    [Budget Supplement]
    [Creating Opportunity and Encouraging Responsibility]
    [11. Enforcing the Law]
    [From the U.S. Government Printing Office, www.gpo.gov]

      ----------------------------------------------------------------------

      At last we have begun to find the way to reduce crime, forming community partnerships with local police forces
    to catch criminals and prevent crime.

                                          President Clinton
                                          January 1996

      ----------------------------------------------------------------------
      The budget continues the Administration's aggressive efforts to make
    the streets safer for all Americans and to secure the Nation's borders.
    It:
       empowers communities to fight crime locally by hiring more
              police, provides innovative programs to prevent non-violent
              offenders from becoming hardened criminals, and stresses drug
              treatment and prevention;
       commits resources to ensure that violent criminals and
              serious drug traffickers remain behind bars, and proposes that
              violent juvenile offenders be prosecuted as adults; and
       targets resources to combat illegal immigration--at the
              border, at worksites, and in prisons--through deterrence,
              enforcement, and swift deportation.

                             TAKING BACK OUR STREETS

       The Administration's continuing efforts to work with communities and
    local police forces are paying off. In 1994, America's violent crime
    rate dropped by four percent from 1993, to its lowest level since 1989.
    Preliminary figures for the first six months of 1995 indicate a further
    drop in violent crime. While this trend is encouraging, violent crime,
    especially among juveniles, remains at an intolerable level.
       The budget proposes $23.9 billion to control crime, an increase of
    $2.6 billion over 1996. Chart 11-1 shows law enforcement spending by
    year. To help make our streets safe and free people from fear, the
    budget continues initiatives to hire more police in communities of all
    sizes, enhance State and local law enforcement and crime prevention
    assistance, and confront gangs, including juvenile gangs, involved in
    violent crimes.

      Community Policing: Community policing is integral to fighting crime
    and improving the quality of life in the Nation's cities, towns, and
    rural areas. That's why the President has pledged to put 100,000 new
    police officers on the street by the year 2000. By the end of 1996, the
    Community Oriented Policing Services (COPS) initiative will have funded
    almost 49,000 officers. The budget proposes almost $2 billion to put
    19,000 more officers on the street in local communities. COPS provides
    flexibility to communities, giving local law enforcement agencies the
    funds to buy sophisticated crime equipment, hire support personnel that
    allow the deployment of more officers, and implement community policing
    techniques.
       The budget also proposes $25 million to give police officers advanced
    education and training. The Police Corps grant program would give
    educational assistance to students with a sincere interest in law
    enforcement--scholarship recipients would have to make a four-year law
    enforcement service obligation. The Police Scholarship program would
    give scholarships to individuals now working as police officers. These
    two programs would help enhance State and local law enforcement
    recruitment, retention, and education.

      State and Local Assistance: The Violent Crime Control and Law
    Enforcement Act of 1994 was designed to provide a balance between
    enforcement and prevention programs. The Violent Crime Reduction Trust
    Fund (VCRTF) provides $5 billion in 1997 toward programs authorized in
    the 1994 crime law.
    [[Page 104]]
    The President's VCRTF request includes $3.6 billion
    for State and local law enforcement and $0.5 billion for prevention
    programs (see Table 11-1). Along with COPS, the VCRTF funds grants for
    new prisons and prevention programs for violence against women and
    handgun violence.
      Violent Offenders: The Administration seeks to ensure that convicted
    violent offenders serve at least 85 percent of their sentences behind
    bars. For this purpose, the budget proposes $630 million in State grants
    to build new prisons and jail cells under two programs--the Violent
    Offender Incarceration and Truth in Sentencing programs. The funding
    includes $170 million to reimburse States for the costs of incarcerating
    criminal aliens.
      Violence Against Women: The budget proposes $250 million to combat
    gender-based crime. About $180 million would go for programs to
    investigate, prosecute, and convict those who commit violent crimes
    against women. The other $70 million would fund programs that prevent
    rape and the sexual exploitation of runaway, homeless, and street youth.
      Brady Handgun Violence Prevention: To date, the 1993 Brady bill, which
    provides for a waiting period before a gun purchase, already has stopped
    60,000 people who are prohibited purchasers from buying guns. To further
    prevent the sale of firearms to ineligible purchasers, the budget
    proposes $50 million to help States upgrade their criminal history
    record-keeping systems and $20 million to create a national instant
    handgun check system.
      ----------------------------------------------------------------------

