Recommendations and Rationale

Coordinated disaster preparation, response and recovery to increase immigrant resilience.

Download the Overview Matrix in .pdf format: EN

Phase
Level
Approach
Theme
Systems Level Agencies
Recommendations    Print Filtered Results

  • 1) Federal Enforcement

    RECOMMENDATION: Suspend interior immigration enforcement within 200 miles of potential emergency areas, including operations at Customs and Border Patrol check points, to ensure that people can move safely for evacuation and re-entry, to access resources, and to reach recovery job sites.

    PROPOSED IMPLEMENTERS: U.S. Department of Homeland Security

    When a government declares a State of Emergency, it suspends normal operations to gain control of the crisis. Immigration enforcement should be suspended as well. In disaster response and recovery, day laborers comprise a key component of the “second responder” force for the demanding and often dangerous work of debris removal, demolition, and repair and rebuilding of residential and commercial properties.39

    On Friday, August 25, 2017, U.S. Immigration and Customs Enforcement (ICE) and Customs and Border Protection (CBP) released an announcement stating, “Routine non-criminal immigration enforcement operations will not be conducted at evacuation sites, or assistance centers such as shelters or food banks.”40 The agencies also said they would prioritize “lifesaving and life-sustaining activities” during the storm and its aftermath.41 They did not, however, suspend check point operations, causing many immigrants of mixed- status families to shelter in place regardless of danger.

    Suspending check point operations is not unprecedented. During Hurricane Matthew in 2016, CBP and ICE announced that their highest priority was “to promote life-saving and life-sustaining activities, the safe evacuation of people who are leaving the impacted area, the maintenance of public order, the prevention of the loss of property to the extent possible, and the speedy recovery of the region.”42

    Further, their announcement stated, “No immigration enforcement initiatives associated with evacuations or sheltering related to Matthew, including the use of checkpoints for immigration enforcement purposes in impacted areas during an evacuation.”43 Public safety should be the highest priority.

    39 Nik Theodore, After the Storm: Houston’s Day Labor Markets in the Aftermath of Hurricane Harvey.
    40 Sarah Birnbaum, Alex Newman, and Angilee Shah, “A Looming Immigration Law is Hurting Houston’s Ability to Help Undocumented Residents in Wake of Harvey,” Public Radio International, August 29, 2017, https://www.pri.org/stories/2017-08-29/looming-immigration-law-hurting-houston-s-ability-help-undocumented-residents.
    41 Maria Sacchetti, “For Houston’s Many Undocumented Immigrants, Storm is Just the Latest Challenge,” Washington Post, August 28, 2017, https://www.washingtonpost.com/local/immigration/for-houstons-many-undocumented-immigrants-storm-is-just-the-latest-challenge.
    42 “ICE-CBP Joint Message Regarding Hurricane Matthew,” Department of Homeland Security, October 26, 2016, https://www.dhs.gov/news/2016/10/06/ice-cbp-joint-message-regarding-hurricane-matthew.
    43 Joel Rose, “Border Patrol Says Checkpoints Will Remain Open During Hurricane Harvey,” NPR, August 25, 2017, https://www.npr.org/2017/08/25/546109886/border-patrol-says-checkpoints-will-remain-open-during-hurricane-harvey.
    Disaster Phase
    Response
    Level
    Federal/State
    Approach
    Policy
    Theme

    Accessible resources
    Back to top

  • 2) FEMA Applications

    RECOMMENDATION: Provide clear communication on the FEMA disaster assistance application process, including how to efficiently work through the process, where to access assistance, and organizational training, to increase recovery assistance to eligible disaster victims.

    PROPOSED IMPLEMENTERS: Federal Emergency Management Agency (FEMA)

    After Harvey, there was wide-spread frustration and confusion with the Federal Emergency Management Agency (FEMA) application process, particularly related to the commonality of denials. What many people learned, however, is that FEMA considers denials and appeals a normal part of the process. According to a FEMA press release, “Receiving a ‘denial’ letter from FEMA does not necessarily mean an applicant is not eligible for disaster aid, even when the letter states ‘ineligible’. It can be an indication that further information is needed. ‘Ineligible’ often means ‘reconsider’.”44 No wonder people are confused.

    To ensure that disaster victims receive the recovery assistance they are eligible for, FEMA must provide clear communication on the full application and appeal process, including providing a resource list of where to locally get help through Disaster Recovery Centers, organizations providing case management, and legal services. FEMA must also train organizations providing these services to increase the efficiency of the case management process and successful applications.

    One HILSC interviewee said, “Undocumented people with citizen children were getting kicked out of FEMA early in the process. We had family lawyers doing appeals and winning many. So we used media to educate people to head off potential problems in the future.” Given that FEMA is provided via tax payers, the application process must be transparent and not require service agencies to figure out how it works and educate the applicants.

    44 “FEMA Denial Letters: Not Always the Final Word,” Federal Emergency Management Agency, November 18, 2011, https://www.fema.gov/news-release/2011/11/18/fema-denial-letters-not-always-final-word.
    Disaster Phase
    Preparedness
    Response
    Recovery
    Level
    Federal/State
    Approach
    Program/ Operations
    Theme

    Accessible resources
    Back to top

  • 3) Complete Data

    RECOMMENDATION: Develop data to accurately understand the impact of a disaster on vulnerable populations, including immigrants, and coordinate public and private recovery resources to ensure private resources reach those who are not eligible for FEMA and other federal assistance.

    PROPOSED IMPLEMENTERS: Texas General Land Office, Harris County and City of Houston agencies, academic institutions, and funding agencies


    Undocumented immigrants are eligible for non-cash emergency disaster relief and housing recovery assistance from Housing and Urban Development (HUD) – except residents of Harris County outside the City of Houston. However, they are not eligible for cash benefits or assistance from many government-funded programs such as Federal Emergency Management Agency (FEMA) recovery assistance, which requires at least one legal resident in the household. An estimated 15% of children in Houston had at least one undocumented immigrant parent, and 80% of these children are U.S. citizens.45 But many mixed-status households are reluctant to apply for government assistance out of fear of risking deportation or “public charge” consequences that compromise future efforts to secure permanent legal status.46 As a result, FEMA Individual Assistance data, on which many recovery funding decisions are based, misses many immigrant households.47

    Data currently being used to assess need in Harvey recovery – including from FEMA, American Community Survey, and Civis Analytics – undercounts vulnerable populations. Accurate data is required to understand the impact of a disaster on immigrants and their recovery needs.

    Houston’s Housing and Community Development Department contracted Civis Analytics to reconstruct Harvey flooding to develop more precise impact data on which to build their plan to distribute HUD Community Development Block Grant (CDBG) housing recovery funds. The report estimated that nearly half of 208,000 households affected by Harvey are low- or moderate-income, incurring about $5.2 billion in damages. The report acknowledges, however, that because the methodology uses American Community Survey data, it likely underestimates populations that are “hard-to-count,” such as undocumented immigrants, people who are “doubled-up” or sharing residences, and people who are “un-housed”.48

    In order to ensure an equitable recovery, it is essential to have an accurate account of those who are impacted, and that the data is used to inform the allocation of resources. Both the Migration Policy Institute in Washington, D.C. and the Center for Migration Studies in New York have proven formulas to include immigrants in data results that can be learned from to develop local impact data. Academicians are adept partners in this pursuit. Such information will allow public money to be used where it can be, and private money coordinated to fill the gaps.

    45 Randy Capps, A Profile of Houston’s Diverse Immigrant Population in a Rapidly Changing Policy Landscape.
    46 “Addressing the Needs of Immigrants in Response to Natural and Human-Made Disasters in the United States,” American Public Health Association.
    47 Housing Recovery After Hurricane Harvey, Houston's Housing and Community Development Department’s Local Action Plan, June 2018, https://houstontx.gov/housing/Local%20Action%20Plan%20Summary%20V-5.pdf.
    48 “City of Houston Local Housing Needs Assessment: Hurricane Harvey Housing Recovery,” accessed February 2019, http://houstontx.gov/housing/Draft_Local_Housing_Needs_Assessment_v2.pdf.
    Disaster Phase
    Preparedness
    Response
    Recovery
    Level
    Federal/State
    County/City
    Nonprofit
    Approach
    Policy
    Funding
    Theme

    Accessible resources
    Back to top

  • 4) Informed Decisions

    RECOMMENDATION: Inform policy and funding decisions with: 1) existing studies which document immigrants’ experience in Harvey response and recovery and 2) immigrant-serving organizations’ expertise, in order to fill gaps and address unintentional barriers to emergency and recovery services for immigrants.

