Evaluation of the Resettlement Assistance Program (RAP) — Executive Summary

October 2004

Research and Evaluation Branch
(formerly Priorities, Planning and Research Branch)
Citizenship and Immigration Canada

Acknowledgement
This report was prepared with the assistance of Goss Gilroy Inc.

This report is based on an in-depth examination of evaluation issues undertaken from January 2003 to April 2003 by Goss Gilroy Inc. (GGI).

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• Introduction
• Methodology
• Summary of Findings, Recommendations and Management Responses

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1. Introduction

The Resettlement Assistance Program (RAP) provides income support and other immediate and essential services to government-assisted refugees (GARs). RAP, which supports Citizenship and Immigration Canada’s (CIC) strategic outcome of Protecting Refugees and Others in Need of Resettlement, came into effect in April 1998 and it was gradually implemented in 1998/99. In 2003, 7,400 GARs entered Canada. Of these, 5,343 refugees were eligible for RAP and 2,057 were eligible for settlement services and support offered by the Province of Quebec.

RAP represents a revised approach to the settlement and integration of refugees. It reflects a shift in CIC’s role from program administrator and direct service provider, to an administrator of income support, program/contract management and a provider of immediate essential services for certain refugees and members of groups resettled from abroad who require humanitarian assistance. Essential services are delivered on behalf of CIC by service provider organizations (SPOs) in all provinces of Canada except Quebec, which delivers similar settlement services through the Canada-Quebec Accord. However, the delivery of these services in Quebec is not examined in this evaluation. SPOs are typically, but not solely restricted to, non-profit corporations, non-governmental organizations, and community groups. The SPOs provide a range of services within the first four to six weeks of a government-assisted refugee’s arrival in Canada. At a broad level, the services provided include:

Upon arrival to Canada:

• Meeting GARs at port of entry;
• Providing transportation to temporary accommodations;
• Arranging and ensuring temporary accommodation is provided immediately upon arrival;
• Explaining key features of accommodation, (e.g., telephone access, meals, fire exits); and
• Ensuring immediate needs are met.

After settling in temporary accommodations:

• Providing information on, and links to, mandatory federal and provincial programs, (e.g., Social Insurance Number, Child Tax Benefit, provincial health-care programs and the Interim Federal Health Program, if necessary);
• Providing assistance in locating permanent accommodation;
• Providing assistance in opening a bank account;
• Providing orientation sessions on financial and non-financial information; and
• Conducting client assessments and providing referrals to other settlement programs, including CIC’s Immigrant Settlement and Adaptation Program (ISAP) and Language Instruction for Newcomers to Canada (LINC).

Evaluation Objective and Scope

In light of the changing environment for RAP—passage of the Immigration and Refugee Protection Act (IRPA) and the changing profile of clients—this evaluation is intended to determine the extent to which RAP is meeting the needs of clients—government-assisted refugees (GARs). The evaluation provides concrete recommendations intended to ensure that the program is client focused.

For the scope of the evaluation, all matters pertaining directly to the Resettlement Assistance Program were considered. As well, the Joint Assistance Sponsorship (JAS) Program’s adequacy of communications with RAP and the sharing of best practices were also examined. The matter of overseas orientation was considered only in the context of identifying its impacts on, and implications for, RAP design.

2. Methodology

Five different lines of evidence were used to collect data on the evaluation questions. The application of multiple lines of evidence ensures a rigorous approach to answering the evaluation questions. Findings presented in Sections 3.0, 4.0, 5.0 and 6.0 of the report are discussed in the context of all evidence collected from all sources. The lines of evidence implemented for this evaluation include:

• Review of program files, data and documents;
• 43 key informant interviews with CIC, SPOs, and stakeholder representatives across Canada;
• 14 focus groups with a total of 104 RAP clients;
• Client questionnaire administered to focus groups’ participants; and
• SPO inventory of all 25 SPOs who have signed contribution agreements with CIC for the provision of services to GARs.

