Approximately 120,000 Israelis of Ethiopian descent live in Israel today – one third were born in Israel and they make up 1.5% of the country's population. In recent years, the aliya has continued at a rate of about 1,500 annually, half of their number a decade ago.
The absorption process of Ethiopian olim is unique because of the distinct differences in cultural background from the majority of the population. The State of Israel and Diaspora Jews have invested and continue to invest significant resources in the past 20 years in the absorption of Ethiopian Israelis. Despite the improvements in their status over the years, it does not approach that of the general Jewish population in terms of education, welfare, employment, military service and housing. Improvements in the status of the Ethiopian Israeli population in these areas will advance their integration into society in the best possible manner, both from a socio-economic standpoint and in terms of the individual's sense of belonging to society.
During February-August 2012, the State Comptroller's Office investigated a variety of aspects and a variety of actions carried out to promote the integration of Ethiopian Israelis in the fields of education, military service, employment in the public sector and housing. The study was carried out in the following bodies: Ministry of Absorption, Ministry of Education, Prime Minister's Office, Ministry of Defense, Interior Ministry, Ministry of Justice, Ministry of Trade and Labor, the IDF, the Higher Education Council, Bar Ilan University, the Public Service Commission, the Government Companies' Authority, the Ethiopian National Project, Community Centers (Matnasim), NGOs, public corporations and a number of local authorities.
On July 12, 2001 the Israeli government decided to establish a National Project for the Absorption of Ethiopian Jews in Israel (the Ethiopian National Project) – since the government works on many levels and through a variety of programs to absorb Ethiopian Israelis, the idea was to create an authoritative body that would understand the big picture.
The framework that was created was intended to integrate and coordinate efforts, making them more effective and efficient. The ENP (a community interest company) was established in 2004 for this purpose. Government funds were transferred to the ENP beginning in 2005. Between 2010-2012, the ENP's budget was approximately 22 million NIS annually, 8% of the budget the Jewish Agency claimed was necessary for this purpose at the time the ENP was established.
In addition, we found that the original idea of an integrating body, according to the government decision, had eroded. The ENP had become, de facto, another body that coordinated and ran educational programs for some Ethiopian Israeli pupils.
In February 2008, the Israeli government passed resolution no. 3116 on a five year plan for 2008-2012 whose goal was to improve the absorption of Ethiopian Israelis. The plan was to be carried out by the Ministry of Absorption, Ministry of Housing, Ministry of Welfare, Ministry of Education and Ministry of Trade and Labor.
The Israeli government designated NIS 870 million to the program for 2008-2012.
However, the government did not create a framework of multiple year fiscal responsibility for this program that allows for extended operations. Only in July 2010, following a petition to the Supreme Court by the IAEJ and others, was the program stabilized and additional funds were allocated. The program was extended to 2013, the number of municipalities in which the program operated was reduced from 15 to 7 and the budget for 2010-13 was set at NIS 481 million.
In general in Israel, long term, multidisciplinary projects are led by the Prime Minister's Office. However in the case of Chomesh, management was cast upon the Ministry of Absorption.
One would expect that the government would have a written methodology for running multidisciplinary extended projects, however none was found to exist. This is a basic flaw which must be resolved. Moreover, the Prime Minister's Office did not impart its knowledge in running this type of project to the Ministry of Absorption.
The project was accompanied by a committee made up of mid-level management from the relevant ministries. However, their meetings did not include summaries of integrative activities but rather reports by individual ministries – they each reported on what they were doing without coordinating and really working together.
Other than Chomesh, Ethiopian Israelis are eligible for additional budgets. One would expect that the Ministry of Absorption map all available government funding in order to provide a general picture. However, neither the Ministry of Absorption nor the Finance Ministry had information or a database that included all government budgets intended for and allocated to Ethiopian Israelis. Therefore, there was no real transparency and no way of preventing funding duplications – a fundamental flaw. Furthermore, according to government resolution no. 3116, the Ministry of Absorption was required to map all funds invested by NGOs available to Ethiopian Israelis by the end of 2008, and this too was not carried out – the government of Israel does not have a complete picture of the programs offered to the Ethiopian Israeli community.
Resolution 3116 also required the establishment of measures to examine program success in comparison to the objectives set. Up to the end of this investigation – four years later – the outcomes of Chomesh were not examined according to these measures. In other words, the Ministry of Absorption does not have information regarding the success of the program.
It is apparent from all of the above, that the government did not create an integrative mechanism efficiently allocating funds for the Ethiopian Israeli community, rather, another collection of programs.
Ethiopian Israelis comprised 2.3% of all elementary and high school students in Israel in the 2009-2010 school year. Investing in education is one of the main methods to increase integration of Ethiopian Israelis. Gaps in achievements between Ethiopian Israelis and all Hebrew speaking students are still evident and these are not entirely explained by socio-economic differences.