    PROPOSED IMPLEMENTERS: Harris County agencies, City of Houston agencies, and Funders

    Additional data is needed to understand the full impact of any disaster on our total population and ensure an equitable recovery. However, many researchers and agencies have gathered and reported data on Harvey’s impact on immigrants, including in this HAP and many sources we cite. Our learnings and recommendations must be understood by policy and funding agencies, should inform any planned studies and surveys, and must be incorporated into policy and funding decisions.

    We know that partnership between government and nongovernmental organizations leads to more effective response and recovery. In fact, United States federal agencies that oversee and fund local emergency management require grantees to include communities in emergency planning and response.49

    49 Anita Chandra, Malcolm Williams, Alonzo Plough, Alix Stayton, Kenneth B. Wells, Mariana Horta, and Jennifer Tang, “Getting Actionable About Community Resilience: The Los Angeles County Community Disaster Resilience Project,” American Journal of Public Health, February 3, 2013, https://ajph.aphapublications.org/doi/full/10.2105/AJPH.2013.301270.
    Disaster Phase
    Preparedness
    Level
    County/City
    Nonprofit
    Approach
    Policy
    Funding
    Theme

    Accessible resources
    Back to top

  • 5) Organizational Barriers

    RECOMMENDATION: Assess organizational policies and practices to identify and remedy unintentional barriers to immigrant access to secure services. Such actions include strengthening inclusivity statements and similar policies as well as all ensuring all staff and volunteers practice inclusion.

    PROPOSED IMPLEMENTERS: All public and private emergency service providers

    The American Red Cross’ inclusivity statement “ensures inclusion of all diverse communities in its shelter operations.” While many agencies and organizations echo this inclusivity in their own vision, missions, and goals, such statements must be strengthened and put into practice.

    To build trust with immigrant communities, policies must guarantee that agencies will not release client-level data to government agencies. Disaster recovery research recommends “organizations and entities providing direct services to disaster survivors protect the confidentiality of immigrants whom they serve by specifying confidentiality requirements in service contracts and prohibiting information provided in the process of applying for disaster relief from being shared with the Bureau of Immigration and Customs Enforcement.”50

    Further, practices need to be examined to eradicate unintentional barriers. HILSC has an organizational self- assessment tool called the Immigrant Accessibility Index [Appendix F], which we use to identify opportunities to reduce barriers. An example of such a barrier comes from the intake form at the emergency shelter at the George R. Brown Convention Center, which reportedly asked for a Social Security number. Though it is not required, asking the question forces those without citizenship to state they do not have a Social Security number, which is then on record by omission. When BakerRipley opened the emergency shelter at NRG Stadium, they examined intake forms and removed such barriers. These two messages were communicated among informal channels such that HILSC partner organizations felt confident sending clients who needed shelter to NRG. Such knowledge and simple actions reduce barriers to service for all Houston-area residents.

    50 “Addressing the Needs of Immigrants in Response to Natural and Human-Made Disasters in the United States,” American Public Health Association.
    Disaster Phase
    Preparedness
    Level
    County/City
    Nonprofit
    Approach
    Policy
    Theme

    Accessible resources
    Back to top

  • 6) Chemical Response Plan

    RECOMMENDATION: Develop and implement a regional chemical response plan, guided by recommendations from the Environmental Integrity Project’s August 2018 report to ensure minimal damage to ship channel industries and affected residents, the workforce and first responders in their proximity and throughout the region.51

    PROPOSED IMPLEMENTERS: Harris County Office of Homeland Security and Emergency Management, and Harris County Public Health, in consultation with governments of cities within the county and local environmental justice advocates including Tejas

    Texas Governor Greg Abbott declared a “State of Disaster,” on August 23, 2017. In the Houston region however, industries waited more than three days before shutting down, which triggered the release of 8.3 million pounds of unpermitted air pollution. Much of this was caused by flooding-driven emergencies, equipment failures, and electrical outages. These numbers are likely underestimated as they are self-reported by industry. To avoid damage, 75% of air monitors were shut down in advance of Hurricane Harvey.

    The release included volatile organic compounds and benzene, a cancer-causing chemical that can cause rapid heart rates, tremors, and vomiting even with short-term exposure. During the storm, state and federal officials provided broad statements about pollution levels, repeatedly reassuring people they had no reason to worry. The state’s decision to suspend pollution monitoring requirements has made it difficult to assess health effects.52

    Moving east along Buffalo Bayou and through the ship channel, the percentage of foreign-born adults is as high as 49% in Downtown and East End Houston, to 40% in the Channelview/Cloverleaf area and Pasadena/ South Houston, to 29% where the channel opens up through Baytown and La Porte to Trinity Bay towards the Gulf of Mexico.53 The “fenceline” zones within three miles of hazardous chemical facilities suffer a greater risk of cancer and respiratory illness from air pollution.54 The large-scale pollution during Harvey could have been avoided if refineries and chemical plants on the ship channel had shutdown sooner, as happened in other areas of the Texas Gulf Coast. A regional chemical response plan is necessary to protect public health and safety.

    51 Preparing for the Next Storm: Learning from the Man-Made Environmental Disasters That Followed Hurricane Harvey, Environmental Integrity Project, August 16, 2018, http://www.environmentalintegrity.org/wp-content/uploads/2018/08/Hurricane-Harvey-Report-Final.pdf.
    52 “Industry’s Delay in Plant Shutdowns Worsened Air Pollution During Hurricane Harvey,” Environmental Integrity Project, August 16, 2018, https://www.environmentalintegrity.org/news/industrys-delay-in-plant-shutdowns-worsened-air-pollution-during-hurricane-harvey/.
    53 “Area Profile,” UTHealth, accessed February 2019, https://hhs2010.sph.uth.tmc.edu/AreaProfileReport/.
    54 “Life at the Fenceline,” Environmental Justice for All, accessed February 2019, https://ej4all.org/life-at-the-fenceline.
    Disaster Phase
    Response
    Level
    County/City
    Nonprofit
    Approach
    Policy
    Theme

    Cultural competence
    Back to top

  • 7) Safe, Affordable Housing

    RECOMMENDATION: Protect low-income homeowners and renters and the neighborhoods they live in by 1) increasing affordable housing supply, 2) improving and enforcing building safety codes, and 3) expanding and/or clarifying acceptable forms of identification required for disaster recovery applications.

    PROPOSED IMPLEMENTERS: Harris County and City of Houston housing agencies and departments

    Before Harvey, Houston was the third worst city in the country when it came to the availability of affordable housing for extremely low-income households.55 After Harvey, residents are even more likely to be trapped in dangerous housing without access to a safe alternative.

    As of 2016, the home ownership rate in Houston for green-card holders was 49%, and for undocumented immigrants 41%, despite generally lower income levels of many undocumented immigrants.56 More than half of immigrants live in rental housing, which are overseen by weak policies and enforcement. The city’s Multi-Family Habitability Code meets only 24% of public health protections recommended by experts. Further, the division that enforces the code does not inspect the units’ interiors during its inspections and therefore cannot identify and address major health and safety issues inside apartments.57 Pew Trusts found a $4-to-$1 benefit when building construction exceeds the International Code Council’s (ICC) 2015 model building codes. While the codes provide significant safety, even more money can be saved building beyond codes. Such investments in “code-plus” mitigation include elevating a home above the level required by the ICC to reduce flood risk.58

    There have also been reports of abuses of undocumented immigrants by landlords since Harvey damaged almost 43,000 apartment units, including failure to repair hurricane damage or forced eviction.59 Low-income and other vulnerable people are also more susceptible to scams and price gouging, which affects renters as well as homeowners.60

    As of 2016, 56% of all immigrants in the Houston area lived in owned homes, not far behind the rate of 65% for the U.S.-born population.61 Undocumented homeowners impacted by Harvey are eligible for multiple disaster assistance streams [Appendix B] but this is not always clear. Applications must be clear and inclusive.