3. Summary of Findings, Recommendations and Management Responses

The high level findings for each of the three evaluation issues are presented as follows. For the issue of cost effectiveness, findings have been divided by program design, program management, service delivery and alternatives. As well, recommendations for improvements to RAP are highlighted in the cost effectiveness section. Management responses follow each recommendation.

An additional section pertaining to issues related to the Interim Federal Health Program (IFH) is presented for other partners. Associated recommendations are presented accordingly.

3.1.) Program Relevance

Summary of Findings

• There is a need for a program to provide income support and other immediate and essential services to government-assisted refugees in Canada.
• The changing profile of GARs and the changing environment for service delivery imply that the current program design should be revised.

3.2.) Program Success

Summary of Findings

• Overall, the program is meeting the essential needs of GARs.
• The most pressing issue is adequacy of income support for shelter and the availability of affordable housing.
• Additional services such as a Host-type program, parenting and family violence programs and child care would all be useful for clients.
• Many short-term outcomes are being achieved, including more GARs having their needs met upon arrival and an increased awareness of Government programs and financial and non-financial issues.
• In terms of having their immediate monthly financial needs met, the monthly amount for rent is significantly below the average rental rates for their city. Although RAP mirrors provincial social assistance rates, many clients have to borrow money from other parts of their monthly cheque to pay rent.
• Unintended impacts of RAP are occurring and include: dependency on Government for income support; dependency on RAP agency for other assistance; and clients working without declaring income.
• Privately sponsored refugees tend to find jobs faster, have more networking opportunities, more follow-up, and more emotional and community support.
• Access of other settlement services or community or ethnic organizations —aside from referrals—is low.
• Due to the lack of ongoing and long-term monitoring, the longer-term settlement and integration of GARs is unclear.

3.3.) Cost Effectiveness

a) Program Design

Summary of Findings

• Regional CIC and SPO respondents do not consider the funding formula to be flexible enough to deliver innovative and new programs that will meet the needs of clients, although national headquarter (NHQ) CIC respondents indicated that it is intended to be a guide.
• The RAP Program budget has not changed to reflect the increasing number of clients, the changing profile of clients, and the increasing number of special needs clients.
• The key advantage to linking RAP income support with provincial social assistance rates is equity. Most key informants could not justify paying GARs more money than Canadians.
• Moving clients to provincial programs would be beneficial in that they would have access to employment programs, low-income housing, and loans. However, provincial programs are currently not specific to the needs of refugees.
• A move to where services are provided by provinces would not offer consistent services to GARs across Canada. It would also limit CIC control over the quality of services available to GARs.
• It is considered important to provide the RAP services in the first few weeks, even though GARs are expected to assimilate a lot of information in a short time.
• The limit of 13 hours service is considered inadequate for RAP clients because of the increasing reliance on translation, more special needs clients, and more medical issues.
• For the most part, SPOs are considered to be located in the appropriate cities and within those cities, located in central locations. Central locations, however, have an impact on rental rates for office space.

Recommendations:

1. Tailor Services and Income Support Duration to Reflect Client Needs
Many RAP clients entering Canada require extra time and effort with starting a new life here. However, there continue to be GARs who are educated, employable, and may speak English and/or French. For these clients, the RAP services as currently laid out in the Terms and Conditions are inadequate for helping them to find a job and contribute to society. Therefore, we recommend that RAP services and income support duration be tailored and based on a needs assessment of each client. Clients who speak English and French and are employable could receive more assistance finding a job but income support for less time, (e.g., six months).

Management Response:
Management agrees in principle with this recommendation, however, the number of current RAP clients who come into Canada, educated, able to speak English and/or French, and ready to enter the job market is small. The changing client profile of refugees is likely to make it less feasible to provide income support for less than 12 months. Having said this, management will examine the feasibility of getting refugees, who are willing and able, into the job market earlier in order to reduce the period of time on income support. We will examine the successes of the private sponsors who are able to get refugees into jobs much faster. We will also examine the impact of doing needs assessments of refugees and the cost involved in doing them. Where greater savings are possible, management will reinvest the savings to produce greater efficiencies for more difficult to settle cases and/or in instituting proper needs assessment training for service providers.