The findings of this report raise doubts regarding the accuracy of the reports submitted by the coordinating and operating bodies to the government ministries, reports that provided backing for payment by government ministries to the bodies. It also seems that the Ministry of Absorption paid for certain activities that were never carried out. In addition, the government ministries did not properly review the reports they received from the coordinating bodies and that the coordinating bodies themselves did not satisfactorily review the reports they received.
In recent years, the percentage of new immigrants drafted into the military is one-fifth of all draftees, mainly from the FSU and Ethiopia. The military plays an important role in their absorption. According to the IDF's personnel department, the total number of Ethiopian Israelis serving in the army in 2010 was about 5,800 (this number increased to 6,600 in September, 2012). In 2010, 2,430 Ethiopian Israelis were drafted, and their draft rate was 86% compared to 74% of the general population. This shows high motivation, however after they are drafted, something ruptures, leaving them prone to a high rate of service inadequacies.
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According to the IDF's definition a soldier is considered a new immigrant if fewer than 3 years have passed since he/she received Israeli citizenship or made aliya after the age of 16. Ethiopian Israeli soldiers are considered new immigrants if they were not born in Israel.
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According to the IDF's personnel department, maximization of service was relatively low among Ethiopian Israelis, compared to all draftees. Only 9% of Ethiopian Israeli draftees participated in professional training courses, compared to 20% of the general population, half compared to the general population were ranked junior commanders, and one-fifth compared to the general population were ranked officers. In 2010, 20% of Ethiopian Israeli soldiers withdrew from service, mostly because of what is defined by the IDF as "severe bad behavior" (66%). Of imprisoned soldiers, Ethiopian Israelis were 53% (while they were 25% of the soldiers in the IDF). Their rates of absenteeism and desertion were three times higher than the general rate in the IDF. The State Comptroller emphasizes that these statistics are a social warning sign.
Based on these service statistics, the IDF personnel department decided, in May 2011, to create special staff squads that would concentrate on the integration of Ethiopian Israelis in the IDF. The squads completed their work in January 2012, and the head of personnel approved their conclusions which are expected to come into fruition in the coming years.
It is still early to determine the results of these efforts, but their extent show that the IDF is working intensively to ensure the advancement of Ethiopian Israelis to meaningful service and commanding ranks, and takes every opportunity to assist them.
The public sector bodies involved in the preparation for military service include: the Ministry of Education, the Ministry of Defense, the IDF and local authorities. Private bodies involved include organizations and foundations such as the JDC and private NGOs specializing in this field. The attempts of these organizations and bodies show that preparation prior to recruitment is beneficial to soldiers during their service.
The unique needs of Ethiopian Israelis require personal attention in many cases. It would be helpful to have information available to those involved in the preparation process and in the placement of soldiers in units, and to researchers who are evaluating the preparation programs. This assessment revealed that there is no cooperation between the IDF's behavioral sciences center and the national authority for measurement and evaluation in education; nor does a unified, synchronized database on Ethiopian Israelis exist.
Since 2007 a round table composed of representatives from the IDF, the Ministry of Education and the Ministry of Defense has been meeting once a month to discuss the implementation and evaluation of the existing recruitment preparation programs, and Ethiopian Israelis are just one of many subjects. However, accepted practice has not been determined regarding who will lead activities and who is responsible for the activities decided upon by the round table.
The Social and Youth Administration in the Ministry of Education and the Defense-Social Department in the Ministry of Defense carry out ongoing activities for preparation for recruitment in most high schools. These are joined by the Education and Youth Corps of the IDF, the Ministry of Absorption and local authorities.
The Ministry of Absorption participates in the funding of IDF preparatory courses and training activities. Despite the fact that this ministry was chosen to be the integrating body for Chomesh, its role in preparing Ethiopian Israelis for recruitment and military service is marginal and is not part of the round tables.
Many local authorities view the achievement of recruitment objectives and maximization of military service as their responsibility. In 2009, the Ministry of Education initiated, together with local authorities, the establishment of about 50 local prep centers for military services, in order to create a continuum between schools and the municipality. These centers were meant to coordinate all activities regarding preparation for service. One of their key roles is to provide services unique population groups such as new immigrants.
According to preliminary figures reported by the Social and Youth Administration in the Ministry of Education, and from responses by local authorities from November, 2012 to this report, in municipalities in which preparatory centers were established, the rates of recruitment increased. It is the State Comptroller's opinion that the round table should encourage the establishment of local prep centers in towns in which Ethiopian Israelis live where the prep activities (through private NGOs) do not meet their needs.
Higher Education improves employment opportunities, minimizes gaps and contributes to social integration. The Chomesh program was intended to improve the absorption of Ethiopian Israelis in education, while providing financial and academic support for students at institutions for higher education.
In 2010 about 286,900 were enrolled in all institutions of higher education in Israel for all degrees, out of which 2,201 were Ethiopian Israelis (0.76%), about half of their proportion in the population. The rate of Ethiopian Israelis studying for a first degree doubled between 2005 and 2010, reaching 0.9% of all students, though it remains approximately half of their proportion in the population. The most popular study tracks among Ethiopian Israelis are social sciences, arts, education and teachers' training, business and management. A small number of students study engineering, architecture and law.