    55 Heather K. Way and Carol Fraser, “Out of Order: Houston’s Dangerous Apartment Epidemic,” University of Texas School of Law, Entrepreneurship and Community Development Clinic, January 2018, https://law.utexas.edu/wp-content/uploads/sites/11/2018/02/2018-02-ECDC-ExecSum-HoustonApartments.pdf.
    56 Randy Capps, A Profile of Houston’s Diverse Immigrant Population in a Rapidly Changing Policy Landscape.
    57 Heather K. Way, “Out of Order: Houston’s Dangerous Apartment Epidemic.”
    58 Laura Lightbody, “Every $1 Invested in Disaster Mitigation Saves $6 Spending to Reduce Risk Saves Lives and Creates Jobs, Key Study Finds,” PEW Charitable Trusts, January 11, 2018, https://www.pewtrusts.org/en/research-and-analysis/articles/2018/01/11/every-$1-invested-in-disaster-mitigation-saves-$6.
    59 Randy Capps, A Profile of Houston’s Diverse Immigrant Population in a Rapidly Changing Policy Landscape.
    60 “Disaster Task Force,” Legal Services Corporation.
    61 Randy Capps, A Profile of Houston’s Diverse Immigrant Population in a Rapidly Changing Policy Landscape.
    Disaster Phase
    Preparedness
    Recovery
    Level
    County/City
    Nonprofit
    Approach
    Policy
    Theme

    Accessible resources
    Back to top

  • 8) Labor Protections

    RECOMMENDATION: Partner with local worker centers to ensure the health and safety of second responders who are cleaning and rebuilding our region, and reduce violations of employment laws.

    PROPOSED IMPLEMENTERS: Harris County and City of Houston agencies, local worker centers and unions, and funders

    A November 2017 study from the University of Illinois at Chicago found that the health and safety of day laborers serving the community as “seconder responders” after Harvey were extremely compromised. Eighty-five percent of the 351 day-laborers surveyed reported they had not received training regarding the hazards of their worksites. Most of these “second responders” never received training on the risks related to unsafe buildings, mold, working in contaminated water, and working around fallen trees or electrical lines.

    More than a third of workers reported having been injured while employed as a day laborer. Of those, 67% indicated the injury was due to an unsafe workplace, 63% were due to lack of protective equipment, and 52% were injured after being pressured to work faster. Texas is the only state in the country that does not have mandatory workers’ compensation insurance laws to protect workers.

    According to the Department of Labor, all workers in the United States have a right to be paid for time worked regardless of immigration status.62 Yet, wage theft was rampant in Houston following Hurricane Harvey. In just the first month, 26% of day laborers were victims of wage theft and the Fe y Justicia Worker Center has documented over $1.2 million in wage theft claims in the last year, at about $3600 per case. For minimum wage workers, this is 25% of their annual take home pay.63 There is little recourse for this injustice without the assistance of a worker center and pro bono labor attorneys, which are in short supply in Houston.

    A Service Employees International Union (SEIU) campaign in Houston brought 45 complaints to the city, of which wage theft from five companies was discovered in 41 of the cases. Only one company settled its debts. The City of Houston adopted a wage theft ordinance in 2013,64 but as of June 2018 there had been no consequences for any employer. The city also doesn’t hold contractors accountable for theft by their subcontractors, and subcontractors often fold to avoid claims only to reopen later under a new name. The Texas Workforce Commission has limited efficacy as well, with just over 2% of its budget dedicated to labor law enforcement.65

    In some cases government recovery programs have even suspended legal protections for low-wage workers to speed recovery and stimulate local economies. After Hurricane Katrina, the federal government directed billions of dollars of aid to the Gulf Coast as it simultaneously suspended wage regulations, worker safety laws, and affirmative action considerations for businesses receiving federal contracts. The polarizing effects of these initiatives were compounded by federally funded contracts that paid good money to businesses that then sub-contracted the actual work to companies that paid comparatively lower wages, often to undocumented migrants who were sometimes victims of wage theft, or lack of payment for their labor.66

    Given that the Houston region depends on day laborers to recover from disasters, we must ensure that their legal rights are protected by pushing for policies that protect workers from wage theft and abuse, and by supporting and increasing capacity of our worker centers, which are trusted sources of information for many undocumented workers.

    62 “Learn About Workers' Issues & Empower Yourself,” Fe y Justicia Worker Center, accessed February 2019, https://www.houstonworkers.org/learn.
    63 “More Than $12 Million Stolen from Houston Workers in the Last Year,” Fey y Justicia Worker Center, published March 1, 2019. www.houstonworkers.org/blog/more-than-1-2-million-stolen-from-houston-workers-in-the-last-year/
    64 “Finance Department: Wage Theft,” City of Houston, accessed February 2019. https://www.houstontx.gov/finance/wage_theft.html.
    65 Gus Bova, “Wage Wars,” Texas Observer, June 13, 2018, https://www.texasobserver.org/wage-wars.
    66 Junia Howell and James R Elliott, “Damages Done: The Longitudinal Impacts of Natural Hazards on Wealth Inequality in the United States,” Social Problems, spy016, accessed March 2019, https://doi.org/10.1093/socpro/spy016.
    Disaster Phase
    Preparedness
    Recovery
    Level
    County/City
    Nonprofit
    Approach
    Policy
    Theme

    Accessible resources
    Back to top

  • 9) Immigrants with Disabilities

    RECOMMENDATION: Ensure the response and recovery needs of immigrants with disabilities are met, guided by Living Hope Wheelchair Association’s report, Pre-existing Conditions in a Time of Disasters: Challenges and Opportunities Advancing an Equitable Recovery for Vulnerable Populations.67

    PROPOSED IMPLEMENTERS: Harris County and City of Houston agencies, and emergency response and recovery providers

    Immigrants are one of the most vulnerable populations to the damaging effects of disasters on health, income, and quality of life. Immigrants with disabilities are even more vulnerable because of their limited mobility, modes of transportation, and requirements for dignified housing.

    Living Hope Wheelchair Association was founded by people with spinal cord injuries to help those with spinal cord injuries and other disabilities lead full and productive lives. The majority of members are not entitled to benefits, lack medical insurance, and have no stable source of income. Members have learned to improve quality of life through hope and solidarity, sharing available resources, and organizing to meet needs.68

    Living Hope Wheelchair Association conducted a community assessment to record the Harvey experience of immigrants with disabilities. Their report documented the need for policy planning that starts with considerations for the most vulnerable populations and grows outward from there. Recommendations include geographically diverse relief centers, bringing grassroots organizations to the planning table, and including immigrants and people with disabilities in cultural competency and inclusion trainings. The report asks for survivor-informed planning, with disaster victims providing input rather than feedback in emergency planning. Ultimately Living Hope Wheelchair Association calls for treating all with dignity when it comes to planning for services and trusting people will share their experiences with integrity.

    67 “Pre-Existing Conditions in a Time of Disaster: Challenges and Opportunities Advancing an Equitable Recovery for Vulnerable Populations,” Living Hope Wheelchair Association.
    68 “About us,” Living Hope Wheelchair Association, accessed February 2019, https://lhwassociation.org/about-us.
    Disaster Phase
    Response
    Level
    County/City
    Nonprofit
    Approach
    Policy
    Theme

    Accessible resources
    Back to top

  • 10) Preparedness Literacy

    RECOMMENDATION: Develop disaster preparedness information in the top six languages spoken in the Houston area, at a sixth-grade reading level in order to increase access to information and improve the security of all.

    PROPOSED IMPLEMENTERS: Harris County Office of Homeland Security and Emergency Management and City of Houston Office of Emergency Management

    There are low levels of English fluency among undocumented and permanent immigrant residents. Over 50% of foreign-born residents have limited English proficiency, including an estimated 340,000 undocumented immigrants and 350,000 green-card holders. Almost 40% of foreign-born residents lack a high school diploma.69 These residents face language and literacy barriers that need to be accommodated to ensure successful disaster preparedness, response, and recovery.

    The City of Houston provides an extensive Disaster Preparedness Guide, based on Federal Emergency Management Agency materials and available in the top six languages spoken in Houston: English, Spanish, Vietnamese, Chinese, Arabic, and French. Harris County preparedness information is available in English, and some key documents are available in Spanish. It is shared with partners, public, non-profits and community groups from across the region. Representatives also share information at community-organized events, and the material is available on the web.70 This material does not, however, serve low-literacy people.

    Research has found that a mismatch between the literacy levels of existing materials and the skills of many adults limits their ability to understand and effectively use potentially life-saving preparedness information. Disaster preparedness literacy is a somewhat new field, but best practices are being gleaned from health literacy. Materials for vulnerable populations must use clear, direct, and consistent messages. Best practices include short paragraphs with ample white space, and other techniques to reduce cognitive demands. Materials must also be tested for efficacy to ensure information is clear and actionable by the intended audience.71

    69 Randy Capps, A Profile of Houston’s Diverse Immigrant Population in a Rapidly Changing Policy Landscape.
    70 Ready Houston, Emergency Plan Checklist, readyhouston.tx.gov/prepare-today/make-a-plan. Ready Harris, Preparedness Quick Links, readyharris.org.
    71 Lisa Mary Brown, Lindsay J. Peterson, and Jolie Haun. “A Proposed Disaster Literacy Model,” June 2014, https://www.researchgate.net/publication/263147331_A_Proposed_Disaster_Literacy_Model.
    Disaster Phase
    Preparedness
    Level
    County/City
    Approach
    Program/ Operations
    Theme

    Accessible resources
    Back to top

  • 11) Continuations of Operations Plan (COOP) Training

    RECOMMENDATION: Provide Continuation of Operations Plan (COOP) training to immigrant-serving organizations to ensure these expert, trusted agencies have an emergency management plan in place and are therefore available for response and recovery.

