The Immigrant Exclusion from Social Programs Index (IESPI)
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United States

(Data collection by Skylar Banks, Camila Rivas-Garrido, and Edward Koning. When referring to this page, please use the following citation: Koning, E.A., Banks, S. & Rivas-Garrido, C. (2024). The IESPI Database – United States country report. University of Guelph, www.iespi.ca/united-states/.)

Tax-paid pensions

TP1AResidence requirement for complete universal tax-paid pension
1990-2023-8 (no universal pension)

There is no universal pension in the United States. The only federal tax-paid pension benefit is the means-tested Supplemental Security Income (Borjas & Hilton 1996) (see TP2).

TP1BResidence requirement for access to pro-rated portion of universal tax-paid pension
1990-2023-8 (no universal pension)

There is no universal pension in the United States.

TP2Residence requirement, means-tested supplement
1990-19960 (no residence requirement)
1997-202328 (tied to permit requiring 5 years of residence)

Before a large-scale welfare reform in 1996, the Supplemental Security Income was available to immigrants without any residence requirements. Since then, however, the benefit is exclusively available to citizens, and access to citizenship usually requires five years of residence (Fix & Passel 2002, Singer 2004, United States Government n.d.-a, Zimmerman & Tumlin 1999).

TP3Status requirement for access to tax-paid pension
1990-199680 (citizens and permanent residents)
1997-2023100 (only citizens)

Before 1996, all permanent residents were eligible for SSI. The reform in that year restricted the benefit to citizens, with only minimal exceptions (for military personnel, refugees, very elderly recipients, and some long-term residents who were in the country before the reform took place) (Borjas 2002, Potochnick 2016, Sainsbury 2006, Singer 2004, United States Government n.d.-a, Zimmerman & Tumlin 1999).

TP4Export possibilities, universal tax-paid pension
1990-2023-8 (no universal pension)

There is no universal pension in the United States.

Health care

HC1Residence requirements
1990-19960 (no waiting period)
1997-2023100 (tied to permit requiring 5 years of residence)

Before the 1996 welfare reform, all legal permanent residents had the same access to federal and state medical benefits as native-born citizens, without any residence requirements. Since then, however, all newcomers have been barred from federal means-tested health insurance programs unless they have acquired US citizenship, which normally requires at least five years in the country (Bronchetti 2014, Kehrberg et al. 2022, Ku & Matani 2001, Nam 2012, Ross 2002, Zimmermann & Tumlin 1999).

HC2Status requirements
1990-199680 (citizens and permanent residents)
1997-2023100 (citizens only)

Health care benefits were available to citizens and permanent residents until the reform of 1996, after which they have only been available to citizens (with some exceptions, most notably refugees who have not yet naturalized) (Kehrberg et al. 2022, Ku & Matani 2001, Nam & Kim 2012, Olsen 2002).

HC3APublic health care available to asylum seekers
1990-201283 (emergency care and urgent care)
2013-202367 (necessary care, with user fees)

The Emergency and Medical Treatment and Labor Act of 1986 (EMTALA) requires hospitals that receive Medicare funds to provide emergency care to any individual that requires it, regardless of immigration status or financial means. This includes asylum seekers. Since the passing of the Affordable Care Act in 2012, asylum seekers can obtain subsidized health care insurance (but not federal benefits Medicaid and SCHIP) through the Health Insurance Marketplace (ACP n.d., Greenspon 2008, Office of Refugee Resettlement 2013, 2019).

HC3BPublic health care available to undocumented migrants
1990-202333 (emergency care, treatment of communicable diseases, perinatal care)

As a result of the EMTALA (Emergency Medical Treatment and Labor Act) of 1986, undocumented migrants have the right to receive emergency care, including treatment of communicable diseases and perinatal care (Greenspon 2008). 

HC4AAccessibility services, translation services
1990-202367 (translation services occasionally available in some languages)

There are few federal programs to ensure the accessibility of health care services for people with low proficiency in English. Even though all health care providers who receive federal funding are legally obliged to provide meaningful access to non-English-speaking individuals, there is much flexibility in the state-level interpretation of this requirement, and in many states it amounts to little more than the availability of translated documents (Grubbs et al. 2006, Ku & Matani 2001, Teitelbaum et al. 2012, United States Department of Health and Human Services n.d.).

HC4BAccessibility services, other attempts to increase uptake
1990-1999100 (no services)
2000-202350 (non-mandatory diversity training available)

Since at least 1999, public health care agencies have offered (non-mandatory) training for the delivery of culturally sensitive health care services. Since then, the importance of cultural competence in the health care sector has been stressed repeatedly by health care authorities (AMA 1999, Anderson et al. 2003, Pan American Health Organization 2000, Sondik 1999).