2. Provide Incentives to Work
If employable RAP clients are expected to take a job, there must be more incentives to work. It is recommended that clients be allowed to keep income from wages as well as RAP income support for up to two months—unless they reach the six-month cut off.

Management Response:
Management agrees that for clients receiving RAP income support, there must be more incentives to work. Currently, RAP is modeled on the employment incentive calculation utilized by the provincial welfare authorities. RAP allows a family to earn up to 25% of their total monthly income support entitlement before income support is reduced on a dollar-for-dollar basis—for each dollar earned over the 25% incentive allowance amount. Penalizing refugees does not provide them with an incentive to find employment. The RAP working group will be tasked with discussing options and suggesting solutions for this recommendation.

3. Change the Funding Formula
It would be necessary to change the funding formula to reflect the different client profiles. For example, SPOs would be provided with a different funding amount based on the nature of the service delivery required for each client type and not by the number of hours as is currently the design.

Management Response:
The funding formula was modified for 2003-2004. Regional Offices have complete flexibility to amend their budgets as needed within their budgetary confines. The 13 hours of client service for regular clients and the 18 hours for special needs clients remain the national standard for all regions and NHQ.

4. Overall Funding Levels for RAP Should Change as the Number and Profile of Clients Change
In the past, the funding levels for RAP have not changed despite increased numbers and a changing profile. It is recommended that RAP management conduct an in-depth analysis of the required funds for the current profile and the number of clients. Moreover, it is recommended that a submission to change the Terms and Conditions be done that includes allowances for CIC to request additional funds if the quota of GARs allowed into Canada is increased or the profile of GARs changes to the extent that additional resources are required.

Management Response:
We agree that an in-depth analysis of the changing GAR profile must be undertaken with a view to its impact on the current RAP budget. We are currently making the necessary amendments to the RAP Terms and Conditions to allow for a more flexible investment of RAP dollars, within the existing budget, that will meet refugee needs. We are also examining the development of more blended programs with non-government organizations, through Private Sponsorship and CIC’s Host contribution program, to assist in the resettlement of GARs. It is not necessary to include allowances for CIC to request additional funds in the RAP Terms and Conditions.

5. RAP Continue to be a National Program Administered by CIC
It is recommended that RAP continue to be administered by CIC in all provinces where this is already the case. This will ensure the consistent service delivery to all GARs of the services specifically designed for refugees. Other benefits include opportunities to share best practices across the country (except Quebec) and the minimization of complications in the flow of funds for secondary migrants.

Management Response:
Management agrees with this recommendation.

6. NHQ Negotiate with Provinces Regarding Access to Programs
It is recommended that CIC at NHQ negotiate with the provinces to increase access to provincial programs—such as training, job finding, etc.—and improve overall coordination with provincial programs and services for GARs. Once negotiated, CIC regions should work closely with their provincial counterparts to share best practices and develop models for GARs to access provincial programs. The extent to which this recommendation is implemented will depend on the uptake of other recommendations in this report regarding the development of new refugee services under RAP, including job search and training services.

Management Response:
Consultation will be sought with both the NHQ Federal/Provincial unit and its provincial counterparts to give GARs immediate access to provincial labour market support measures. Discussions will stress that in the longer term, this will be beneficial to the provinces, as GARs will be sooner and better equipped to enter the labour market.

7. Expand RAP’s Service Delivery Component to 12 Months
Due to the changing profile of RAP clients, there are more GARs entering Canada who require greater assistance adapting, settling, and integrating into life in Canada. For these RAP clients, the services delivered by RAP are offered for too short a time, and the services delivered by ISAP do not address their unique needs. Therefore, it is recommended that RAP’s service delivery component be expanded from the current period of four to six weeks to twelve months and include clients who are considered special needs. Even though the special needs clients would be eligible to receive income support for up to two years, the service delivery component would be for a maximum of 12 months.