    PROPOSED IMPLEMENTERS: Harris County Office of Homeland Security and Emergency Management, City of Houston Office of Emergency Management, and City of Houston Office of New Americans and Immigrant Communities

    Government agencies recognize they are generally not widely trusted by the immigrant population, particularly in the current political climate. They are, however, the most significant source of information about disaster preparedness, response, and recovery. As a result, their support of immigrant-serving organizations in creating a Continuity of Operations Plan (COOP) will ensure that trusted organizations are available as a liaison for communication and resources from the government through to Houston’s immigrants.

    COOP is a federal initiative to encourage people and departments to plan how critical operations will continue throughout an emergency. COOP is a good business practice as it establishes policy and guidance to ensure that primary functions essential to an organization’s mission can continue through and after emergencies.72, 73

    The City of Houston’s Office of Emergency Management has committed to provide workshops led by their experienced trainers to help HILSC partner organizations develop their own COOP.

    72 “Continuity of Operations: An Overview,” Federal Emergency Management Agency, accessed February 2019, https://www.fema.gov/pdf/about/org/ncp/coop_brochure.pdf.
    73 “Continuity of Operations Planning,” Boston University Emergency Management, accessed February 2019, https://www.bu.edu/emd/emergency-planning/coop.
    Disaster Phase
    Preparedness
    Level
    City/County
    Approach
    Program/ Operations
    Theme

    Accessible resources
    Back to top

  • 12) Information Dissemination

    RECOMMENDATION: Coordinate with immigrant advocates on immigrant-specific disaster information and disseminate to local media to increase access to accurate, timely, and actionable information.

    PROPOSED IMPLEMENTERS: Harris County Office of Homeland Security and Emergency Management, City of Houston Office of Emergency Management, City of Houston Office of New Americans and Immigrant Communities, and Texas Organizing Project

    Throughout HILSC’s HAP interviews, advocates repeatedly reported that their immigrant clients often lacked information in emergencies. Topics of need include how to get response assistance, health and safety, repair and rebuilding, and mental health support.

    Given the long-term impacts of disasters, a comprehensive media campaign should be developed and shared with non-English and culture-specific media outlets. The campaign should also include the Consulate General of Mexico in Houston, which is coordinating a communication strategy to reach the Mexican community, which is the largest country of origin for immigrants in Houston.74 This effort can begin with convening media representatives and advocates to identify established sources of high-quality information and develop communications protocols.

    74 Randy Capps, A Profile of Houston’s Diverse Immigrant Population in a Rapidly Changing Policy Landscape.
    Disaster Phase
    Preparedness
    Response
    Level
    City/County
    Nonprofit
    Approach
    Policy
    Theme

    Inclusive communication
    Back to top

  • 13) Immigrant-Specific Information

    RECOMMENDATION: Provide the HILSC FAQ to first responders and frontline volunteers, shelters, and relief centers to increase access to accurate, timely, and actionable information and assistance for all.

    PROPOSED IMPLEMENTERS: Federal Emergency Management Agency, Texas General Land Office, Harris County Office of Homeland Security and Emergency Management, City of Houston Office of Emergency Management, City of Houston Office of New Americans and Immigrant Communities, the American Red Cross, and emergency shelter managers

    A number of important questions specific to immigrants arise during an emergency, including: rescheduling immigration court dates, the safety of shelters, and eligibility for assistance. The answers to the questions can make a huge difference in someone’s exposure to deportation, but providing the answers can take immigration legal experts some research. Immigrants typically do not have access to accurate information about the services and benefits available to them or how their legal status affects their eligibility.75

    HILSC vets immigrant-specific information and makes it available through our FAQ [Appendix D] and Immigrant Rights Hotline (833-HOU-IMMI). Immigrants seeking assistance will benefit from this research if first responders and frontline staff and volunteers in shelters and at agencies throughout the city are aware of these resources so they can answer immigrant-specific questions.

    75 “Addressing the Needs of Immigrants in Response to Natural and Human-Made Disasters in the United States,” American Public Health Association.
    Disaster Phase
    Response
    Level
    Federal/State
    County/City
    Nonprofit
    Approach
    Policy
    Theme

    Inclusive communication
    Back to top

  • 14) Automatic Emergency Notification

    RECOMMENDATION: Develop an automatic registration system for emergency notifications (e.g., through the Harris Health Financial Assistance Program, Houston Public Library, 211 Helpline, and/or others), to increase access to accurate information for all.

    PROPOSED IMPLEMENTERS: Harris County Office of Homeland Security and Emergency Management, City of Houston Office of Emergency Management, and potentially Harris Health, Houston Public Library, United Way, and/or other organizations

    Greater Houston emergency managers recognize the value of emergency notification systems. Three are currently available in the area:

    1. The Wireless Emergency Alerts system sends alerts, including National Weather Service alerts and Amber Alerts, to cell phones. This is regulated by the Federal Communications Commission in partnership with the wireless industry. Cell phone users are automatically registered.
    2. AlertHouston delivers critical information to Houston residents regarding current conditions, expected impacts, and protective actions to stay safe in an emergency. Residents register for alerts by email, text message, voice call, or mobile app push notification. Alerts are geo-targeted, and subscribers can register up to five physical addresses per contact record to track emergencies in areas with friends and family. Users must subscribe.
    3. Greater Harris County 9-1-1 Emergency Notification System issues notifications for neighborhood level emergencies, such as chemical releases, police activity, etc., which are sent through phone, text, and email. Land-lines automatically receive alerts. Residents with a mobile phone or digital voice service must register.

    Given that the City of Houston and Harris County systems require both knowledge of and registration for, both are limited in their reach, particularly for residents who have limited English and technology proficiency. California legislators passed a law in September 2018 allowing counties to automatically enroll residents in county-operated emergency notification systems that will alert residents using the phone numbers attached to their utility accounts, as less than 30 percent of residents were signed up to receive emergency alerts via cell phone and email as of 2017.76

    76 Bree Burkitt and Perry Vandell, “As California Wildfires Force Evacuations, Lawmakers Hope New Alert System Will Save Lives,” Arizona Republic, November 9, 2018, https://www.azcentral.com/story/news/2018/11/09/how-effective-emergency-alerts-natural-disasters/1945966002/.
    Disaster Phase
    Response
    Level
    County/City
    Nonprofit
    Approach
    Policy
    Theme

    Inclusive communication
    Back to top

  • 15) Non-English Media Plan

    RECOMMENDATION: Ensure Ready Harris and Ready Houston have an outreach plan targeting non-English media, informed by immigrant advocates, to increase access to timely, accurate, and actionable information for all.

    PROPOSED IMPLEMENTERS: Harris County Office of Homeland Security and Emergency Management, City of Houston Office of Emergency Management, and City of Houston Office of New Americans and Immigrant Communities

    HAP interviews brought to light frustrations from immigrants, service providers, and emergency responders regarding the difficulty accessing and disseminating accurate and timely information. HILSC commissioned preliminary research to identify non-English and culturally-specific media in the Houston area [Appendix H]. As the proposed primary liaison between city and county emergency management offices and immigrant-serving organizations, Office of New Americans and Immigrant Communities is well-positioned to inform and support the development and implementation of a communications plan to ensure accurate emergency information reaches a broad audience. Communications coming directly from the Emergency Operations Center will ensure timely distribution.

    Disaster Phase
    Preparedness
    Response
    Recovery
    Level
    County/City
    Approach
    Policy
    Theme

    Inclusive communication
    Back to top

  • 16) Verify Immigrant-Specific Information

    RECOMMENDATION: Identify, verify, and disseminate emergency information specific to immigrants via HILSC FAQ, Immigrant Rights Hotline (833-HOU-IMMI), and the NeedHOU website; and provide to Emergency Operations Centers and ONIAC to distribute to shelters and relief centers to increase immigrant access to accurate, timely, and actionable information.

