians and its role
The CNNC was founded on April 12, 2000 by the Board of Governors of the University
of North Carolina system through UNC-Greensboro. The goal of the Center was to “provide
research training, and evaluation for the state of North Carolina in addressing immigrant issues;
collaboration with government and social organizations to enhance responsiveness to immigrant
needs; and community support to provide training and workshops” .15
Legislators and educators
saw an increasing need for education and research surrounding immigrant issues following the
influx of refugees in North Carolina. The main goal of the Center was to foster research for
faculty and students at UNCG as well as universities across the state to help contribute to a
greater understanding of the contentions faced by newcomers. It has played an important role in
helping to bridge the newcomer community with the one already established.
14
"Guilford County Refugee Arrivals by Country of Origin FY 2014." Accessed December 13, 2016.
https://cnnc.uncg.edu/wp-content/uploads/2015/01/Refugee-Arrival-Numbers-FY-2014.pdf.
15
"History." Accessed December 13, 2016. https://cnnc.uncg.edu/about/.

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Structure of CNNC
CNNC’s current mission is to “promote access and integration for immigrants and
refugees in North Carolina by bridging newcomer populations with existing communities
through direct service provision, community-based outreach, research and evaluation, and
experiential training and leadership development.”16
While CNNC is not necessarily a
resettlement agency, it has strong partnership with agencies in Greensboro such as Church World
Services, New Arrivals Institute, and the North Carolina African Services Coalition. It helps to
fill in the gaps left by many of the resettlement agencies and provides additional support that
facilitate the continued integration of immigrants and refugees in the state.
The Center has various programs and outreach opportunities that help it to fulfill its
mission. One of the longest-running and most important services are the community centers.
These three centers are based in apartment complexes of communities with a high refugee
population and have a full time staff to help coordinate day-to-day functions. These centers
provide education programs, health programs, employment services, cultural brokering, and
advocacy. Another important program is the Immigrant Health ACCESS Project (IHAP) which
helps to reduce health disparities by providing access to primary care; the program is funded by
the Cone Health Foundation and works with contracted community health workers.17
The Center
also provides high-quality, low cost immigration services and counseling on various aspects of
the immigration process such as DACA/DAPA, naturalization and consular processing.
Combined with other programs around the community, CNNC helps to ensure newcomers have
an adequate cultural understanding and support, especially during the first few months.
16
Center for New North Carolinians Training Manual, 2016.
17
Ibid.

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Greensboro Human Relations Department and its Role
The Human Relations Department of the City of Greensboro is a local government
branch that concerns itself with the inclusion and advocacy of just policies within the Greensboro
City Council. In the organizational structure of the city, the department is under the jurisdiction
of assistant city manager Barbara Harris which includes other departments such as the Office of
Workforce Development, Planning, Neighborhood Development, and Minority, Women
Business Enterprise.18
The Department houses various Commissions including the Human
Relations Commission, the Commission on the Status of Women, and the International Advisory
Committee. The HR Department also oversees the Police Complaint Review Board, Fair
Housing and Education and Outreach.
For the purposes of this paper, I am concerned with the International Advisory
Committee and its role in the newcomer community in Greensboro. The Committee was formed
out of a resolution from the Greensboro City Council in 2005, with the goal of having a group of
individuals whose origins are from outside the US to represent Greensboro’s international
community. Their main purpose is to be a voice for the immigrant and refugee population and
provide recommendations to the Human Relations Commission and the City Council on the
types of barriers that foreign nationals face and formulate recommendations to alleviate some of
these impediments.
During my time as an intern, I sat in on various IAC meetings and learned more about
what the Committee does and its role in the larger context of local government. One of the main
functions of the IAC during the summer is to help with program administration and event
planning focused on the international community. One of the biggest events they were planning
18
"About Us." Human Relations Department. Accessed December 13, 2016. http://www.greensboro-
nc.gov/index.aspx?page=726.