Management Response:
Management does not agree that RAP services should be extended to 12 months. The additional costs associated with such a course of action would not be possible within the current RAP budget. Management recognizes that our current refugees need more assistance adapting, settling, and integrating into life in Canada. This will be addressed through a more coordinated application of existing programs and resources. Examples include:

• Forming various blended initiatives with private sponsorship groups and Host volunteers that would provide assistance to help settle a refugee. This assistance may be in the form of financial or non-financial aid;
• Working closer with Settlement to ensure that GARs are being referred and making the transition to the Settlement programs—Host, ISAP, LINC—where applicable. This could be tracked through iCAMS; and
• Conducting an analysis of the change in GAR profile in order to better tailor resettlement and settlement delivery to the unique needs of refugees.

8. Submit New Terms and Conditions for RAP Regarding Funding Formula and Length of the Program
The changes to the funding formula and the length of the program will require new Terms and Conditions for RAP.

Management Response:
Refugees Branch is in the process of drafting new RAP Terms and Conditions, but not for the aforementioned reasons. The funding formula was modified for 2003-2004. The Regional Offices have complete flexibility to amend their budget as needed, within their budgetary confines. Management does not agree that the duration of RAP service delivery should be extended to 12 months.

However, to address the need to enhance service delivery, the Terms and Conditions are being modified to permit the Department to allocate funds towards projects, research, and initiatives that improve and enhance how the program is delivered (B-stream funding). The latter will only be funded on a project-by-project basis, and only if budget, after essential services have been rendered, permits.

B-stream funding for RAP is being sought. The aim behind B-stream funding is to better understand the needs of refugees and to continuously develop and improve tools that will enhance service delivery. This mechanism will respond to SPOs’ long-standing desire to have the funding authority to develop innovative programs—with RHQ and NHQ approval—while still delivering the core set of services outlined in contribution agreements. This is further addressed in Recommendation 23.

b) Program Management

Summary of Findings

• The tools to manage the program are adequate. Two needs identified by CIC and SPO respondents were more training for CIC and SPO staff, and additional CIC and SPO staff.
• There is great anticipation by CIC and SPO respondents for data from the Immigration Contribution Accountability Measurement System (iCAMS). SPOs currently see few benefits with the use of iCAMS since they continue to maintain parallel systems.
• Additional information requested by CIC and SPOs includes more national roll-up reports. SPOs would like more communication from CIC regarding policy and procedural changes to RAP.
• SPOs had concerns with the Notification of Arrival Transmission System (NATS) in terms of incorrect and missing information which cost the SPO (and RAP) resources in wasted time.
• Communications are considered the best between SPOs and local CIC offices and between CIC and stakeholders. An issue with respect to communications within CIC is the lack of feedback from NHQ to Regional and from Regional to local offices.
• Communications between clients and Interim Federal Health Program (IFH) is poor. Very few communications were identified between CIC and the provinces and between CIC and SAHs.
• Financial controls are in place. CIC reports knowing how money is spent.
• Some delays are reported in the flow of funds with respect to tracking secondary migrants, although most respondents recognize that the movement of funds cannot match the speed of the movement of individuals.
• The existing secondary migration tracking system received positive reviews and is considered helpful with the administrative burden posed by secondary migration.
• Reporting requirements in the contribution agreements appear appropriate, although some SPO reports are more complex than required by the agreement.
• Monthly reporting formats are inconsistent, making comparisons difficult.
• iCAMS is an activity-based database intended to track the services delivered to clients. CIC expects it will meet their needs once reports are generated by NHQ.
• A number of performance measurement activities have been implemented including iCAMS, Client Satisfaction Survey pilot, and the evaluation of RAP.
• A weakness of the performance measurement activities is the lack of ongoing monitoring of clients in terms of program outcomes. iCAMS is expected to help.
• GARs would like more control of the selection of the furniture and household effects provided to them under RAP.

Recommendations:

9. More Money and Time for Training
The RAP budget should include allowances for training new CIC staff on existing RAP procedures and policies. Moreover, should RAP procedures and policies change, additional funds should be sought to support training for CIC and SPO staff.

Management Response:
The inclusion of a B-stream funding for RAP is being sought. This is further addressed in Recommendation 23. The aim behind B-stream funding is to better understand the needs of refugees and to continuously develop and improve tools that will enhance service delivery.

