ESCAPEE PROGRAM PROGRESS REPORT

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP80-01065A000200040003-9
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 96
• Document Creation Date: December 12, 2016
• Document Release Date: July 8, 2002
• Sequence Number: 3
• Content Type: MEMO

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MO EN OPERATIONS ADMINISTRATION
SECRET
Washington 25, D.C.
OFFICE FOR REFUGEES, MIGRATION, AND
VOLUNTARY ASSISTANCE
MEMORANDUM FOR: ThE Executive Officer, Operating Coordinating Board
THRU . FOA/CMA - General Porter
SUBJECT . Escapee Program Progress Report
There are transmitted herewith 55 copies of a report on
actions taken pursuant to the recommendations of the OCB Report on the
Examination of the Effectiveness of the Escapee Program in Meeting
Objectives under NSC 86/1, accepted by the Board on February 17, 1954.
Dorothy D. Houghton
Assistant Director
55 copies Escapee Program
Progress Report w/ att.
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OFFICE FOR REFUGEES MIGRATION AND VOLUNTARY ASSISTANCE
UNITED STATES ESCAPEE PROGRAM
REPORT
TO
OPERATIONS COORDINATING BOARD
AUGUST 17. 1954
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FOREIGN OPERATIONS ADMINISTRATION
UNITED STATES ESCAPEE PROGRAM
REPORT TO THE OPERATIONS O?R INATING BOARD
TABLE OF CONTENTS
I. Introduction
II. Actions Taken Pr?suant to OCB Objectives and Recommendations
A. Px?oeress Toward Red~ZCtion of September 3300 1953 Caseload 7
1.
Identification and Categorization of Caseload
2.
Programs Initiated on Behalf of Unresettleable Group
3.
Development of Special Overseas Resettlement Activities
4.
Discontinuance of Registration of Previous Arrivals
in Certain Categories
5.
Relationships with other Organizations
14
a. Intergovernmental Committee for European Migration
14
b. Refugee Relief Act
15
c. Other International and Intergovernmental
Organizations
16
d. Voluntary Agencies
1S
6. Outlook of Resettlement and Integration Programs
B. &ogress Toward Development of Special Support Values 21
for Phase g'Bll Progl^am
1. Cooperation between USEP and Other U. S. Government 21
Agencies
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C.
a e Generally
b.. Department of State
c. Department of Defense
d. Central Intelligence Agency
e. United States Information Agency and Other
Information Media
2. Advice to Other Agencies Concerning USEP Plans
and Progress
Progress Towax?~ Other Ob ect`ve
23
24
26
III.
N.
Rec
App
1. Yugoslavs
2. Greek Ethnics
3. Pre-1945 USSR Escapees
4. Activities in Areas Other Than Europe
ommendations
endices
A. Statistical &mmary of Program Progress During Period
(September 30, 1953 m June 309 1954)
Table 1. Reduction Effected in USEP Caseload of
September 30, 19539 as of June 30, 1954
Table 2. Disposition of Escapees Removed from
36
September 30, 19539 Caseloads as of
June 30, 1954
Table 3. Normal Resettlement Effected of
37
September 30, 19539 Caseload, as of June 309
1954
Table 4. Breakdown of "Otherwise Disposed" Reductions from
38
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Table 5. Comparative Breakdowns of September 30, 19539 39
Caseload by Date of Escape
Table 6. Estimated Breakdown by Reestablishment 40
Categories of September 30, 19539 Caseload
Remaining as of June 30, 1954
Table 7. Caseload Report for the Period September 30, 1953 41
to June 30, 19549 by Nationality or Category
Table 8. Caseload Report for the Period September 30, 1953 42
to June 30, 1954, by Asylum Area.
Table 9. Breakdown by Countries of Resettlement of all 43
Normal Resettlement Effected during Period
September 30, 1953 to June 309 1954
Table 10. Resettlement Effected with 3(c) Visas during
44
the Period September 309 1953 to June 30, 1954
Table 11. Registration and Reduction in Caseload of New
45
Category Escapees, as of June 30, 1954
B.