    PROPOSED IMPLEMENTERS: HILSC members and partners

    HILSC created our FAQ [Appendix D] for Immigrant Survivors of Disasters for service providers advising immigrant clients, particularly those who are low-income and undocumented. It provides answers to immigrant-specific questions that are not common knowledge. HILSC provides information and referrals to immigrant-appropriate resources through the Immigrant Rights Hotline (833-HOU-IMMI). The Hotline is staffed by bi-lingual operators from immigrant-serving organizations with training in referrals. The operators have access to translation services to serve the 145 languages that are spoken in Houston.77 During a disaster, the hotline also serves to disseminate accurate, timely, and actionable information.

    Finally, the NeedHOU website is a crowd-sourced social service referral system based on one built during Harvey to connect needs with resources. Though data changes are verified in day-to-day operations, a disaster override function will allow real-time communication. Crowd sourcing and cooperative efforts have proven to be powerful tools in responding to crises and emergency situations.78 These tools will ensure needed information is available immigrants through a variety of channels.

    Despite their vital role in response and recovery, many first and second responders aren’t provided information specific to ensuring immigrant safety in disaster response and recovery. HILSC commits to maintaining these resources for all. Wide-spread knowledge and use of these tools will help immigrants obtain answers to important questions and organizations to deploy resources more efficiently.

    77 Lomi Kriel, “Just How Diverse Is Houston? 145 Languages Spoken Here,” Houston Chronicle, November 5, 2015, https://www.houstonchronicle.com/news/houston-texas/article/Houstonians-speak-at-least-145-languages-at-home-6613182.php.
    78 David Alexander, “Disaster and Emergency Planning for Preparedness, Response, and Recovery,” September 2015, http://oxfordre.com/naturalhazardscience/view/10.1093/acrefore/9780199389407.001.0001/acrefore-9780199389407-e-12
    Disaster Phase
    Response
    Recovery
    Level
    Nonprofit
    Approach
    Program/ Operations
    Theme

    Inclusive communication
    Back to top

  • 17) Emergency Notification via Schools

    RECOMMENDATION: Partner with school districts to communicate emergency information via their robocall and text messaging systems to increase access to accurate information for all.

    PROPOSED IMPLEMENTERS: Harris County Office of Homeland Security and Emergency Management and City of Houston Office of Emergency Management

    Given that the City of Houston and Harris County systems require both knowledge of and registration for, both are limited in their reach, particularly among residents who have limited English, literacy and access to technology.

    Houston Independent School District (HISD) has a text messaging system that automatically sends a text message to all numbers listed in the district’s School Information System asking them if they want to enroll in emergency notification. This prompt increases participation by reducing the burden to register on the user. School administrators and HISD central offices send messages only for emergencies such as school closings and lockdowns. Using this and similar systems with other school districts to distribute disaster information will help reach low-income and immigrant residents through a trusted resource. School district partnerships will allow emergency officials to distribute accurate, timely and actionable information and reduce misinformation and rumors.

    Disaster Phase
    Preparedness
    Level
    City/County
    Approach
    Policy
    Theme

    Inclusive communication
    Back to top

  • 18) Immigrant Community Liaison

    RECOMMENDATION: Serve as the point of contact for local Emergency Operation Centers for immigrant-related issues and ensure that emergency communications are linguistically and culturally appropriate to increase access to accurate, timely, and actionable information for all.

    PROPOSED IMPLEMENTERS: City of Houston Office of New Americans and Immigrant Communities

    As a city office within Houston’s Department of Neighborhoods, Office of New Americans and Immigrant Communities (ONAIC) is well-positioned to serve as a liaison between the immigrant community it serves and city and county departments. ONAIC has access to both their network of immigrant-serving organizations as well as a variety of city departments. Under Houston Mayor Sylvester Turner’s Complete Communities initiative, city departments are charged with working with residents to provide all with quality services and amenities. ONAIC is positioned to break down silos between departments for a coordinated approach to services for immigrants. As such, ONAIC should play a central role – and be staffed appropriately with bilingual staff – in emergency management to ensure the needs of our region’s large immigrant population are addressed in disaster preparedness, response, and recovery.

    Disaster Phase
    Preparedness
    Response
    Recovery
    Level
    City/County
    Approach
    Policy
    Theme

    Inclusive communication
    Back to top

  • 19) Language Access for First Responders

    RECOMMENDATION: Coordinate the availability of multilingual volunteers and language access technology for first responders and client-facing providers at shelters and supply centers to increase access to assistance for non-English speaking people.

    PROPOSED IMPLEMENTERS: City of Houston Office of New Americans and Immigrant Communities

    In disaster response, large service agencies ramp up staff and volunteers to serve the multitude of victims. Given the diversity of Houston’s population – speaking 145 languages – it is unrealistic to believe there will always be someone on hand to provide interpretation. The Office of New Americans and Immigrant Communities (ONAIC) can recruit and deploy multilingual volunteers where needed, especially at shelters. All efforts can be supported by the iSpeak Language Access app, contracted by ONAIC, that provides simultaneous, live interpretation though mobile devices.

    Disaster Phase
    Preparedness
    Response
    Level
    County/City
    Approach
    Policy
    Theme

    Accessible resources
    Back to top

  • 20) Trauma Informed Training

    RECOMMENDATION: Implement staff and volunteer trauma-informed, cultural effectiveness and mental health/self-care workshops to improve access to safe, secure response and recovery resources for all.

    PROPOSED IMPLEMENTERS: Federal Emergency Management Agency (FEMA), the American Red Cross, and other organizations and agencies that provide emergency services, and HILSC

    Cultural ignorance, ethnic insensitivity, racial isolation, and racial bias in information dissemination and relief assistance all contribute to the disparate impact to and recovery for low-income persons of color.79 Due to the diversity of the greater Houston region, frontline government employees, non-profit professionals, and volunteers must understand how to work with diverse populations and how to recognize and respond to trauma. HILSC applauds Houston Mayor Turner’s Welcoming Houston commitment to develop tools and resources that provide public safety information in different languages and that are culturally sensitive.80

    Many individuals without legal status have been victims of violence and past trauma related to their migration story. These experiences can compound the effect of disaster-related trauma. Racial profiling is also heightened during disasters.81 In the past, government agencies and major private relief agencies typically failed to provide materials or interpreters to serve monolingual survivors or to provide culturally appropriate services. Agencies with linguistic and cultural capacity often are small and under-resourced.82

    Priority should be given to hiring staff members who speak the same language as clients, share the similar ethnic backgrounds, and are local residents. If not possible, all staff should receive cultural competency training so they are sensitive to sociocultural factors – particularly those related to lacking legal status – that pose barriers to navigating post-disaster recovery bureaucracy.83 Included in any training should be how trust – or lack thereof – of institutions can affect a person’s willingness to seek assistance and the role of trauma in behaviors during a disaster. HILSC applauds Houston Mayor Turner’s Welcoming Houston commitment to continue to improve the multilingual and multicultural capacities of employees at public offices and public institutions to better respond to the needs of immigrants.84 Responders must also know how to reach interpretation services and have access to answers about immigrant-specific questions.

    During Hurricane Harvey response and recovery, many immigrants did not pursue assistance they qualified for. Some staff and volunteers of agencies that sharply increase capacity in disaster response unintentionally presented barriers for immigrants. Volunteer lawyers often had to advocate on their behalf. For example, one lawyer reported an immigrant who approached the legal assistance table at the emergency shelter at George R. Brown. After a woman stood in line for Federal Emergency Management Agency (FEMA) assistance for over two hours, she was told she did not qualify for assistance because she did not have legal documentation. She immediately left, too intimidated to ask additional questions. The lawyer took her back to the FEMA representative to begin the application process, having determined with a few simple questions that her child is eligible as he was born in the U.S.

    FEMA told an woman who is an undocumented immigrant, after a two-hour wait in line, that she was ineligible for assistance. Through a few simple questions, a volunteer immigration lawyer determined her household was eligible. He took her to the front of the FEMA line to start the application process.

    HILSC offers a Cultural Safety Training that is a trauma-informed curriculum to reduce barriers for immigrants to social services by teaching agency staff culturally safe practices and how to care for themselves through stressful situations. The curriculum aims to reduce discriminatory acts and rhetoric to build a safe environment for individuals and families from diverse backgrounds and experiences. Regardless of background, most people requesting disaster assistance have sustained trauma. Cultural Safety Training will benefit individuals seeking assistance, agency staff, and agencies.