10. New RAP National Handbook or Manual
Due to the changing profile and needs of clients, the National RAP Handbook should be updated. The updated handbook (or manual) should also address any program changes implemented from the recommendations contained in this evaluation report.

Management Response:
We agree. Management will be examining the current handbook for revisions that can be made within the current framework and identifying sections of the handbook that will require change subsequent to approval of new RAP Terms and Conditions.

11. RAP Management Communicate with Those Responsible for NATS
Problems and inconsistencies with the NATS should be communicated to the appropriate CIC Branch(es).

Management Response:
When problems and inconsistencies with NATs are reported to NHQ they are raised immediately with the International Region and the specific Mission(s) involved. On July 8, 2003, a reminder was sent to all Missions asking that they conform to requirements as specified in Appendix D of OP 5 – Overseas Selection and Processing of Convention Refugees Abroad Class and Members of the Humanitarian-Protected Persons Abroad Classes manual. The requirements specify that Visa Offices are to send a detailed Notification of Arrival Transmission (NAT) to NHQ’s Matching Centre and then forward it to the specified local CIC and the port of entry. The local CIC would then inform the SPO.

These requirements were drafted and sent by SRE in consultation with the International Region. The Department is committed to ensuring on an ongoing basis that the visa officers include all appropriate information in NATs. To assist SPOs further, the Department is working to find better ways of providing information on any medical condition that is relevant to SPOs’ needs.

Enhanced NAT and DMR (Destination Matching Request) procedures are soon to be released that contain the best practices drawn from the various Missions processing refugee applications. At this time, the Department is unable to fully comply with all of the SPOs’ requests for additional information—primarily related to health problems—due to the use and disclosure provisions of the Privacy Act.

12. Improve Communications
Communications from NHQ to Regional CIC and from Regional CIC to local offices (and SPOs) were identified as needing improvement. The biggest issue for these respondents was the lack of roll-up reports and the lack of demonstration that CIC Regional and NHQ use the reports provided by SPOs and local CIC offices. It is expected that once iCAMS reports are circulated and disseminated to all involved, these relationships could improve. The communication requirements and information needs of the provinces and SAHs should also be addressed.

Management Response:
Although RAP SPOs have been entering performance data into iCAMS since 2002, reporting functionality was available only intermittently as it was undergoing development and testing procedures. Reporting functionality is now available— as of March 2004—for a number of national, regional and SPO level RAP reports using iCAMS data. Once these have undergone a review phase, they should be available for internal and external distribution via e-mail. These reports will allow stakeholders to monitor progress in RAP service delivery and adjust program delivery to ensure maximum efficiency and effectiveness.

13. Minimize Duplication
Judging from the data being captured by the iCAMS system, it appears that monthly reports duplicate the information available from iCAMS once reports are generated. We recommend that SPOs no longer be required to submit monthly activity reports. This would, in effect, decrease the overall amount of reporting required of SPOs and eliminate the duplication of data collection between monthly reports and iCAMS.

Management Response:
One of the major goals of introducing a performance measurement data collection system such as iCAMS was to allow for the production of reports that would be informative for NHQ, Regional and local offices, as well as for individual SPOs. Such reports were also intended to eventually replace quarterly non-financial reports submitted by SPOs to CIC, thereby reducing SPOs reporting burden. As a series of RAP reports have only been available on a regular basis since March 2004, CIC Regional and local offices must be given the time to evaluate the content of the reports in order to determine if they meet their reporting needs from the SPOs. Should the reports need to be modified for Regional and local offices, CIC NHQ will produce additional reports in accordance with a pre-determined production schedule. Until such a time, SPOs will be required to submit quarterly reports as per the Contribution Agreement.

It should also be noted that, in accordance with federal privacy legislation and guidelines, CIC can not use iCAMS reports to make administrative decisions regarding clients served by SPOs.