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was World Refugee Day in August which brought together the refugee community to celebrate
their achievements and contributions to the larger Greensboro community. The Committee
meetings were also focused on planning a Housing and Refugee Conversations Series through
New Arrivals Institute. This lecture series was designed to bring professionals in the housing and
resettlement arenas to come up with solutions that are unique to the refugee experience and
housing process. Another unique outreach strategy was to target the annual Folk Festival in
downtown Greensboro. The IAC planned to provide various information booths throughout the
event, since there was a high international crowd attendance expected. This information booth
was aimed at providing information to the newcomer community regarding how to use city
resources such as the police department and 911, code compliance for housing, and personal
hygiene materials. I also had the opportunity to sit in on various Fair Housing intake interviews
with immigrant clients who had issues relating to their landlord. It is important for the
international community to have access to public resources like this to make them aware of their
rights as tenants. The Human Relations Department and IAC serve as a vital outlet for the
concerns and voice of the international community to have a direct link to the governing City
Council to promote impactful change.
Refugees and Employment
The US Resettlement program is based on financial self sufficiency, which has both
positive and negative effects. According to a 2009 study done in Chapel Hill regarding refugee
and immigrant experiences, resettlement agency directors cited that finding employers who are

10. Buechner 9
willing to work with refugees despite the language barrier is a major task.19
The emphasis on
finding a job first leads refugees to seek out positions that are temporary, often in a factory or
warehouse, and that do not have an accepting work culture.
Another big issue is the “brain waste” among high-skilled immigrants who are unable to
go into well-paying jobs early on. Data from the Migration Policy Institute shows that around
48% of immigrant adults who entered the US between 2011 and 2015 had college degrees from
their home countries.20
Due to a variety of factors including the language barrier, these
newcomers face underemployment because their degrees do not transfer forcing them to take
lower paying jobs or seek recertification. One of the clients I worked with on my first day had
this issue. He had just moved to North Carolina from New Jersey and had over 20 years of
experience teaching Islamic Studies at various elementary and high schools, and had even
founded the Islamic Studies Department at one of these schools. He needed money quickly to
help pay for basic necessities such as rent and food, and so we applied to some manufacturing
positions in a baking facility. This was disheartening for me to see because I could tell he wanted
to keep teaching, but the reality of his situation led to much different results. In addition to the
psychological trauma this causes newcomers, it also has negative economic effects. It is
estimated that one out of every four college educated immigrants experienced skill
underutilization - which meant they were working in low-skilled jobs or unemployed.21
This
translates to $394. billion in forgone wages and approximately $10.2 billion in lost tax revenues.
This is a substantial economic impact and emphasis on better degree certification and ongoing
19
Erika Walker, "Refugee Resettlement in North Carolina: Community-Based Challenges and Resources for
Integration," March 25, 2011, , accessed December 13, 2016.
20
Jeanne Batalova, Michael Fix, and James Bachmeier, "Untapped Talent: The Costs of Brain Waste among Highly
Skilled Immigrants in the United States," Migration Policy Institute, December 3, 2016,
21
Jeanne Batalova, Michael Fix, and James Bachmeier, "Untapped Talent: The Costs of Brain Waste among Highly
Skilled Immigrants in the United States," Migration Policy Institute, December 3, 2016,

11. Buechner 10
education classes could help to fill this gap. Additionally, issues such as English language
proficiency, legal status, and racial biases have a strong effect on the underutilization of
newcomers in the labor market.22
My experience with refugee employment services at CNNC
Throughout my time as an intern at CNNC, I mostly worked with the employment
services team. There was one employment coordinator, Julia, who worked in the main office and
was my supervisor during the summer. Two of the community centers also had employment
coordinators who worked directly with the population in the the apartment complex. There was
coordination among the various employment team members within CNNC as well as with
outside organizations such as Church World Services and the Montagnard Dega Association.
The main work of the employment team includes searching for jobs, helping clients apply,
preparing them for interviews, providing transportation, and case management follow up. Julia
described her job duties as “40% direct service, 30% job finding/talking to employers, and 30%
documentation and collaboration.”23
She came in with high expectations about how the job
market would turn out and was hopeful that her clients would be able to obtain jobs. However,
this was not the case and she found that many of her clients faced barriers due to their names,
ethnicity, transportation, English levels and previous work experience. This was something on
which we both reflected on at the end of the internship and talked about ways to make the
employment process more equitable.
22
Ibid.
23
Singley, Julia. "Refugees and CNNC II." In-Person interview by author. August 2, 2016.

