Summary Report Only

Report #:  GAO/GGD-99-44 
Title:  Southwest Border Strategy
Date:  May 19, 1999


Illegal immigration is a long-standing problem, and it has been
exacerbated by the pull of the strong domestic economy, economic
and/or political turmoil in the developing world, and recent
natural disasters in Central America. To address this continuing
problem, the Attorney General in 1994 announced a broad,
five-part strategy to strengthen the nation’s immigration laws
including, among other things, strengthening border enforcement.
The Illegal Immigration Reform and Immigrant Responsibility Act
of 1996 (1996 Act) requires us to track, monitor, and evaluate
the Attorney General's strategy and to report our findings to
Congress annually for 6 years. Our first report discussed the
Immigration and Naturalization Service's (INS) progress toward
implementing the Attorney General’s strategy for reducing and
deterring illegal entry along the southwest border. This, our
third report, provides additional information on the key issues
raised in our first report. Specifically, this report addresses
(1) INS' progress in implementing the southwest border strategy
during fiscal year 1998, (2) interim results of the strategy, and
(3) actions taken on our recommendation that the Attorney General
develop and implement a plan for a formal, cost-effective,
comprehensive, and systematic evaluation of the strategy. 


RESULTS IN BRIEF

INS is continuing to implement its southwest border strategy.
Although some of the expected interim results continue to occur,
available data do not yet answer the fundamental question of how
effective the strategy has been in preventing and deterring
illegal entry.

In fiscal year 1998, INS' Border Patrol transitioned into the
second phase of its four-phased approach, which called for
increasing Border Patrol agents and resources to sectors in
Arizona and South Texas. Consistent with this planned approach,
INS allocated 740 of 1,000 new agent positions authorized in
fiscal year 1998 to sectors in these locations. INS also added 18
miles of fencing in California and Arizona, increased both the
proportion and total amount of time Border Patrol agents at the
southwest border spent collectively on border enforcement, and
deployed additional technologies such as remote video
surveillance cameras. In addition, in January 1999, INS was
testing a resource and effectiveness model to help it determine
the right mix of staffing, equipment, and technology for all of
its Border Patrol sectors.

To complement the Border Patrol's efforts between ports of entry,
INS Inspections added 179 inspectors to southwest land-border
ports of entry in fiscal year 1998 and undertook training and
enforcement efforts in conjunction with other agencies located at
these ports. INS also began testing an inspections program
designed to measure how well it conducted inspections of
travelers.

Although evaluative data on the overall impact of the strategy
continue to be limited, available data suggested that several
anticipated interim effects of the strategy have occurred. For
example, apprehensions of illegal aliens continued to shift from
traditionally high entry points like San Diego and El Paso to
other locations along the border, as resources were deployed.
Also, southwest border ports of entry inspectors apprehended an
increased number of persons attempting fraudulent entry and there
were reports of higher fees being charged by smugglers, which INS
said indicated an increased difficulty in illegal border
crossing. However, data were not available on whether the other
expected results--a decrease in attempted reentries by illegal
aliens who previously have been apprehended and a reduction in
border area crime--had occurred. 

Available information on the interim results of the strategy does
not provide answers to the most fundamental questions surrounding
INS' enforcement efforts along the southwest border. That is,
given the billions of dollars that INS has invested in
implementing the strategy, how effective has the strategy been in
preventing and deterring aliens from illegally crossing the
border? Pursuant to our 1997 report recommendation to conduct a
comprehensive evaluation, INS contracted with private research
firms in September 1998 for evaluative studies. As of April 1999,
according to INS, one contractor was working on an evaluation
design and analysis plan. INS could provide us with no other
information on the contractor's progress. Consequently, we do not
know to what extent the contractor's evaluation plan will provide
the information needed to determine the extent to which the
Attorney General's strategy has been effective.


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