Other Appendices
46
A.
B.
Telegram, April 279 1954 - Gov. Stassen to FOA Mission
Chiefs - Priority to Escapee Resettlement
Statement ? April 1954 m Mrs. Houghton to ICEM - The
Escapee Program
46
C.
Letter ? January 28, 1954 m CFC to Voluntary. Agencies
Identification and Categorization of caseload
47
D.
Letter _ February 19 1954 ? CFC to Escapee Program
Divisions- Identification and Categorization of caseload
49
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E. Memorandum - April 209 1954 - OFC to All Escapee Program 51
Divisions - Target Date Plan for Reduction of USEP
caseload
F. Memorandum ? May 79 1954 - OFC to Escapee Program Divisions - 53
Preparation and Submission of Non-Institutional Resettlement
or Non-Institutional Integration Projects
G.
Table Departures to Latin America from NCWC and WCG
55
H.
Letter October 15, 1954 - OFC to Escapee Program
56
Divisions W Registration of Escapees under the RRAO
I.
State Circular Airgram (CA-524) - July 22, 1954 m to the
RRA Missions m Clarification of Two Year History Provision.,
RRA
59
J.
Memorandum of Conversation ? Mr, Rothlein and OFC
June 30, 1954 - USEP Cases under the RRA
61
K.
Letter ? OFC to General Liebel, January 29, 1954
Psychological Warfare Working Group
63
L.
Letter - Col, Pape to Mr, Knox, January 17, 1954 USEP
renovation of MIS reception center
65
M.
Escapee Program Expenditures for MIS, G?2, USFA
66
Na
Report ? July 159 1954 m EPD/Austria to OFC ?
Reception and Debriefing of Escapees in Austri
67
Oe
Letter ? RFE - Mr. Griffith to 0FC9 March 19, 1954 -
Referrals of Escapees to RFE
70
P.
Letter - VOA m Mr. Dishin to OFC - May 79 1954 ?
Referral of Escapees to VOA,
71
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Q.
Letter - February 19, 1954 - OFO to Country Unit Chiefs
List of Special Escapee Program Projects
72
R.
Letter ? June 15, 1954 - RFE9 Mr, Gieb to OFC, Mr. Fellman -
73
S.
T.
Recordings at Irgolstadt school
Statement ? The Escapee Program in the Middle East 74
Statement ? The Escapee Program in the Far East 76
U,
Table m Comparison of obligations of Escapee Program Funds 82
in Countries of First Asylum and Second Asylum
V.
Table August 139 1954 ? Status of Funds 83
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GLOSSARY
Re-establishment: the assimilation by resettlement or integration of escapees
into the political, social and economic life of the free world. Such assimila-
tion is the end objective of the Program?s assistance to escapees,
Io Resettlement.
a) Normal Resettlement reestablishment through assisted emigra-
tion from a country of asylum to another country which offers
normal opportunities for permanent settlement.
b) Special Resettlement. reestablishment in a country other than
the country of asylum, of escapees possessing limited resettle-
ment potential. Such placement may comprise either.
1) Institutional Re5e.t1_ement: provision of long-term or
permanent care in a recognized institution, or
Non Institutional Rene Clement: provision of financial
or other special assistance in the establishment of an
escapee and his family in the economic life of the country
concerned.
II. Integration: re-establishment, in the ~ountry of asylum, of escapees
possessing limited resettlement potential. Such placement may be
either:
a) Institutional Integration or b) NQnP1nsti_tutional Integration
in character, as these two terms are defined above.
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August 17, 1951
FOREIGN OPERATIONS ADMINISTRATION
UNITED STATES ESCAPEE PROGRAM
REPORT TO THE OPERATIONS COORDINATING BOARD
I. Summary
The Operations Coordinating Board accepted on February 17, 1954 a 'tReport
on the Examination of the Effectiveness of the Escapee Program in Meeting
Objectives Under NSC 86/i1t.