14. Implement Consistent Reporting Format
If the iCAMS data do not address the reporting needs for CIC, we recommend that a consistent reporting format be implemented for activity results. This consistent reporting format should offer a simplified approach of reporting for SPOs and allow Regional and NHQ CIC to roll-up results and compare actual figures with budgets.

Management Response:
As discussed in Recommendation 13, Regional and local offices will be required to evaluate whether the current series of iCAMS-RAP reports at the SPO level meet their reporting needs. CIC NHQ has the capacity, in accordance with a pre-determined schedule, to design additional reports. However, at this time, the reports can only reflect data that is entered into iCAMS, and that is primarily output related data such as number of clients served, hours of services received by clients, etc. The RAP component of iCAMS does allow for a short narrative to be entered for each client and may assist with activity reporting.

15. Addition of Narrative Component in Quarterly Report
It is recommended that these quarterly Report and Advance or Payment Claim reports include a short narrative component that details any extraordinary cases handled during the time period, steps taken to resolve difficult issues, and the outcomes of innovative delivery strategies, etc.

Management Response:
As discussed in Recommendation 14, the RAP component of iCAMS does allow for a short narrative to be written for each client entered into the system. This was designed to allow SPOs to provide an explanation as to why certain clients, because of special needs, required additional hours of service. If, in the future, SPOs are able to provide some of their quarterly reports through iCAMS to the CIC local office, this narrative section could be used to highlight extraordinary cases and the actions taken. CIC local offices would then be able to either view the information in iCAMS or run a report of the information.

16. Monitor at Least 25% of All Clients
The implementation of a specific monitoring mechanism is imperative for CIC to not only report to Parliament as part of their commitment to reporting on results, but also to ensure that RAP clients are settling and integrating over the short- medium- and long-term. This increased emphasis on monitoring will be greatly facilitated by expanding RAP service delivery to 12 months—Recommendation 1—since SPOs will be maintaining closer contact with clients over time. It will be necessary for RAP to seek resources for the additional 15% of cases being recommended for monitoring—over and above the current requirement for 10% monitoring.

Management Response:
Management agrees with the importance placed on monitoring and performance evaluation but believes that the reporting feature of the iCAMS will permit the Department to analyze client and SPO performance in a very cost-effective manner. It will also allow program administrators to further refine the existing 10% client-monitoring activities.

17. Implement Results-Based Program Management
Given that the Government’s emphasis is on results-based management and the preparation of RMAFs, it is recommended that:

1. RAP officials prepare an RMAF that outlines suggestions for results-based indicators for the program;
2. SPOs and CIC representatives from all levels be asked to help prioritize and agree upon a number of results-based indicators—via a workshop, perhaps;
3. SPOs and CIC representatives from all levels be asked to advise on a reporting mechanism for results-based indicators, (e.g., iCAMS, semi-annual/annual reports); and
4. The indicators and reporting mechanism be integrated into the reporting requirements under future SPO contribution agreements.

Management Response:
An Accountability, Risk and Audit Framework (ARAF) is currently being prepared jointly with the regional program specialists as well as SPOs and CIC representatives from all levels. The framework will contain the results-based indicators as well as all reporting requirements and mechanisms. Since 2002, SPO contribution agreements have required that SPOs input into CIC’s accountability system (iCAMS).

18. Consistent and Accurate Orientation Abroad
Consistent and accurate orientation abroad would help decrease the incidence of secondary migration by increasing the proportion of refugees destined to appropriate cities in Canada—to locations where family and/or friends are living.

Management Response:
We agree that consistent and accurate orientation abroad is required. We do not agree with the connection being made to the phenomenon of secondary migration within the context of destining. Canadian Orientation Abroad (COA) is given after the client is interviewed and a destining decision has been made. Therefore, COA has very little potential impact on secondary migration unless destining decisions were being made primarily by the GARs themselves. Refugees Branch has undertaken steps to analyze the cause factors involved in secondary migration. Data collected will be analyzed and used to improve the destining process.

c) Service Delivery

Summary of Findings

• SPOs are working very hard to deliver services to RAP clients. Some respondents suggested that SPOs are doing an excellent job with limited resources.
• Many SPOs have developed and implemented innovative and supplementary programs for RAP clients.
• All SPOs report that more time is required to deliver the services under RAP because of the changing profile of clients, including more special needs clients.
• Clients state that they were satisfied with the services and support given by the SPO.
• GARs could benefit from the networking and community support advantages of private sponsorship, as well as from longer-term follow-up and monitoring.
• Orientation overseas is currently uneven but could have significant impacts on RAP in terms of setting reasonable expectations, alleviating some secondary migration, and saving resources at airports if clients respect baggage limitations.