    79 “Addressing the Needs of Immigrants in Response to Natural and Human-Made Disasters in the United States,” American Public Health Association.
    80 Welcoming Houston, An Initiative of the Office of New Americans and Immigrant Communities, welcominghouston.org.
    81 “One Year After the Storm: People’s Tribunal on Hurricane Harvey Recovery,” August 24, 2018, Houston Organizing Movement for Equity (HOME) and Barbara Jordan-Mickey Leland School of Public Affairs at Texas Southern University.
    82 “Addressing the Needs of Immigrants in Response to Natural and Human-Made Disasters in the United States,” American Public Health Association.
    83 Mai Thi Nguyen, “Disaster Recovery Among Multiethnic Immigrants,” Journal of the American Planning Association, September 2014, https://www.researchgate.net/publication/313888306_Disaster_Recovery_Among_Multiethnic_Immigrants.
    84 Welcoming Houston, An Initiative of the Office of New Americans and Immigrant Communities, welcominghouston.org.
    Disaster Phase
    Preparedness
    Recovery
    Level
    Federal/State
    City/County
    Nonprofit
    Approach
    Policy
    Program/ Operations
    Theme

    Cultural competence
    Back to top

  • 21) Immigrant Accessibility Index

    RECOMMENDATION: Employ HILSC’s Immigrant Accessibility Index, an organizational self-assessment tool to identify opportunities to reduce barriers and increase immigrant access to services.

    PROPOSED IMPLEMENTERS: Harris County and City of Houston agencies and emergency response and recovery providers

    Many agencies and organizations do not serve immigrants because of intentional or unintentional barriers created through their systems and processes, even though immigrants are technically eligible for services. It is critical that eligibility for services be correctly assessed the first time, especially for immigrants who have limited time and transportation. Taking time off from work can result in lost wages, and driving is often a risk for undocumented people who could be deported as a result of a routine traffic stop. Any number of false leads can cause people to give up and stop seeking much needed assistance, potentially sacrificing the health or safety of their families.

    HILSC’s Immigrant Accessibility Index (IAI) [Appendix F] is an organizational self-assessment tool to help identify opportunities to improve systems and elevate best practices for establishing a safe, secure environment. The IAI can be used to assess an entire agency or organization, or individual services like United Way of Greater Houston’s 211 Helpline. HILSC is also available to support organizations with best practices and other resources to address potential barriers that have been identified through the use of the Immigrant Accessibility Index.

    Disaster Phase
    Response
    Recovery
    Level
    County/City
    Nonprofit
    Approach
    Policy
    Theme

    Accessible resources
    Back to top

  • 22) Safe Emergency Shelters

    RECOMMENDATION: Ensure the Department of Homeland Security, including Immigration and Customs Enforcement, are not present at emergency shelters, supply centers, food pantries, and other relief centers where disaster victims receive services to ensure immigrants feel safe accessing these resources.

    PROPOSED IMPLEMENTERS: Managing organizations of emergency shelters, supply centers, food pantries, and other emergency relief centers

    In the aftermath of a catastrophic event, the Department of Homeland Security (DHS) turns to its Surge Capacity Force, a group of employees from DHS and employees from every department or agency in the federal government. Immigration and Customs Enforcement (ICE) and Customs and Border Patrol (CBP) are divisions of DHS and, for many immigrants, a DHS badge is as fear-inducing as an ICE badge.

    Public perception after Harvey was that there were more DHS vehicles than first responders on the roads, and DHS trucks were seen at supply distribution centers.85 Almost every HILSC interviewee from an immigrant-serving organization reported that DHS, CBP and ICE presence at the emergency shelter at George R. Brown prevented clients from seeking assistance there. They also assisted with recovery throughout the city.86

    Conversely, BakerRipley prevented ICE from being present at the emergency shelter at NRG Stadium without compromising safety. Consequently, HILSC partners felt comfortable referring clients there after it opened.

    Until then, people stayed home even in unsafe conditions – a Harvard study suggests average levels of fine particle pollution were nearly 32 times higher in homes flooded by Harvey than in non-flooded homes. Ten months after Harvey, 16% of Texas Gulf Coast residents affected by the storm had a new or worsened health condition, including respiratory problems from agents such as bacteria and mold in water-damaged homes.87

    The presence of uniformed DHS and/or ICE officers creates an atmosphere of fear and severely limits access to shelters and other points of assistance for people without full legal status or within mixed status families. This ultimately increases the health burden as people are later treated in emergency rooms and public clinics. The Texas Hospital Association’s assessment of Harvey-related costs, published in February 2018, estimated disaster-related costs for ninety-two reporting hospitals at $460 million.88 Safe, secure access for all residents is essential for regional resilience.

    85 “One Year After the Storm: People’s Tribunal on Hurricane Harvey Recovery,” August 24, 2018, Houston Organizing Movement for Equity (HOME) and Barbara Jordan-Mickey Leland School of Public Affairs at Texas Southern University.
    86 Accessible at: Adrian Florido, Twitter, twitter.com/adrianflorido/status/904199766501969920.
    87 Juanita Constible, “The Emerging Public Health Consequences of Hurricane Harvey,” NRDC, August 29, 2018, https://www.nrdc.org/experts/juanita-constible/emerging-public-health-consequences-hurricane-harvey.
    88 “Report Offers Findings and Recommendations to Improve Disaster Preparedness and Response for Future Events,” Texas Hospital Association, February 7, 2018, https://www.tha.org/Public-Policy/Newsroom/Texas-Hospital-Association-Releases-Special-Report-on-Hospital-Disaster-Response-During-Hurricane-Harvey.
    Disaster Phase
    Response
    Level
    County/City
    Nonprofit
    Approach
    Policy
    Theme

    Accessible resources
    Back to top

  • 23) Non-Discrimination Policies

    RECOMMENDATION: Post summaries of non-discrimination policies, inclusivity statements, or similar policies in at least Spanish and English along with translations available in the additional top five languages spoken in Houston outside of emergency shelters, supply centers, food pantries, and other relief centers to increase access to safe, secure response and recovery resources for all.

    PROPOSED IMPLEMENTERS: Managing organizations of emergency shelters, supply centers, food pantries, and other emergency relief centers

    The inclusivity statement of the American Red Cross reads, “Sheltering includes more than just providing a facility. It is designed to offer a safe space where a variety of clients’ needs can be met. Red Cross services are delivered to individuals, families, and communities with no discrimination as to race, color, national origin, religion, gender, gender identity, age, disability, sexual orientation, citizenship, or veteran status. The American Red Cross shall ensure inclusion of all diverse communities in its shelter operations.”

    Despite this policy, there is a wide-spread perception that the ARC and other agencies will not help people without Social Security numbers. This misunderstanding is fueled by immigrant experience with staff and/or volunteers who ask for Social Security numbers and then deny services to those who fail to provide them. Publicly posting policies, especially those that prohibit the sharing of individual information, will visibly inform volunteers and victims that emergency assistance is safe and secure for all to access. Internal policies need to shift as well.

    When BakerRipley set up an emergency shelter at NRG Stadium, they reviewed a standard intake template and removed questions they knew were barriers to immigrants. These two messages were communicated among informal channels so HILSC partner organizations felt confident sending clients who needed shelter to NRG Stadium.

    Such knowledge and simple actions reduce barriers to service for all Houston-area residents.

    Disaster Phase
    Preparedness
    Response
    Level
    County/City
    Nonprofit
    Approach
    Policy
    Theme

    Accessible resources
    Back to top

  • 24) Disaster Case Management

    RECOMMENDATION: Coordinate funding streams and disaster case management (DCM) organization grantees to: 1- provide trauma-informed, cultural effectiveness training and mental health/self care training and support to case managers 2- include grassroots organizations in DCM funding systems, and 3- train case managers to identify legal issues after a disaster and provide a referral process to legal service providers to increase efficiency and successfully close more cases.

    PROPOSED IMPLEMENTERS: HILSC, United Way, and other case management funders

    There is no question that in Hurricane Harvey response and recovery, the Houston area’s disaster case management (DCM) system was inadequate to meet the need. Despite the tens of millions of dollars committed to DCM from sources including the Hurricane Harvey Recovery Fund, the United Way of Greater Houston, and Federal Emergency Management Agency, disaster victims waited months, sometimes more than a year, to work with a case manager – if they worked with one at all. All agree the system did not work, but the causes of the problem are yet to be identified. HILSC recommends a full assessment of the system to identify and address shortcomings. In the meantime, we offer three recommendations in contribution to a larger solution.