The report concluded that:
(a) The Phase A. Escapee Program had made a significant impact in reducing
the negative situation that existed in the countries of asylum at the time of the
adoption of NSC 86/i;
(b) The accumulated Phase A. caseload represented a negative factor in
realizing the objectives of NSC 86/1, and hindered the development of special
services required to support Phase B. activities;
(c) The Phase A. Escapee Program offered benefits to Phase Be programs of
other concerned agencies by providing propaganda material, information of
intelligence value, candidates for overt and covert operations, and various sup-
port activities such as,developing a more cooperative attitude in escapees during
debriefing and providing special handling for disposal cases referred from other
agencies.
The OCB report made specific recommendations and directed that in six months
from the date of the acceptance of the report, FOA/USEP should report to the OCB
concerning progress made toward carrying out the recommended course of action:
Following are the major recommendations made by the OCB, and actions taken
by USEP pursuant thereto-.
Recommendation i. The USEP caseload as of September 30, 1953, should be virtually
liquidated by December 31, 1955 without jeopardizing the
humanitarian and psychological purposes of the programs
Action Taken; A target date plan has been put into effect to bring about the
iqul a s.on of this caseload by December 31, 19550
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Category - by Date
Target Date
o scape
A)
Escaped in 1948 and 1949
(incl. USSRes in 1945 and after)
January 1, 1955
B)
Escaped in 1950 and 1951
July 1, 1955
C)
Escaped in 1952 and 1953 (to September 30)
December 31, 1955
As of June 30, 195)4, a total reduction of 6,012 had been effected in the
September 30, 1953 accumulated caseloads Of these 1,932 had been removed
through normal resettlement, 48 had been removed through special resettlement in
other countries, 832 had been removed through integration in countries of asylum,
and the remainder were removed otherwise
After the removal of 6,012 as of June 30, 195) there remained on hand 8,567
of the September 309 1953 accumulated caseload.
Recommendation 20 The caseload should be analyzed on an individual case basis so
as to identify those cases unlikely to qualify for resettlement.
Action Taken: The USEP caseload is being thoroughly screened in consultation
wIEH Tfie TRFticipating voluntary agencies to determine a solution for the case of
each escapee. The screening of the 1948/49 arrivals is expected to be completed
by the end of August. Escapees are classified for either normal resettlement,
institutional re-establishment or non-institutional re-establishment. Final figures
on these categories will be available upon completion of the screening. Based on
the preliminary results of the analysis of the 1948/)49 arrivals, however, it is
estimated that the 8,567 escapees remaining on June 30, 1954 from the September., 1953
caseload may be categorized as follows-,
Normal resettlement
59232
Institutional re-establishment
298
Non-institutional
re-establishment
39037
Recommendation 32 For cases identified as not qualifying for emigration., suitable
arrangements should be made for their local integration or
removal from the caseload as soon as possible.
Action Taken: Contracts have been concluded in the amount of $315,000 to provide
arrangements for difficult-to-resettle cases. Of the persons in the
non-institutional re-establishment category, it is estimated that not more than
1.500 will require special assistance from the Escapee Program. The remaining
1,500 may be expected to be eliminated from the caseload by December 31., 1955 by
reason of death, disappearance, or in most cases, by their assimilation into the
local economy., without other than normal expense to USEP.
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For cases determined to be qualified for resettlement, there
should be a continuing evaluation of progress toward com-
pleting action in such cases.
Action Taken: USEP divisions have instituted procedures to assure that the entire
case oa sa maintained under active scrutiny at all times. This is accomplished
by joint case-by-case analyses of agency caseloads; spot-checks and project evalu-
ation of all projeetse and by required reporting.
Recommendation 5: Registration of persons other than those currently escaping
should be discontinued except for those of special interest
to the psychological or intelligence agencies.
Action Taken: Registration of satellite escapees who arrived in the West between
aanuary ` 1771948 and March 319 1953 has been terminated as of July 19 l914
Recommendation 6: A sufficient time should be allowed to complete the regis-
tration of Yugoslavs, Ethnic Greeks and selected escapees in
the Far East.