Contributory pension benefit

CP1Minimum contribution years
1990-202345-48 (10 years, 1.5 years for migrants from bilateral agreement countries)

Access to the contributory pension benefit (Old Age, Survivors, and Disability Insurance; OASI) requires a minimum work history of at least 10 years. Migrants from countries that have signed relevant bilateral agreements with the United States can count work history in their country of origin in case they have made at least six quarters (or 1.5 years) of contributions in the United States. These countries are Belgium, Canada, France, Germany, Italy, Netherlands, Norway, Portugal, Spain, Sweden, Trinidad and Tobago, and United Kingdom since at least 1990, Austria since 1991, Finland since 1992, Ireland and Luxembourg since 1993, Greece since 1994, Chile and Korea since 2001, Australia since 2002, Japan since 2005, Denmark since 2008, and Czech Republic and Poland since 2009 (Borjas 2011, Office of Retirement and Disability Policy 2013, SSA n.d.). Scores on this indicator have been weighted to account for the proportion of migrants who can benefit from totalization agreements using data on the inflow of foreign-born by country of birth from the OECD Migration Database.

CP2Status requirements
1990-202380 (citizens, permanent residents, privileged nationals)

Considering the lengthy work history requirements, in practice only citizens, permanent residents, and migrants who can benefit from totalization agreements are able to access the contributory pension benefit in the United States.

CP3Export possibilities
1990-202324-25 (without restrictions to some, impossible to others, with additional residence or status requirements to most countries)

The rules regarding the export of the contributory pension benefit vary by country. To a small number of countries (Azerbaijan, Belarus, Cuba, Kazakhstan, Kyrgyzstan, Moldova, Tajikistan, Turkmenistan, Ukraine, and Uzbekistan), export is impossible. To others (Belgium, Canada, France, Germany, Israel, Italy, Norway, Portugal, Spain, Sweden, Switzerland, and United Kingdom since at least 1990, Netherlands since 1991, Austria since 1992, Finland since 1993, Ireland and Luxembourg since 1994, Greece since 2001, Korea since 2005, Japan since 2006, Czech Republic since 2009, Poland since 2010, Slovak Republic since 2015, Hungary since 2017, Brazil and Uruguay since 2019, and Iceland and Slovenia since 2021), export is unrestricted. For all other countries, export is possible but only if the applicant satisfies additional requirements, such as citizenship or prolonged residence in the United States (SSA 2018). Scores on this indicator have been weighted to account for these differentiated rules using data from the OECD Migration Database on the stock of foreign-born by country of birth.

Contributory unemployment benefits

CU1Minimum contribution weeks
1990-202350 (52 weeks)

Contributory unemployment benefits (also known as unemployment insurance) in the United States are the responsibility of state governments. For a long time, all states required one year of work history before applicants were eligible. In recent years, there have been some small deviations (the minimum contribution requirement is now only 3 quarters or 9 months in Massachusetts, New Jersey, and Vermont; and 5 quarters or 15 months in Minnesota and Texas) (United States Department of Labor n.d.-a).

CU2Status requirements
1990-202375 (citizens and permanent residents)

In practice, unemployment insurance in the United States is only accessible by citizens and permanent residents. Migrants on a temporary permit either are ineligible to work altogether (e.g. asylum seekers and international students) or lose their right of residence when they fall unemployed (e.g. temporary workers) (United States Department of Labor n.d.-b, SSA 2003, 2015).

CU3Integration requirements
1990-20230 (no integration requirements)

There are no integration requirements associated with accessing contributory unemployment benefits nor with obtaining the necessary permits to qualify for them (United States Citizenship and Immigration Services n.d., United States Department of Labor n.d.-b).

CU4Export possibilities
1990-202398 (not possible, except to Canada)

Residence in the United States is a requirement for accessing unemployment benefits. The only exception is that the benefits can be claimed from Canada (Department of Labor 1974, Government of Canada n.d.). Scores on this indicator have been weighted to account for the proportion of immigrants from Canada using data on the stock of foreign-born by country of birth from the OECD Migration Database.

Housing benefits

HB1Residence requirements
1990-20230 (no residence requirements)

None of the housing benefits that are offered through the federal department of Housing and Urban Development come with any residence requirements. Newcomers are eligible as soon as they obtain the necessary status (see HB2) (Government Printing Office 1934, Office of the Federal Register 2000, United States Department of Housing and Urban Development n.d.).

HB2Status requirements
1990-202380 (citizens and permanent residents)

Housing benefits are only available to citizens and permanent residents. The only exception is that refugees, who usually only become eligible for permanent residency a year after they settle in the country, can access housing benefits as soon as they are recognized as refugees (Congressional Research Service 2023, Government Printing Office 1934, Office of the Federal Register 2000, United States Department of Housing and Urban Development n.d.).