                          Table 11-1.  VIOLENT CRIME REDUCTION TRUST FUND SPENDING BY FUNCTION
                                       (Budget authority, in millions of dollars)
    ----------------------------------------------------------------------------------------------------------------
                                                                                                   Dollar    Percent
                                                                  1995        1996        1997     Change:   Change:
                                                                 Actual    Estimate\1\  Proposed   1995 to   1995 to
                                                                                                    1997      1997
    ----------------------------------------------------------------------------------------------------------------
    Prevention:
       Violence Against Women.................................        27         180         254      +227     +841%
       Drug Courts............................................        12         100         100       +88     +733%
       Prison Drug Treatment..................................  ........          41          61       +61        NA
      Other Prevention Programs...............................        21          19          42       +21     +100%
                                                               -----------------------------------------------------
        Subtotal, Prevention..................................        60         340         457      +397     +662%

    State and Local Assistance:
       Community Policing (COPS)..............................     1,300       1,803       1,950      +650      +50%
       Incarceration of Violent Offenders.....................        25         618         630      +605   +2,420%
       Incarceration of Undocumented Criminal Aliens..........       130         300         330      +200     +154%
       Other State and Local Assistance.......................       550         187         659      +109      +20%
                                                               -----------------------------------------------------
         Subtotal, State and Local Assistance.................     2,005       2,908       3,569    +1,564      +78%

    Federal Law Enforcement Assistance:
       Department of Justice:
         Immigration..........................................       284         381         505      +221      +78%
         Other Department of Justice..........................  ........         321         344      +344        NA
       Department of the Treasury.............................        30          69          90       +60     +200%
       Judiciary..............................................  ........          30          35       +35        NA
                                                               -----------------------------------------------------
           Subtotal, Federal Law Enforcement Assistance.......       314         801         974      +660     +210%

                                                               -----------------------------------------------------
    Total, Violent Crime Reduction Trust Fund.................     2,379       4,049       5,000    +2,621     +110%

    ----------------------------------------------------------------------------------------------------------------
    NA=Not applicable.

    \1\Includes Administration's proposed adjustments to 1996 continuing resolution levels.

      ----------------------------------------------------------------------

       Gangs: Clearly, criminal gang violence is among the most difficult
    challenges facing law enforcement. As gangs become an increasingly
    powerful and deadly force, the Administration is pursuing a coordinated
    national strategy to help combat them. The budget proposes a variety of
    programs to stem violence on the street and in public housing.
    [[Page 105]]
       Safe Streets: The budget proposes $117 million, an increase
              of $2.9 million over 1996, for the Safe Streets program, which
              blends the efforts of the FBI, other Federal law enforcement
              agencies, and State and local police departments to
              investigate street crime and violence.
       Mobile Enforcement Teams (METS): The Drug Enforcement
              Administration provides guidance and other assistance to local
              police agencies and State and local police departments to
              disrupt and dismantle the most violent gangs involved in drug
              trafficking. The budget proposes $20 million for this program,
              an increase of $5.9 million over 1996.
       Juveniles: Juvenile arrests for serious offenses rose 68
              percent from 1984 to 1993, partly due to gang violence as
              groups fought for turf. As a result, the President pledged in
              his State of the Union address, ``I'm directing the FBI and
              other investigative agencies to target gangs that involve
              juveniles and violent crime, and to seek authority to
              prosecute as adults teenagers who maim and kill like adults.''
    [[Page 106]]
       One Strike and You're Out: The President believes that public
              housing is a privilege, not a right, and that residents who
              commit crimes and peddle drugs should be immediately evicted.
              The budget provides $290 million to support anti-drug and
              anti-crime activities in public housing, including $10 million
              to implement the President's ``one strike and you're out''
              initiative.