Action Taken: Registration of Greek Ethnics, Yugoslavs and of pre-1945 Soviet
escapees, will be completed by December 31, 1954. The results of the
registration to date are as follows:
l/
Total Registered
Caseload still on Hand Nu
mber t
o June
AIM
June 9 Re
gis? er
Yugoslavs
5,294
3,858
6,545
Greek Ethnic 2047 29207
3,500
Pre-145 USSR
4s481
3,342
39490
129122
9,407
139535
o be
e est. )
As the activities of the program in the Far East are undertaken on a selected
project basis, there is no formal registration and no established caseload.
Recommendation 7? Efforts should be made to cause the participating voluntary
agencies to concentrate their efforts on bringing about a
substantial and rapid increase in the rate of resettlement,
including special development projects in the resettlement
countries, with a priority for action on the cases in coun-
tries of first asylum and requiring progress reports thereon
at frequent intervals.
eauction errectea through resettlement or otherwise disposed of - See Table
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Action Taken-, The participating agencies have been consulted fully in the
pIanii g- execution of the program, and the unclassified aspects of the OCB
recommendations were carefully explained to them after the issuance of the report.
Continuing emphasis is placed on project evaluation and reporting by the agencies
to assure compliance with the priorities and objectives of the program. Every
reasonable financial incentive has been supplied, while at the same time main-
taining the supplemental character of the program. Special projects have been
undertaken to search for resettlement opportunities and assurances, and further
provisions have been made for financing reception and resettlement expenses in
certain receiving countries. The response of the agencies has been generally
satisfactory. The priority attached to activities in countries of first asylum
is reflected in cumulative obligations in those areas in the amount of $59!97,1L76,
exclusive of transportation and the Asian programs, compared with $3.792, for
secondary asylum areas. (See Appendix U. Comparison of obligations of Escapee
Program funds in countries of first asylum and second asylum).
Recommendation 8: Obtain maximum benefits from the Intergovernmental Committee
for European Migration in terms of moving escapees to
countries of resettlement in preference to other migrants,
and making suitable arrangements to increase the volume of
resettlement opportunities available to escapees in receiv-
ing countries other than the United States.
Action Taken. The master resettlement contract with ICEM has been renewed. ICEM
has been he pful in securing the inclusion of escapees in mass movements, notably
those recently arranged from Trieste to Australia. USEP has intensified its
liaison with ICEM9 which has assured USEP that it will do everything possible con-
sistent with its mandate to increase the resettlement of escapees.
Recommendation 9a
In the resettlement of Escapees, secure the cooperation of
other international and intergovernmental organizations hav-
ing a concern in the problem of refugees and escapees, and en-
listing the support and assistance of individual nations di-
rectly or through such organizations.
Action Taken. T:EP has carefully coordinated its operations with the United
a alone igi Commissioner for Refugees, with particular reference to institutional
and special resettlement plans, and to activities in the Middle and Far East.
The 7th Ses,'ion of the Migration Committee provided an opportunity for the
Assistart Director of FOA for Refugees, Migration and Voluntary Assistance to pay
tribute to the work of ICEM in cooperation with USEP and to make a forceful plea
to the reoeiving nation- to assist in making further resettlement opportunities
available for escapees. First approaches to receiving governments on behalf of
escapee resettlement are made constantly through the voluntary agencies co-
operating with USEP in their dealings with resettlement missions in Europe, and
their visa search activities in Canada and Latin America.
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Recommendation ,102 Assure full utilization of resettlement opportunities offered
by the Refugee Relief Act of 1953 through the development
of a closer working relationship between Department of State
officials charged with that program and USEP?
Action Taken. Excellent cooperation and operational liaison has been established
BeTween T x and the Refugee Relief Program at the Washington and field levels.