Recommendations:

19. Expand Services to Clients by Offering Regions and SPOs Flexibility to Become Client Focused
It is recommended that SPOs have the flexibility of developing innovative programs while still delivering the core set of services outlined in contribution agreements. This recommendation hopes to borrow some key strengths of the Private Sponsorship Program. That is, give GARs access to employer networks, community support, and a longer-term relationship with a service provider. In addition, loans for equivalency training, trauma and abuse support groups/counseling, and a Host-type program are other ideas for services to RAP clients. Clients are currently referred to ISAP for these types of services, however ISAP services were found not to be tailored to the specific needs of RAP clients.

Management Response:
Management agrees. New Terms and Conditions will seek to include B-stream funding for RAP—forecasted RAP surplus that could be used to fund other activities included in B-stream such as training, research and special projects. This is further addressed in Recommendation 23. The aim behind B-stream funding is to better understand the needs of refugees and to continuously develop and improve tools that will enhance service delivery. Management recognizes that our current refugees need more help adapting, settling and integrating into life in Canada. This will be addressed through a more coordinated application of existing programs and resources.

Refugees Branch and Integration Branch will undertake more of a horizontal management approach with the aim of developing a more effective, seamless delivery of services for GARs accessing ISAP and other settlement programs.

All of the aforementioned issues are addressed more fully in Recommendations 7, 22, and 23.

20. Implement a Case Management Approach
In order to be more client focused and to facilitate implementation of earlier recommendations—No. 1, tailoring services to clients, and No. 7, delivering services over a 12-month period—it is recommended that a case management approach to service delivery be considered and, if viable, implemented.

Management Response:
Management is open to a case management approach, but research would have to be undertaken to determine if it is a viable service delivery model. The Terms and Conditions will have to be modified to permit the Department to allocate RAP contribution funds towards such a project (B-Stream funding). This is further addressed in Recommendation 23.

21. New Terms and Conditions for RAP Regarding Types of Delivery Services are Required
The changes to the types of services delivered by the program will require new Terms and Conditions.

Management Response:
Integration and Refugees Branches are currently drafting a renewal and revision of program Terms and Conditions for RAP, ISAP, Host, LINC and the provincial settlement programs. Though progess is very encouraging, it is essential that a package be completed far enough in advance to allow time for approvals. Federal contribution programs not approved, on or before March 31, 2005, will sunset and cease to be funded.

22. Transfer Resources from ISAP for Services to GARs to RAP
Many of the services being recommended for delivery under RAP are currently being delivered by ISAP. It is recommended that an analysis be conducted to determine how much of the funding currently allocated to ISAP is being used to deliver services to GARs. Once this amount is determined, it is recommended that it be transferred to RAP. Again, new Terms and Conditions will be required.

Management Response:
Management does not agree that services for GARs currently delivered by ISAP should be delivered through RAP, nor that funds be transferred from ISAP to RAP. Rather, Refugees Branch and Integration Branch will undertake a more horizontal management approach aimed at developing a more effective, seamless delivery of services for GARs accessing ISAP and other settlement programs and for identifying ISAP uptake among GARs as well as gaps in service delivery.

An evaluation of ISAP was conducted in 2004 assessing program impacts on clients, some of whom were GARs. An evaluation of the COA component of ISAP is being conducted separately and may also inform on this issue.