12. Buechner 11
A surprising aspect of the job application process that I experienced was the role that
staffing agencies play in the work of employment coordinators. Many companies outsource their
HR duties to a staffing agency who oversees the entire hiring and administrative process. On one
hand, it makes it easy for clients to apply to a single staffing company which includes various
jobs but there are detrimental side effects that impact the ability of clients to find jobs. For
example, staffing agency positions are temporary, only lasting up to 90 days. Although most
companies advertise promotion after this initial period, it rarely happens. Furthermore, these
agencies are looking to fill a quota, will not advocate for clients, and the middle entity makes it
difficult to communicate effectively with the client to stay updated on their work position. Julia
mentioned that most of the positions through staffing agencies are just to make quick cash to pay
rent and require little experience. She even mentioned that several clients have referred to
companies such as P&G, which uses a staffing agency, as a “plantation.”24
These temporary
positions are not long-term solutions and it makes the client feel less motivated to make an
impact on the company. There were however some examples of positive companies such as
Creative Snacks, which had a history of hiring refugees and treating them well; with one client
starting off as a front desk person who eventually became a manager.
Room for Growth
My time at CNNC and the Human Relations Department allowed me to reflect on the
structural barriers that immigrants and refugees face when arriving to the US and the ways in
which these could be improved. One of the main challenges with the resettlement process is that
it is focused solely on gaining a job first, whatever that job may be. This approach does not set
refugees up for long term success in the US. In speaking with CNNC Director Holly
24
Singley, Julia. "Refugees and CNNC II." In-Person interview by author. August 2, 2016.

13. Buechner 12
Sciencewiz, she mentioned that the resettlement process has not been updated since 1980 and
does not reflect the current challenges faced by refugees and immigrants coming to the US today.
In other countries such as Canada and Scandinavia, fewer refugees are accepted but the
investment is far greater and includes up to 2 years of language immersion and people are given
a living stipend so that they can “truly learn the language and culture and find a job that fits
them.”25
She went on to say that the US resettlement program should adapt this model in order to
get a greater return on investment due to the fact that refugees in Canada and Scandinavia are
more likely to use less social services after they are well adjusted and pay more into taxes, and
are also more likely to buy a house.26
This shift in resettlement policy could bring great
economic effects as refugees will settle into good paying jobs and invest back in the economy.
A strong refugee resettlement program also includes an emphasis on collaboration with
the community and understanding the needs of newcomers in order to more effectively assist
them. Obviously, more funding would help to cover not only the short-term costs of refugees but
also the long-term costs such as ESL classes, access to transportation, medical services, and
other materials. A recent 2011 study done in Chapel Hill and Carrboro found that more
flexibility is needed among refugees and ESL classes, since many arrive in the middle of
enrollment periods, and are left at a disadvantage when they have to wait until the next term to
start learning the language. The report also cited the critical need for interpreters, especially in
the case of medical services and how the lack of communication could have harmful effects.27
CNNC did offer ESL classes in the community centers, however the scheduled times were
limited, and there were some residents who could not go due to work schedules. As Julia and I
25
Siencewitz, Holly. "Refugees and CNNC." In-Person Interview by author. July 28, 2016.
26
Ibid
27
Erika Walker, "Refugee Resettlement in North Carolina: Community-Based Challenges and Resources for
Integration," March 25, 2011, , accessed December 13, 2016.