Arrangements are in effect to make available security, health, labor And other
records on escapees to the Refugee Relief Act field staffs. USEP personnel were
detailed in some areas to assist the consulates in establishing the RRA program
in the field. USEP assurance search contracts with the voluntary agencies will
assist in providing an adequate flow of assurances for USEP cases. A highly
qualified expert in visa procedures has been employed by a voluntary agency in
Europe under a USEP contract to assist the participating agencies generally in
meeting the technical standards of the RRAO Washington staffs have cooperated
effectively in making special. arrangements for national interest cases, such as
the Kapus family. It must be recognized that the termination of Section 3(c) of
the Displaced Persons Act on June .30, 1954, and the very gradual build-up in the
issuance of RRA visas to escapees may be expected, despite the excellent co-
operative arrangements, to adversely affect the USEP resettlement rate in the com-
ing months. This situation will not only cut down the number of escapees coming
to the United States, but will also have the effect of decreasing movements to
other areas because few escapees are willing to accept resettlement to other
countries long as there is hope of a United States visa.
Recommendation U FQA/USEP should, with appropriate advice and assistance by
the several agencies at both the headquarters and field level,
develop special support values for the Phase B. program, and
should keep the several agencies informed in detail con-
cerning its plans and programs.
Action Taken: A coordinating committee has been established on USEP initiative
e uropean regional level to resolve operational problems in all matters re-
lating to psychological warfare including the Escapee Program. A USEP liaison
committee has been established in Washington for some time.
Consultation has been intensified at all levels between USEP and other
agencies., with USEP receiving advice and guidance and providing information and
specialized services as requested, although greater emphasis on this relationship
is necessary.
USEP activity provides support for the State Department in negotiations on
refugee policy matters and in the implementation of the Refugee Relief Act.
USEP has continued to provide support for the Defense Department in the operation
of MIS centers., the Alien Enlistment Program, Labor Service Units, and
specialized research projects. Services made available to CIA include escapee
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census information, priority reestablishment of special interest cases., and
special projects in connection with operational programso
Emphasis is placed on servicing USIA and RFE with exploitable information.
Special exploitation projects, such as the Freedom Flight and Kapus resettlement
are undertaken as the occasion demands. Steps have been taken to identify
successfully resettled escapees for exploitation. More detailed guidance from
other agencies as to their requirements, however, would be helpful.
Further details concerning the above points will be found in the following
sections of this report including the section on recommendations. The report also
covers certain program activities on which the OCB did not issue specific guidance
or recommendations such as the intensified activities undertaken qn behalf of
escapees in Southeast Asia and the Pacific Area, and projects on behalf of
selected refugees in the Middle East. No attempt has been made to address the
question of utilization of LEEP support values by agencies charged with the
administration of Phase B programs, since it was assumed that these matters will
be covered in the reports required to be submitted by those agencies.
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II. ACTIONS TAKEN PURSUANT TO OCB OBJECTIVES AND RECOMMENDATIONS
A.
Press 'Toward Reduction of September 0 19~~ Caseload
For the first one and one-half years of its existence the Escapee Program
concentrated on the successful re-establishment of its registrants through
normal resettlement, primarily overseas. Although it was recognized that a
portion of the caseload would ultimately fail to qualify for such normal resettle-
ment, it was decided to concentrate attention initially on the establishment
of proper procedures and channels and on operations which would effect the fullest
possible overseas resettlement. These normal. resettlement activities are still
being pressed vigorously and with greater intensity, However, it was realized
from the outset that despite strenuous program efforts in countries of immigra-
tion, certain persons would not qualify for resettlement and that after all
resettlement efforts had failed, other solutions would have to be found for
these cases.
Consequently, the Escapee Program budget for FY 1954, submitted in October
of 1952, requested funds for the development of projects and programs for local
integration in European countries in order to remove permanently from the caseload
the older, more difficult-to resettle escapees. It was recognized at that time
that such action would become essential if the Program were to be able to devote
attention to the more important new escapees.