    1. Provide cultural competency and mental health/self care training and support to case managers. Case managers were overworked and under-resourced. The case for cultural competency training has been well-laid out in previous rationale (Recommendations #5 and #21). Further, hospitals reported needing to engage chaplains and social workers to help their employees manage stress, anxiety, separation from their families, and burnout.89 Case managers also worked long hours and faced similar emotional challenges.
    2. Include grassroots organizations in DCM funding systems. Some organizations that HILSC interviewed did not fully trust the confidentiality of the American Red Cross’ Coordinated Assistance Network (CAN) and therefore chose not to participate in this entry point to DCM. If not for grassroots organizations that either emerged from Harvey response or adopted a response role, many immigrants would not have received DCM services. These small, trusted organizations are made up of and for the people they serve. Despite their unique role in capturing many disaster victims who otherwise fell through the gaps, their size and lack of networks kept them from receiving adequate funding to serve their clientele. Funders providing adequate grants to these agencies will make it possible to reach elusive vulnerable populations following future disasters.
    3. Train case managers to identify legal issues after a disaster and provide a referral process to legal service providers to increase efficiency and successfully close more cases. Legal service providers have expertise in many of the issues that arise during and after a disaster. For example, it is standard for legal services organizations to help clients replace paperwork or clear property titles so they can apply for assistance. Leveraging the expertise of legal services providers can expedite the case management process and free case workers to focus on other aspects of their clients’ needs so they can close cases more quickly.

      4. 89 “Report Offers Findings and Recommendations to Improve Disaster Preparedness and Response for Future Events,” Texas Hospital Association.
      Disaster Phase
      Preparedness
      Response
      Recovery
      Level
      Nonprofit
      Approach
      Policy
      Theme

      Accessible resources
      Cultural competence
    Back to top

  • 25) Legal Services

    RECOMMENDATION: Invest in increasing the capacity of civil and immigration legal services, and support coordination with disaster case managers to ensure that legal needs are met, and case management is more efficient.

    PROPOSED IMPLEMENTERS: Funders

    The number of legal issues post-disaster is significant [Appendix I]. Most disaster-response organizations are unaware of both the legal rights and issues faced by disaster survivors and the particular needs of low-income communities and immigrants. Legal aid lawyers are deeply networked in low-income communities and have experience creating access for people who face barriers to services and information.90 Integrating legal aid and immigration lawyers into the long-term recovery system will require an investment to ensure that an adequate number of lawyers are available to meet the demand.

    After a disaster, legal needs build up on one another. As one HILSC interviewee notes, if a disaster victim didn’t have insurance they may look to Federal Emergency Management Agency (FEMA), but FEMA won’t cover the full cost of reconstructing a damaged home. To make dollars stretch a disaster victim may hire unbonded/licensed and perhaps unscrupulous contractors, which can compound issues.

    The Hurricane Harvey Relief Fund granted $4.6 Million to Lone Star Legal Aid, Houston Volunteer Lawyers Program, Inc., Equal Justice Works, Disability Rights Texas, Boat People SOS, and the University of Houston Law Foundation to provide community outreach and free disaster legal services to Hurricane Harvey survivors to help them gain stability, recover and rebuild. The funding helped families gain access to FEMA funds, clear their titles and deeds to gain access to home repair services, overcome landlord- tenant issues and much more. HILSC was able to fund four additional immigration legal services providers as part of the Disaster Recovery Legal Corps to help immigrants impacted by Harvey get copies of lost immigration paperwork, re-open cases after missed appointments due to Harvey, and help undocumented immigrants gain legal status so they are less vulnerable for the next disaster.91

    90 Anthony Chase and William Jackson, Hurricane Harvey Relief Fund Evaluation and Lessons Learned, Hurricane Harvey Relief Fund, August 24, 2018, https://ghcf.org/wp-content/uploads/2018/08/Hurricane-Harvey-Relief-Fund-Evaluation-Findings-v3.pdf.
    91 “Disaster Task Force,” Legal Services Corporation.
    Disaster Phase
    Response
    Recovery
    Level
    County/City
    Nonprofit
    Approach
    Funding
    Theme

    Accessible resources
    Back to top

  • 26) Mental Health

    RECOMMENDATION: Identify and provide funding to organizations working with immigrants for social work staff and/or systems to support client mental health and wellness through individual or group support.

    PROPOSED IMPLEMENTERS: Funders

    During HILSC’s focus groups for developing the HAP and other projects conducted in summer of 2018, residents repeatedly became emotional and noted that the group offered them their first opportunity to talk about how Hurricane Harvey impacted them and their families. Facilitators and the other participants were profusely thanked for the opportunity.

    Research found that while about three in ten impacted residents reported declines in their own mental health as a result of Harvey, just 8% of affected residents say they or someone in their household has received counseling or mental health services since the storm. Another survey suggested that mental health help after Harvey has been slow to come to those most in need.92

    Mental health emerged as a prominent need in both research specific to Harvey and more broadly in relation to disasters’ effects on immigrant populations. In recognition of this, the Hurricane Harvey Relief Fund granted $7.6 Million to Texas Children’s Hospital Baylor College of Medicine and the University of Texas Foundation/UTHealth to embed behavioral health into primary care across Harris County. This systems-level change expands access to and impact of behavioral health services.93 Similar funding must support existing social work staff, who have the appropriate skills needed to facilitate support groups at organizations of all sizes and across disciplines.

    92 Liz Hamel, Bryan Wu, Mollyann Brodie, Shao-Chee Sim and Elena Marks, One Year After the Storm: Texas Gulf Coast Residents’ Views and Experiences with Hurricane Harvey Recovery, The Kaiser Family Foundation and the Episcopal Health Foundation, August 2018, http://www.episcopalhealth.org/files/8115/3495/5619/EHFKFF_Hurricane_Harvey_anniversary_survey_report.pdf.
    93 Anthony Chase, Hurricane Harvey Relief Fund Evaluation and Lessons Learned.
    Disaster Phase
    Preparedness
    Response
    Recovery
    Level
    Nonprofit
    Approach
    Funding
    Theme

    Accessible Resources
    Cultural competence
    Back to top

  • 27) Legal Aid at Shelters

    RECOMMENDATION: Develop a Memorandum of Understanding with Lone Star Legal Aid, Houston Volunteer Lawyers, and HILSC to coordinate immigration and civil legal aid at major shelters and in response to case manager referrals to ensure availability of accurate, timely, and actionable information and improve access to resources.

    PROPOSED IMPLEMENTERS: Texas State Bar, Lone Star Legal Aid, Houston Volunteer Lawyers and HILSC

    Pre-existing agreements enable the presence of service providers at emergency shelters, and comprehensive disaster response plans codify the roles and responsibilities of each participating organization. Lone Star Legal Aid currently has such an agreement, as they have expertise in disaster response. Houston Volunteer Lawyers has a broad database of lawyers to call on, and HILSC partners have immigration expertise. Based on the experience during Harvey, the three organizations together can ensure comprehensive legal services for disaster victims at emergency shelters.

    Natural disasters have a disproportionate impact on low-income people, who often face daunting legal issues in the aftermath of a disaster. Survivors often need help obtaining copies of important documents such as birth certificates, driver’s licenses, and Social Security cards to apply for or restore benefits and support. Low-income and other vulnerable people who need housing after an emergency are more susceptible to scams and price-gouging.94 Disasters also increase needs in the core areas of practice for legal aid, such as public benefits, domestic violence prevention, consumer law, and fraud prevention95 [Appendix I]. The trifecta of Lone Star Legal Aid, Houston Volunteer Lawyers, and HILSC can help meet these needs.

    94 Danny Vinik, “‘People Just Give Up’: Low-Income Hurricane Victims Slam Federal Relief Programs,” Politico, May 29, 2018, https://www.politico.com/story/2018/05/29/houston-hurricane-harvey-fema-597912.
    95 “Legal Services Corporation’s Disaster Task Force to Hold First Field Hearing,” Legal Services Corporation, November 29, 2018, https://www.lsc.gov/media-center/press-releases/2018/legal-services-corporations-disaster-task-force-hold-first-field.
    Disaster Phase
    Preparedness
    Response
    Level
    Nonprofit
    Approach
    Program/ Operations
    Theme

    Accessible resources
    Inclusive communication
    Back to top

  • 28) Legal Issue Summaries

    RECOMMENDATION: Be a source of relevant and timely legal issue summaries to increase accurate, timely, and actionable information for immigrant legal service providers.

