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EXECUTIVE SUMMARY

One year after its immediate response to the terrorist attacks of September 11, 2001, the American Red Cross initiated the September 11 Recovery Program (SRP) to provide longerterm assistance to those with continuing needs associated with the attacks and their aftermath.¹ In 2004, it launched the Recovery Grants Program (RGP), which was designed to support community-based nonprofit organizations that offer services related to longer-term needs associated with the 9/11 attacks. The Recovery Grants Program marked SRP's transition from direct provision of services to indirect support of services through community-based providers. This arrangement enabled Red Cross to help communities and individuals attain goals associated with their recovery even as the Red Cross was reducing and preparing to end its direct service provision. Recognizing that grant making and grant monitoring were not part of their standard operating procedures, the Red Cross contracted with Rockefeller Philanthropy Advisors to administer the Recovery Grants Program.

The first two rounds of RGP grants (assessed in this study) were awarded in December 2004. These were one-year grants to support services in two program areas: Mental Health and Wellness Services (MHW) and Access to Recovery Services (Access). Forty-four MHW grants were awarded to nonprofit organizations whose programs focused on enhancing the emotional well-being and resilience of individuals affected by 9/11. Grantees could provide a variety of mental health treatment services, including structured group activities, screening or evaluation to assess mental health needs, and psychoeducational outreach to promote mental health and wellness services. Twenty-one Access grants went to organizations to provide culturally competent services to "underserved" communities (generally minority populations, particularly immigrants) who may have not received services in the immediate and short-term aftermath of 9/11. Services could include mental health and wellness programs, financial planning, employment assistance, or other services that enhance self-sufficiency and long-term recovery. Criteria for awarding both types of grants tended to favor organizations that previously provided services related to 9/11 recovery or had experience reaching 9/11-affected individuals to maintain continuity of services for people in need. Access grants also could be used to conduct outreach to inform communities about these or other relevant 9/11 services. In addition, two Continuity grants were awarded to large providers to enable continuation of ongoing essential services.

This report, prepared by the Urban Institute for the SRP, examines the implementation of the 67 initial grants issued under the Recovery Grants Program and the quality and outcomes of those services. The study provides not only the grantee's perspective on program implementation, but also the client's perspective on service quality and outcomes. Data were collected through a telephone survey of 66 grantees, site visits to 12 grantees, and a telephone/online survey of clients participating in the services. The findings of this study will help inform the Red Cross as it makes decisions regarding future services supported through the Recovery Grants Program and other disaster response activities. Additionally, the findings can inform other organizations or government agencies that are planning to, or regularly provide, disaster relief services.

Notes from this section of the report

1 For an assessment of services provided directly through the September 11 Recovery Program, see Morley et al., Findings from a Survey of 9/11-Affected Clients Served by the American Red Cross September 11 Recovery Program (The Urban Institute, 2006).

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