During the 2010-11 school year, the Student Authority assisted about 6,700 immigrant students, about 2,170 of whom were Ethiopian Israelis. The support given to Ethiopian Israelis is approximately 3 times higher than that given to other new immigrants. Ethiopian Israeli students are also entitled to additional benefits in comparison to other new immigrants. In addition, there are also private scholarships available to Ethiopian Israeli students.
This assessment revealed that there is no coordination whatsoever regarding tuition scholarships, stipends and other subsidies (for dormitories, transportation expenses, etc.) deriving from public funds, and that sums received by Ethiopian Israeli students may vary despite the fact that they come from similar socio-economic backgrounds. According to the Central Bureau of Statistics, among the students who began their degree in 2011, the dropout rate of Ethiopian Israelis from universities was 19% compared to 11% of the general population; from academic colleges – 13.5% compared to 10%; from teachers' college – 21% compared to 16% accordingly.
Higher education improves employment opportunities, minimizes gaps and contributes to social integration. This is especially important for Ethiopian Israelis, as young adults with university degrees also function as role models. Ethiopian Israeli students receive much more support and greater preferential treatment than any other university student, new immigrant or not, in all higher education frameworks. In return for a scholarship, an Ethiopian Israeli student is obliged volunteer for 120 hours. With the large sums of public funding allocated to these students, the Student Authority must consider increasing the students' obligations to include both a certain level of academic achievement and a commitment to complete their studies; such obligations will also increase their chances for success in the future.
The State Comptroller believes that the ministries that support academic studies, including of Ethiopian Israelis, must consider expanding the pooling of resources (which exists in preparatory programs) through an integrating body in order to: prevent double funding, determine criteria for aid according to the various entitlements (eg. immigrants, discharged soldiers and socio-economic status), standardize aid from public funds with the dean of each institution. Thus the integrating body will be able to determine the differential payments in a uniform manner that will prevent double payments or unbalanced allocations
Despite the improvements that have occurred in the employment of Ethiopian Israelis over the years, their state in this field remains worse than that of the general Jewish population and than many of the immigrant populations from other countries.
The government resolved (in resolution 3116) to provide young families up to 200 mortgages a year between 2008-2012, in order that they may integrate into towns and neighborhoods of relatively high socio-economic status, at the best possible terms of return (the Mortgage Program). During 2008-2012 only 2 such mortgages were taken.
In May 2012, the government decided to extend the Mortgage Program to 2014-2016 and to increase the maximal sum to be granted. It was found that the Prime Minister changed the Mortgage Program in response to a private appeal of a number of Ethiopian Israelis, without basing his decision on statistics regarding the number of young families that meet the requirements of the program, and without examining the program's potential contribution to realizing the government's goals. It is doubtful that the updated program will succeed in effectively promoting these goals. Within the framework of government activities to enable young families to purchase a home in Israel, the Prime Minister's Office, together with the other relevant ministries, must determine a structure that will suit the needs of young Ethiopian Israeli families, based on relevant data regarding all Ethiopian Israelis and their economic capacity.
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Families in which both partners are Ethiopian Israeli and the head of the family is under 40
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The State of Israel and Diaspora Jews invested and continue to invest hundreds of millions of shekels in the absorption of Ethiopian Israelis over the past 20 years. The scope of the Chomesh program operated by the government is now approaching half a billion shekels. This report does not pretend to review all activities carried out by the government in order to advance and aid Ethiopian Israelis, but it does present the shortcomings found in the activities of government ministries in a number of major areas: education, military service, higher education, employment in the public sector and housing. These areas are of decisive impact on the integration of Ethiopian Israelis into Israeli society.
The findings of this report indicate that despite the considerable efforts of government ministries together with the non-profit sector to advance Ethiopian Israelis, the gaps between them and the general population remain significant. Basic conditions for effective action by government ministries do not exist; lacking first and foremost is coordinated action, led by an integrating body that would run and manage all available budgets in order that they meet the needs of Ethiopian Israelis. In addition, the government has not determined a necessary minimum that it will provide in order to ensure that its investment over the years is not lost. As a result, substantial resources are dispersed over many programs, often without examining their effectiveness. There is much wastefulness, and resources frequently go towards double funding, while other resources are not utilized.
Effective management of the many resources, which are necessary according to the findings of this report, is not a panacea for closing gaps and integrating Ethiopian Israelis in society. However, it is a basic condition for methodological action towards effectively and efficiently minimizing these gaps. The government of Israel must act, with the aid of Diaspora Jews, in order to more effectively implement the states' budgets, and to provide a suitable solution for the needs of Ethiopian Israelis. Thus the integration of Ethiopian Israelis in Israeli society will be expedited in the best possible manner.