HB3Integration requirements
1990-20230 (no integration requirements)

There are no integration requirements associated with accessing federal housing benefits nor with obtaining the necessary permits to qualify for them (Congressional Research Service 2014, 2023, United States Citizenship and Immigration Services n.d.).

HB4Housing services for successful asylum claimants
1990-2024100 (no targeted services available)

While resettled refugees are eligible for housing support, there is no such support from states or the federal government for successful asylum claimants. The only available support for this group comes from nonprofit organizations (Mercy Housing n.d., Olson 2006).

Social assistance

SA1Residence requirements
1990-19960 (no residence requirement)
1997-202348 (5 years)

Before the welfare reform of 1996, only some categories of migrants (in particular sponsored family migrants) faced a residence requirement before being able to access social assistance (called Aid to Families with Dependent Children at the time). The welfare reform, however, imposed a five-year residence requirement on social assistance (since then called Temporary Assistance for Needy Families) for all newcomers (Butz & Kehrberg 2015, Fix & Zimmerman 1994, Kehrberg et al. 2022, Olsen 2002, Page & Larner 1997, Singer 2004).

SA2Status requirements
1990-199660 (citizens, permanent residents, and small number of temporary migrants)
1997-202380 (citizens and permanent residents)

The 1996 welfare reform restricted access to citizens and (long-term) permanent residents. Before then, some categories of temporary migrants (e.g. conditional entrants, aliens granted suspension of deportation, and asylees) were eligible for social assistance (Borjas 2003, Fix & Zimmerman 1994, Nam & Kim 2012, Page & Larner 1997, Zimmerman & Tumlin 1999).

SA3Consequences of welfare uptake
1990-19990 (no consequences)
2000-202286 (loss of right of residence for all temporary migrants)
202371 (loss of right of residence for some but not all temporary migrants)

Since the introduction of the ‘public charge’ clause in the Immigration and Nationality Act in 1999, welfare receipt can be invoked as grounds for deportation, denied re-entry in the country, or refusal of permanent residence status. In 2022, the Biden administration introduced a large number of conditions under which noncitizens are exempt from the public charge ground of inadmissibility (National Immigration Law Center 2014, United States Citizenship and Immigration Services 2023, United States Department of Justice 1999).

SA4Integration requirements
1990-20230 (no integration requirements)

There are no integration requirements associated with accessing social assistance or obtaining the necessary permit to qualify for it. Many states require recipients to undertake efforts to improve their standing in the labor market, but immigrants do not face more of such requirements than native-born Americans (United States Citizenship and Immigration Services n.d.).

Active labor market policies

AL1Residence requirements
1990-2023-8 (no active labor market policies)     

While a flurry of active employment programs have been attempted, by and large the United States have never developed a regime of active labor market policy comparable to those of the other countries under investigation. Indeed, in cross-national comparisons of active labor market policies, the country consistently appears at the very bottom (Bown & Freund 2019, Bradley & Stephens 2007, Crépon & Van den Berg 2016).

AL2Status requirements
1990-2023-8 (no active labor market policies)     

See above (AL1).

AL3AAvailability of language programs
1990-199871 (available for vulnerable groups only)
1999-202357 (available to most migrants, but offered unevenly across the country)

The United States has long offered English immigrant-targeted language programs. They used to be exclusively available to refugees but since 1999 have also become accessible by other migrants. There are, however, widespread concerns about their quality and availability, especially in some parts of the country (Adess et al. 2009, Bloemraad & De Graauw 2012; Bruno 2011; Fix & Zimmerman 1994).

AL3BPublic funding of language programs
1990-202320 (fully funded for some, nominal fees for others)

Some refugee-targeted language programs in the country are offered free of charge. Most other programs, however, require participants to pay nominal fees (Adess et al. 2009, Bloemraad & De Graauw 2012; Bruno 2011; Fix & Zimmerman 1994).

AL4AAvailability of employment assistance
1990-2023100 (available to select groups, but offered unevenly across the country)

Since the 1980s, there have been federal programs aimed at improving the employment prospects of refugees. Most of these programs, however, are offered inconsistently across the country, leading some observers to speak of a ‘lottery effect’, by which some refugees enjoy considerable assistance but others nothing at all (Adess et al. 2009, Bruno 2011, Leimsidor 1982, Mathema 2018).  

AL4BNature of employment assistance
1990-202320 (integration training)

Refugee-targeted employment assistance can consist of intensive services aimed at achieving early employment, including employment trajectory plans that are tailored to the individual (Adess et al. 2009, Bruno 2011, United States Government n.d.-b).

Works cited

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