17.

The Obstacles

What is keeping these people from becoming citizens?

People are not invited into the process nor is the process inviting. We believe this situation results from policy drift and is not by design. The following obstacles limit naturalization potential:

• intimidation that stems from a common negative perception of the INS

Previous immigrant groups were assisted by "mediating institutions,"
such as political organizations, unions, civic organizations, and
churches. A greater collaborative effort existed between the INS and
these institutions, and potential citizens were wooed into the
"Americanization" process. In contemporary times, however, the INS
is seen largely as an enforcement agency and in the experience of these
permanent residents, something to be feared. Consequently few seek
the assistance of the INS, although many desire citizenship.

• administrative delays at INS

In our experience application processing through the INS can take up
to a year. This delay is unnecessary. The current mechanism cannot
adequately process the numbers of permanent residents that become
eligible for citizenship each year. The perception of the service arm of
the INS as an enforcement agency is supported by budget allocations
toward naturalization. Currently the INS commits only 10% of its'
annual budget to naturalization. Consequently, those that overcome
fears of the INS and seek citizenship are thwarted at the administrative
level.

The Chicago Model

The Midwest Regional Office of the INS, under the direction of Mr. A.D. Moyer, has developed an innovative strategy that challenges these issues.

The current outreach program for naturalization in Chicago has effectively changed the INS' image in the eyes of many permanent residents. The following points are key to its success.

• "Linea Abierta," the popular show on the leading Hispanic station
Channel 44, was developed by Mr. Moyer and Ms. Connie Lara to
provide information, education and depolarization on issues of
naturalization.

17.

• A community-based naturalization process developed in
collaboration with community organizations like UNO, allows
applicants to complete the application process and take their interviews
at a local neighborhood or community institution. This model
replicates the collaborative relationship among mediating institutions
that has previously proven effective in bringing thousands of
immigrants into the citizenship process efficiently.

This Chicago Model is important to any policy adjustment concerning naturalization because it demonstrates the success a partnership between these mediating institutions and the INS can have. Churches in particular have played a key role in the success of the Chicago Model. Churches have devoted much time, energy, and human resources in support of this program. Their involvement further underscores the level of community interest in naturalizing these large numbers of permanent residents.

The Model is also significant because it has uncovered new mediating institutions, like banks and other financial institutions, who have a keen interest in assisting new citizens. Fannie Mae, which has pioneered the "New Americans Initiative" as part of its Trillion Dollar Initiative, has also demonstrated participatory interest. Finally, the success of this model has spurred the Mayor of Chicago to establish a municipal Naturalization Commission to facilitate this process as well.

Recommendations

To make these solutions complete and comprehensive, my recommendations are as follows:

• Increase resources allocated to naturalization, in terms of personnel
and updated equipment.

Replicate the Chicago Model in other central cities. Assist local INS offices in working with local community organizations to recreate networks of mediating institutions. The Industrial Areas Foundation (IAF) in Los Angeles and Texas already has extensive church networks in place to carry out this type of campaign.

• Emphasize the urgency of a nationwide naturalization effort in order to take advantage of the Alien Registration Card renewal deadline. Other ideas include:

• Instituting electronic application filing, such as the IRS has recently
implemented.

SOURCE: LAPS run, February 1992, INS Statistics Division.

Several key people are aware of the opportunity that this represents. They include Commissioner Doris Meissner, A.D. Moyer, Fannie Mae's Jim Johnson, Chicago's Mayor Richard M. Daley, key members from the LAF, Channel 44 General Manager José Lamas and from UNO, myself.

A meeting with these individuals, either together in a group or separately, to discuss these suggestions further would prove fruitful. I believe that these policy adjustments are feasible and worthwhile.

You have asked us for information concerning the possibility of the President writing letters to newly naturalized citizens. This proposal raises several operational and policy issues which are discussed briefly below. I understand that discussions on this matter are still in a preliminary stage, and, accordingly, this memo does not attempt to explore exhaustively all of the legal and policy implications such a decision would raise.

Current Practice

Newly naturalized citizens, in most instances, already receive a letter from President Clinton addressed "Dear Fellow American." (See copy attached.) These letters have been handed out to new citizens by INS at naturalization ceremonies around the country for a number of years, although there is usually a gap when a new administration takes office until the new president's letter is signed and distributed to INS offices.

Upon request, INS also prepares individualized letters from the President to newly naturalized citizens. These requests are usually forwarded to INS from the White House Agency Liaison Office.

Logistics

In fiscal year 1994, over 500,000 people naturalized, and the number will be closer to 600,000 in fiscal year 1995. Projections for fiscal years 1996 and 1997 continue to rise. Contacting all of these people would require a substantial investment of resources.

At present, INS does not have a program to generate a master list of names and addresses of newly naturalized citizens. Approximately 70 percent of the individuals naturalized have their name and address captured in an automated system (NACS), which can be accessed both by headquarters and field offices. The other 30 percent are not part of an automated system, and their names and addresses are available only through paper records in INS field offices. Some INS offices where records are automated are experiencing significant time lags between the date of naturalization and the availability of names and addresses.

Potential Problems

A proposal for INS to forward the names and addresses of newly naturalized citizens to