In 1953, with more than 7,000 escapees successfully resettled overseas, it
became. apparent that expansion of activities to provide solutions through re-
establishment in Europe for persons disclosed to be unresettleable could be
undertaken along with the normal resettlement operations. Planning for this
group was initiated but a full program of activities in their behalf did not
become possible until December, 1953 when FY 1954 funds were made available
for the program. Since January,'1954, USEP has devoted special effort to the
development of re-establishment projects to benefit the un-resettleable escapees.
Immediately after the OCB's report the Deputy Assistant Director for Refugees,
Migration and Voluntary Assistance visited Europe and the Chief of the Escapee
Program visited escapee posts around the world in order to emphasize the importance
of an early reduction in the older escapee caseload and to devise procedures for
such a reduction. Following these visits, in a personal message to the FOA Mission
Chiefs, Mr. Harold Stassen. the Director of FOA, confirmed instructions given FOA
staff abroad and instructed FOA Mission Chiefs to take a personal interest in
seeintg that Mission resources were fully utilized in order to':promot speedy
resettlement (see Appendix A),
In April Mrs. Dorothy D. Houghton, the Assistant Director of FOA for Refugees,
Migration and Voluntary Assistance, devoted to the Escapee Program her address to
the representatives of the 30 nations assembled at Geneva for the conference of
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the Intergovernmental Committee for European Migration in order to enlist inter-
governmental support for escapee activities. (See Appendix B). In an appeal
for increased resettlement opportunities, she stated: "Most essential of all
the elements that are required for any successful migration or resettlement
program, of course, is a destination. I mention this most obvious component
only in order to express gratitude toward the member governments who have
opened their doors to these refugees and migrants, and to emphasize the con-
tinuing need for resettlement opportunities".
1. Identification and Categorization of Caseload
It was realized that the first step toward a reduction of the older caseload
would be its proper identification and classification. This could only be
accomplished with the full assistance and cooperation of the voluntary agencies.
Therefore, in January, 1954, USED had rer'uested the cooperating voluntary agencies
to categorize their caseload and classify every escapee as "resettleable,"
"institutional," or "difficult-to-resettle," and to submit re-establishment projects
which would provide permanent homes in institutions for the unresettleable group
and thus remove them from the USEP caseload. (See letter OFC to voluntary agencies,
January 28, 1954 - Appendix C and letter OFC to Counl y Unit Chiefs, February 1,
1954 - Appendix D).
USEP?s efforts to provide final solutions for the unresettleable escapees
on its rolls was confirmed by the subsequent recommendation of the OCB, that the
Escapee Program attempt to reduce its September 30, 1953, caseload by the target
date of December 31, 1955, by using all practical means but "...without jeopardizing
the humanitarian and psychological purposes of the Program."
As a result of the OCB?s report, it was decided that a more detailed categoriza-
tion of the caseload would assist in the efficient and controlled reduction of the
September 30, 1953, caseload. Consequently, the caseload was divided into three
categories according to the dates of arrival of the escapees in the West and a target
date for the reduction of each of these categories was established as follows:
(a) 1948*/1949 - Reduction of category by target date January 1, 1955.
(b) 1950/1951 - Reduction of categoryby target date July 1, 1955.
(c) 1952/1953 - Reduction of category by target date December 31, 1955.
An instruction to this effect known as the "Target Date Plan for the Reduction
of USEP Caseload," was issued to the USEP divisions by the Office of Field Coordination,
*Includes USSR escapees who fled subsequent to January 1, 19450
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Escapee Program, Frankfort. (See memorandum to Escapee Program Divisions, dated
April 20, 1954 - Appendix 1. Voluntary agencies were instructed to analyze their
caseloads and to submit, fo,f months in advance of each target date, "...concrete
plans for the resettlement, local integration, institutionalized care, or other
permanent solution, for each escapee 0.0 involved, with a view to achieving these
solutions within the target date."