Some existing and planned measures include:

1. wherever possible, SPOs will deliver both RAP and ISAP services;
2. where applicable, settlement contribution agreements will include a contract clause that establishes GARs as a priority; and
3. that the revised settlement and resettlement manuals be blended to incorporate a more seamless operational delivery of the two programs. The manuals will address the bridging of service delivery gaps, and the need for settlement providers to include refugee-specific elements in program design as well as the performance indicators associated with refugee settlement and integration.

d) Alternatives

(Appendix A presents a summary of the services delivered by all RAP SPOs and includes a section on best practices.)

Summary of Findings

• RAP management could consider seeking B-stream funding for the research and development of innovative programs or reallocate funds within the existing resource base.
• Assisting GARs with the transition to employment can help reduce costs and future stresses on the public system.

Recommendations:

23. Further Investigate Feasibility of B-Stream Funding
It is recommended that further investigation be done into the feasibility of implementing B-stream funding for research and development purposes as it could be beneficial for the program. Such a funding stream would require a change to existing RAP Terms and Conditions.

Management Response:
Management agrees. The inclusion of B-stream funding for RAP will be sought. The arrival pattern of refugees, in a given year, can result in a surplus of funds that are not required for essential RAP services within that same fiscal year. When the RAP Monthly Forecasting Tool forecasts such a surplus, funds could be made available for B-stream activities such as training, research, and special projects. The aim behind B-stream funding is to better understand the needs of refugees and to continuously develop and improve tools that will enhance service delivery. This mechanism will respond to SPOs’ long-standing desire to have the funding authority to develop innovative programs—with RHQ and NHQ approval—while still delivering the core set of services outlined in contribution agreements.

3.4.) Other Partners

Summary of Findings

• Interim Federal Health Program (IFH), which is not part of RAP but essential to the immediate needs of GARs, is meeting the very basic needs of clients in terms of prescription drugs and some medical aids and dental work. However, service providers across Canada are increasingly turning it down.
• Clients voiced frustration and confusion with delays and the low levels of acceptance of IFH.

Recommendations:
While recommendations regarding IFH directly are outside the scope of this evaluation, we have prepared the following RAP-specific recommendations which will hopefully help to address the perception of IFH and its services.

24. Provide Information to Clients Regarding Health-Care Providers Accepting IFH
Local and/or Regional CIC offices should prepare and maintain a list of pharmacies, clinics, dentists, physicians, opticians and other health-care providers that accept IFH. Local offices should make this list available to SPOs and RAP clients—translated, if necessary.

Management Response:
The IFH Program does not designate providers and the recipients can choose where they want to obtain medical services. Apart from the ethical obligation of providers to assist an acutely ill person, health professionals are free to accept or refuse patients. This explains why there are periodic access problems especially in areas where there are few IFH clients and the local health-care providers are unfamiliar with the program. In these situations it is important for local offices and NHQ to nurture willing providers and to give them support and problem solving solutions.

Medical Services Branch agrees that to help alleviate problems with IFH, local CICs should have lists etc. of suitable providers for RAP clients. In the experience of IFH staff, this is already practised by many local offices. Furthermore, NGOs also provide guidance to GARs. At NHQ, Medical Services Branch has encouraged regional managers to seek providers in order to maintain access and it has been active in providing solutions for sticking points when necessary.

25. Provide Information to Clients Regarding Common Services and Drugs Covered by IFH
NHQ should prepare and maintain, with the help of IFH, a list of services and common prescription drugs covered by IFH as well as a list of those services and common prescriptions drugs not covered by IFH. NHQ should make these lists available to Regional and local CIC offices and ensure that they are also made available to SPOs and RAP clients—translated, if necessary.

Management Response:
IFH does have a list of medications, which are already covered by the program. This is intended for the use of health-care providers and is available on the website at www.fasadmin.com. CIC tries to ensure that providers are better aware of both the structure and limitations of IFH. Providers also have access via the FAS website to information regarding dental and medical services covered, although, the complexity of general medical/dental services does not lend itself for simple listings of the yes and no type.

Additionally, Medical Services Branch has recently amended the appendices of the IFH Chapter in the relevant CIC manuals. There are sections in those documents that are designed to be copied and handed to the clients for their own and especially their providers’ guidance.