    PROPOSED IMPLEMENTERS: HILSC members and partners

    Many immigrant legal service organizations were not prepared to field the common questions clients posed in response to Harvey. HILSC members and partners relied heavily on the HILSC network to answer immigrant-specific legal and social service questions that emerged. HILSC created an FAQ [Appendix D] to capture common questions and their answers, including:

    • What can I do if I’ve lost all of my paperwork?
    • When will the immigration courts/USCIS/ICE reopen?
    • How can I find out if my appointment will be rescheduled?
    • Will accepting disaster relief affect my application for permanent residence or for a visa?
    • I had to move. How do I change my address with immigration?
    • I have an ankle monitor but have not been able to charge it – what should I do?

    In addition to answering these questions, the FAQ provided updates on Texas Senate Bill 4 and Deferred Action for Childhood Arrivals. The FAQ created during Harvey will serve as a template for future disasters, and HILSC will verify and update answers specific to any given disaster before distributing to first responders and other service providers.

    Disaster Phase
    Response
    Level
    Nonprofit
    Approach
    Program/ Operations
    Theme

    Inclusive communication
    Back to top

  • 29) Potential Litigation

    RECOMMENDATION: Identify potential litigation needs, informed by HILSC partners, to increase access to FEMA and other response and recovery assistance and improve outcomes for low-income immigrants.

    PROPOSED IMPLEMENTERS: HILSC members and partners

    HAP interviews surfaced repeated examples of Federal Emergency Management Agency applications denials for people who perhaps should have been eligible, especially for applications filed on behalf of a qualified household member. Denials are common, but many people do not know that they should appeal or how to do so (see Recommendation #2). Given the number of clients among the HILSC network, HILSC is well positioned to collect stories about denials and identify problematic trends that occur as families begin to rebuild. Trend data may prove to be a powerful advocacy tool to improve the overall responsiveness of government agencies.

    Disaster Phase
    Recovery
    Level
    Nonprofit
    Approach
    Program/ Operations
    Theme

    Accessible resources
    Back to top

  • 30) Representation to Media

    RECOMMENDATION: Represent and connect organizations providing immigrant legal services with local and national media to increase the accurate and timely dissemination of actionable information.

    PROPOSED IMPLEMENTERS: HILSC members and partners

    During Hurricane Harvey, inaccurate and conflicting information was abundant. Even while Houston Mayor Sylvester Turner was announcing all were welcome at shelters, photos of a Department of Homeland Security truck outside the George R. Brown Convention Center were shared on social media warning immigrants without documentation to stay away. The news media also disseminated conflicting information in an effort to get stories out quickly. HILSC responded by matching media requests with the appropriate partners in our broad network who could speak to any number of specific issues and share information pertaining to immigrant resources and needs.

    Disaster Phase
    Response
    Recovery
    Level
    Nonprofit
    Approach
    Program/ Operations
    Theme

    Inclusive communication
    Back to top

  • 31) Representation in Planning

    RECOMMENDATION: Represent immigrant interests at emergency planning and funding meetings to inform processes with best practices to serve immigrants to ensure accessible resources.

    PROPOSED IMPLEMENTERS: HILSC members and partners

    Despite disaster organizations policies and practices to serve undocumented immigrants, immigrant service providers are not confident in the confidentiality and safety of existing recovery systems for immigrants and therefore forego assistance fearing that the information may be misused. This level of diligence has earned these advocates their clients’ trust. Despite intentional policies to reach immigrants with private funding, many agencies that received grants to serve immigrants do not take a culturally-competent approach or have the existing trusted relationships required to serve this population.

    Recovery data clearly demonstrates this. Immigrants whose homes were damaged by Harvey were less likely to have applied for disaster assistance than U.S. born citizens (40% versus 64%). A full 46% of immigrants whose homes were damaged said they were worried that if they tried to get help in recovering, doing so would draw attention to the immigration status of themselves or a family member.96

    Immigrant clients trust HILSC members and partners, proven by the surge of client questions posed on the HILSC listserv during and after Harvey. HILSC and our partners have developed the Immigrant Accessibility Index [Appendix F], a self-assessment tool to assist organizations in identifying unintentional barriers to serving immigrants. The tool has been piloted by HILSC members and partners and is being used in organizations and agencies in Harris County. Questions from the tool can be applied to grant applications to help identify trusted agencies.

    It is essential that immigrant service providers be included in preparedness, response, and recovery conversations in order to advocate for systems that help their clients access the resources they are eligible for, while protecting their safety and security.

    96 Bryan Wu, Hurricane Harvey: The Experience of Immigrants Living on the Texas Gulf Coast.
    Disaster Phase
    Preparedness
    Response
    Recovery
    Level
    Nonprofit
    Approach
    Policy
    Funding
    Theme

    Accessible resources
    Back to top

  • 32) Continuation of Operations Plan (COOP) Development

    RECOMMENDATION: Create a Continuation of Operations Plan (COOP) to ensure that expert, trusted agencies have an emergency management plan in place and are therefore available for response and recovery.

    PROPOSED IMPLEMENTERS: Immigrant-serving organizations

    Immigrant-serving organizations have earned the trust of their clients, and during Harvey immigrants turned to these organizations as reliable sources of information and safe services. These organizations respond to client crises on a daily basis, but many have not created an emergency management plan for their own agencies. Given their unique position to serve immigrants, HILSC partners should develop a Continuity of Operations Plan (COOP). COOP is an effort to ensure the continued performance of critical business functions during a wide range of potential emergencies. The benefits of crafting a COOP include the ability to: anticipate events and necessary response actions, improve performance through the identification of agency essential functions that must be supported in an emergency, and improve communication to support essential functions throughout the agency.

    FEMA has several templates that can be followed, and the City of Houston Office of Emergency Management provides training.97

    97 Non-Federal Continuity Plan Templates, Federal Emergency Management Agency, fema.gov/media-library/assets/documents/170041.
    Disaster Phase
    Preparedness
    Level
    Nonprofit
    Approach
    Policy
    Theme

    Accessible resources
    Back to top

  • 33) Cash Assistance

    RECOMMENDATION: Raise funds for financial assistance to immigrants whose needs were created or worsened by a disaster, and disperse those funds to vetted organizations serving immigrants regardless of status.

    PROPOSED IMPLEMENTERS: Funders

    With almost half the foreign-born population in the Houston region living below 200% of the federal poverty level, it is clear that many immigrants in the region live on the economic margins. Disasters worsen their already precarious situations. Further, many immigrants without documentation are ineligible for publicly funded assistance, or opt not to apply to decrease the risk of exposing a loved one to potential deportation. Recognizing the limitation of public money, donors of private funds understood the need for cash assistance to immigrant families. While many organizations officially include undocumented immigrants within their eligibility, reaching this population requires trusted pre-existing relationships. During Harvey, HILSC received private foundation dollars and distributed them to trusted immigrant-serving organizations to redistribute directly to clients. HILSC will play this role in the next disaster, as needed.

    Disaster Phase
    Recovery
    Level
    Nonprofit
    Approach
    Funding
    Theme

    Accessible resources
    Back to top

  • 34) Emergency Preparedness

    RECOMMENDATION: Provide emergency preparedness training and kits to immigrants in order to increase knowledge and preparedness of immigrants, enable a more efficient recovery, and build resilience.

    PROPOSED IMPLEMENTERS: Church World Service and HILSC members and partners

    Emergency preparedness is rarely a priority until a pending disaster looms, at which point store shelves are thoughtlessly depleted. Research has found that racial and ethnic minorities, including immigrants, are less likely to have had disaster education opportunities and to be involved in hazard preparedness, such as stockpiling emergency supplies and/or purchasing insurance.98 Further, preparedness materials are usually available only to those who seek them out, and accessibility is often limited by both language and literacy levels (see Recommendation #11).

    Respondents to a 2018 survey named housing, financial help, and preparation for future storms as top priorities for additional recovery resources. Despite recognizing the value of preparation, about half of those surveyed said they have not taken steps to prepare for future hurricanes.99 Few participants in HILSC’s immigrant focus group had made any preparations for future storms, as they still were struggling to recover from Harvey almost a year later. Preparedness workshops must target low-income immigrants, who are among the most vulnerable to disasters but least likely to receive assistance.

    98 “Addressing the Needs of Immigrants in Response to Natural and Human-Made Disasters in the United States,” American Public Health Association.
    99 Liz Hamel, One Year After the Storm: Texas Gulf Coast Residents’ Views and Experiences with Hurricane Harvey Recovery.
    Disaster Phase
    Preparedness
    Level
    Nonprofit
    Approach
    Program/ Operations
    Theme

    Accessible resources
    Back to top

Please share your successes as we progress together.

E-MAIL US