These individual studies -- beginning with escapees of the 1948/49 category --
were immediately instituted in each area of first asylum, Their results are being
continuously studied by USEP to determine the adequacy of the solutions provided
by the voluntary agencies and to insure that the agencies follow through aggressively
to produce the recommended solutions. Latest reports indicate that the surveys
of the 1948/49 group will have been completed by the end of August after which
analysis and classification of the 1950/51 arrivals will be initiated. While
these intensified efforts to reestablish special categories are underway, normal
resettlement efforts continue for all categories.
20 Emms Initiated on Behalf of the Unresettleabla Croup
While pressing hard to increase the re-establishment of qualified persons
through normal resettlement, the Program has stepped up its activities designed
to re-establish permanently the institutional and difficult-to-resettle elements
of the caseload, It developed procedures to provide for projects to solve the
more difficult cases disclosed through the analysis of each individual case. As
a result of its earlier efforts and under these procedures, contracts have been
negotiated by USEP with agencies as follows:
National Catholic Welfare Conference
$125,000
World Council of Churches
125,000
American Jewish Joint Distribution Committee
20,000
Tolstov Foundation
7 00
Total
S345, 000
These contracts provide for the satisfactory and permanent re-establishment of
460 eligible escapees who possess little or no resettlement potential. By the end
of July, 1954, USED alread~r had received from the agencies concrete proposals for
the institutional re-establishment of 395 escapees under these contracts, Although
these contracts cover all escapees who constitute resettlement problems, every effort
will be made to complete action on the institutional and early arrival cases as soon
as possible in accordance with the Target Date Plano
USED has also devised procedures for the re-establishment, through special non-
institutional projects, of escapees who fail to qualify for normal resettlement over-
seas although they are capable of providing for themselves and their dependents if
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certain additional assistance is given. kSee memoranda this subject dated May 7-
Appendix F)?
These non institutional or difficult but placeable cases are unqualified for
normal resettlement because of uneconomic family composition, previous medical
history, limited work capacity or special trade or profession. USED aid to such
cases is extended if: (1) the individual concerned cannot qualify for overseas
resettlement; (2) the special assistance will enable the escapee to become an
independent and self-supporting member of a community; and (3) the provision of
such special assistance wi_lJ ensure a permanent solution to the individual's
re-establishment problem and, therefore, will relieve USEP of further responsibility.
USEP assistance to this type of case takes the form of payments which enable the
escapee to become self-supporting, such as the provision of tools, payment of
several months rent, or down payment on machinery or equipment.
At present, non-institutional integration is practical only in Germany
because of the countries of first asylum, only Germany allows the escapee the
privilege of legal employment. In other areas escapees generally are forbidden
to work and most of those who do find employment work "black" at low wages and
usually under bad conditions. USEP cannot at present integrate escapees on any
large scale in these areas, but instead must devote its efforts toward their
permanent re-establishment in other countries where legal employment is possible.
In the meantime, USEP staff will continue to press the various governments to
agree to relax their restrictive employment regulations so that those escapees
who cannot be resettled may be employed and thus no longer a burden either to the
government or USEP.
In Greece, it is possible for Greek Ethnics to obtain legal employment and
integration appears possible for unresettleable Greek Ethnics. The Program has
allocated x$245,000 for this purpose.
The Escapee Program Division in Germany has eliminated more than 800 persons
from its September 30, 1953, caseload as locally integrated. These people have
been well established in the local economy. Such cases are dropped from Program
rolls only after it is determined that they are completely self-supporting and
do not require further USEP aid. Integration of this type -- i,e0, without excep-
tional USEP assistance -- is possible only in Germany where the escapee can find
legal and gainful employment.
By the middle of July, USEP had received four proposals for the non-institutional
re-establishment of 92 escapees at an approximate cost to USEP of $55,000. One of
these proposals, would relocate 80 qualified persons on abandoned farms in France.
It is planned to handle such projects under the contracts for special re-establishment
discussed earlier.