14. Buechner 13
reflected over our time this summer, we came to the conclusion that more emphasis needs to be
placed on deeply listening and understanding what the community we are trying to help needs.
We mentioned this could look like hiring people from within newcomer communities who not
only have the experience in the US, but also have cultural and linguistic ties to their communities
and are able to communicate their needs. A broader re-imagining of what places such as CNNC
should look like is also needed. It should be thought of as more of a partnership with clients as
the main focus and the main question should be “how can we work with communities to change
the narrative and create alternative power structures?” This would help to overcome many of the
barriers newcomers face such as linguistic ability, transportation, access to healthcare, and
feeling welcome in their new communities.
There is no doubt that immigrants play a vital role in the economy and culture of the US.
According to the Migration Policy Institute, immigrants founded or cofounded 25% of all new
engineering and technology companies between 1995 and 2005 and made up seven of the 16
inductees to the National Inventors Hall of Fame in 2009.28
Low-skilled immigrants also made
up a substantial amount of the workforce. According to the same report, immigrants were
responsible for 58% of the population growth over 25 years from 1980 to 2005, which was a
period marked by stagnating employment growth and fertility levels.29
Furthermore, with the
retirement of those in the Baby Boom generation - immigrants will continue to play an important
role in fulfilling this gap of labor positions. Thus, an updated and comprehensive resettlement
and immigration policy is needed not only to support future immigrants but also to help their
contributions to be maximized, while treating them with dignity and respect.
28
Demetrios Papademetriou et al., "Harnessing the Advantages of Immigration for a 21st Century Economy: A
Standing Commission on Labor Markets, Competitiveness, and Immigration," Migration Policy Institute, May 4,
2009, , accessed December 13, 2016.
29
Ibid.

15. Buechner 14
The refugees and immigrants I had a chance to meet this summer were some of the most
resilient and hard working people I have encountered. All of the staff mentioned that their clients
had some of the strongest work ethic, and that this was a valuable asset to their job applications.
Companies that have been hiring refugees for a longtime also recognized this fact and were very
grateful for the help of CNNC in helping to further promote their successful integration. With the
recent election of Donald Trump, the work of organizations such as CNNC and the Human
Relations Department will become ever more meaningful and necessary. The US must not forget
its roots as an immigrant nation and must work towards creating an inclusive society where
newcomers can excel and contribute to their piece of the American Dream, while maintaining an
acceptable quality of life.

16. Buechner 15
References
"About Us." Human Relations Department. Accessed December 13, 2016. http://www.greensboro-
nc.gov/index.aspx?page=726.
Batalova, Jeanne, Michael Fix, and James Bachmeier. "Untapped Talent: The Costs of Brain
Waste among Highly Skilled Immigrants in the United States." Migration Policy
Institute, December 3, 2016. http://www.migrationpolicy.org/research/untapped-talent-costs-
brain-waste-among-highly-skilled-immigrants-united-states.
Singley, Julia. "Refugees and CNNC II." Telephone interview by author. August 2, 2016.
Siencewitz, Holly. "Refugees and CNNC." Interview by author. July 28, 2016.
"Guilford County Refugee Arrivals by Country of Origin FY 2014." Accessed December 13,
2016. https://cnnc.uncg.edu/wp-content/uploads/2015/01/Refugee-Arrival-Numbers-FY-
2014.pdf.
"History." Accessed December 13, 2016. https://cnnc.uncg.edu/about/.
"How Do Refugees Come to America?" Accessed December 13, 2016. http://refugees.org/explore-
the-issues/our-work-with-refugees/refugeeresettlementprocess/.
Igielnik, Ruth. "Where Refugees to the U.S. Come from." Pew Research Center. June 17, 2016.
Accessed December 13, 2016. http://www.pewresearch.org/fact-tank/2016/06/17/where-
refugees-to-the-u-s-come-from/.
Papademetriou, Demetrios, Doris Meissner, Marc Rosenblum, and Madeline Sumption.
"Harnessing the Advantages of Immigration for a 21st Century Economy: A Standing
Commission on Labor Markets, Competitiveness, and Immigration." Migration Policy
Institute, May 4, 2009. Accessed December 13, 2016.
"Refugee Admissions." Accessed December 13, 2016. https://www.state.gov/j/prm/ra/.
"U.S Refugee Resettlement and Integration: A Guide to High Impact Investments." The
Sillerman Center for the Advancement of Philanthropy. Accessed December 13, 2016.
http://sillermancenter.brandeis.edu/PDFs/Donor Guide - Refugee Resettlement and
Integration v2.pdf.
Walker, Erika. "Refugee Resettlement in North Carolina: Community-Based Challenges and
Resources for Integration." March 25, 2011. Accessed December 13, 2016.

17. Buechner 16
"What Is a Refugee?" Accessed December 13, 2016. http://www.unrefugees.org/what-is-a-refugee/.