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In summary, it is estimated that 500 escapees who are not qualified for normal
resettlement will be re-established under special arrangements during 1954 (This
does not include those integrated without special USEP aid in Germany). In
accordance with instructions, the agencies will attempt to place the 1948/49 arrivals
first wherever possible, although no resettlement opportunities for newer escapees
will be overlooked. It is expected that these methods of re-establishing the
unresettleables will enable the Program to accomplish a substantial reduction of
the older caseload by December 31, 1955.
3. Development of Special {3verseas Resettlement Activities
Early in the Program, it became evident that special efforts would be necessary
to ensure a maximum overseas resettlement of escapees. A majority of escapees
moved during the first few months of Program operations went to the United States
with smaller numbers accepted by Canada and Australia/New Zealand. An area with
great possibilities -- Latin America -- accepted only a handful of escapees.
Consequently USEP felt that it must concentrate its special efforts to increase
overseas resettlement in that area.
The first of a series of activities designed to stimulate resettlement in Latin
America were resettlement opportunity contracts undertaken with several agencies,
From March through June, 1953, five contracts, with a combined maximum value
exceeding $100,000 were negotiated with NCWC, WCC, HIAS, LWF, and'AJDCO These
contracts provided for additional employees, travel expenses and administrative
overhead necessary to find potential employers in Latin America and to secure
housing, work permits, and visas. These projects appear to have been successful.
In the first year of the Escapee Program's operuution, all agencies combined re-
quested movement'of only 293 escapees to Latin American destinations. In the second
year of operation (when the visa-search contracts were in force) the agencies
requested movement of 1,123 escapees for an increase of 383% over the preceding
year's production. (Included as Appendix G is a tabulation illustrating the improve-
ment effected by the NCWC and WOO under these contracts).
Although these resettlement contracts have proved beneficial, it became. apparent
that expenses in connection with the re-establishment of escapees in Latin America
were limiting the number of escapees who could be taken care of by the agencies.
After discussion between USEP and the leading agencies in the latter part of 1953
it was agreed that USEP would reimburse the agencies for inland transportation costs
in Latin America up to $60 per person, which amount would include normal living
expenses during transit.
Following the UCBOS report, in a further effort to increase resettlement in
Latin America, USEP agreed to pay for the numerous miscellaneous expenses of
permanent placement and settlement in Latin America. These services include baggage
fees, documentation, employment permits, lodging, food, clothing, sanitary supplies,
emergency medical treatment, emergency social care, tools, and placement service.
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These miscellaneous services amount to something over $$100 for each escapee. USEP,
therefore, has agreed to reimburse the voluntary agencies at a flat rate of $100
per escapee resettled in Latin America, If these combined costs average less than
$$100 per person, the agencies will reimburse USED for the difference. Nine contracts
for a total of $250,000 have been negotiated. Although these contracts have not
been in force for a sufficient time to provide the basis for an analysis of their
effectiveness, it is anticipated that in the course of time they will be instru-
mental in increasing resettlement to Latin America,
Visa search activities were also undertaken in Canada in an effort to increase
the number of escapees being resettled there. The contracts initiated in 1953
did not prove to be particularly effective, since subsequent to the initiation
of these projects the Canadian Government adopted a procedure whereby it selects
persons ab'oad tr* fill specific employment shortages in Canada, As a consequence,
activities in Canada do little to influence the recruitment officers' decisions in
favorf' fees a The offices established have been effective in placing those
escapees wino have been selected by the-Canadian recruiting teams, but since they
have failed to augment the resettlement rate to any considerable extent, some of
the offices have been closed and the Escapee Program now pays the cost of only two
small offices which devote their effort largel-Fr to placement activities, Never-
theless, these offices were instrumental in -influencing the Canadians to include
some escapees among the persons selected. For example, the Canadian resettlement
mission to Trieste was instructed to select all possible Ukrainian refugees and
any other refugees who met its selection criteria. As a result, the Canadian Mission
selected 132 escapees from Trieste.
USED and the voluntary agencies have intensified their liaison with,consulates
and selection missions of resettlement countries. This liaison has-paid modest
divid