      Domestic Terrorism: Though few in number, domestic terrorist groups
    are a serious threat to the security and safety of the Government and
    public. The budget provides about $100 million to help Federal law
    enforcement agencies prevent domestic terrorism, and investigate and
    prosecute domestic terrorists who commit violent and illegal acts.
       Digital Telephony: The Communications Assistance for Law Enforcement
    Act ensures that law enforcement agencies can conduct court-authorized
    wiretaps as the Nation converts from analog to digital communications
    technology. In 1996, the President proposed $100 million to reimburse
    telecommunications carriers for modifying equipment and services in
    order to maintain the ability to conduct wiretaps. Congress did not fund
    the program but, due to its importance, the budget again proposes $100
    million.

                   COMBATING DRUG ABUSE AND DRUG-RELATED CRIME

      Drug abuse and drug-related crime cost our society an estimated $67
    billion a year\1\ and destroy the lives and futures of a major portion
    of our most precious resource--our youth. Illicit drug trafficking
    breeds crime and corruption, drug use helps to spread AIDS and other
    deadly diseases, and addiction erodes our productivity. The effects of
    drugs and drug-related crime are felt acutely in our communities and on
    our urban street corners.
      \1\``Substance Abuse: The Nation's Number One Health Problem,'' Key
    Indicators for Policy, Institute for Health Policy, Brandeis University
    (1993).
    ---------------------------------------------------------------------------
      The budget proposes $15.1 billion for drug control, an increase of
    $1.3 billion over 1996. The budget would build on initiatives that began
    in 1996 by renewing the emphasis on drug law enforcement, interdiction,
    international programs, and drug treatment and prevention. Table 11-2
    shows the funding according to drug control functions.

      Drug Law Enforcement: The budget proposes $8.3 billion for domestic
    drug law enforcement, an increase of $0.7 billion over 1996. The budget
    boosts Federal law enforcement efforts while targeting new resources to
    community-based law enforcement and to stopping the flow of illegal
    drugs at the border.
      ----------------------------------------------------------------------

                                            Table 11-2.  DRUG CONTROL FUNDING
                                     (Budget authority, dollar amounts in millions)
    ----------------------------------------------------------------------------------------------------------------
                                                                                                   Dollar    Percent
                                                                  1995        1996        1997     Change:   Change:
                                                                 Actual    Estimate\1\  Proposed   1995 to   1995 to
                                                                                                    1997      1997
    ----------------------------------------------------------------------------------------------------------------
    Domestic Law Enforcement..................................     6,983       7,553       8,255    +1,272      +18%
    Demand Reduction..........................................     4,692       4,572       4,971      +279       +6%
    Interdiction..............................................     1,280       1,339       1,437      +157      +12%
    International.............................................       296         320         401      +105      +35%

                                                               -----------------------------------------------------
      Total, Drug Control Funding.............................    13,251      13,784      15,064    +1,813      +14%
    ----------------------------------------------------------------------------------------------------------------
    \1\Includes Administration's proposed adjustments to 1996 continuing resolution levels.

      ----------------------------------------------------------------------
    [[Page 107]]
    The Federal role continues to focus on providing leadership and
    training, fostering inter-governmental cooperation, and providing
    incentives to States and localities to adopt successful drug control
    methods.

       Interdiction and International Programs: The Administration has an
    integrated international strategy that has made it harder for
    traffickers to get their product into the United States for sale. The
    budget proposes $1.8 billion, $100 million more than in 1996, for these
    programs.
       Source Country Efforts: Internationally, the United States is
              focusing on not just interdiction, but also on disrupting the
              drug leadership and its production, marketing, and money-
              laundering infrastructure. This requires that we closely
              cooperate with narcotics source and transit countries, and
              hold our allies to a high standard of action.

      Drug Treatment: The budget proposes $2.9 billion from all sources to
    treat drug abuse, $200 million more than in 1996.
       To rid America of drug addiction, the Administration's top priority
    is treating hard-core users. The following programs reflect the
    Administration's commitment to address drug abuse where the battle is
    toughest--in the streets, jails, and urban and rural drug markets of
    America.
       Drug Testing: To break the cycle of crime and drugs, the
              budget proposes $42 million for the Administration's criminal
              justice drug testing initiative. Under it, all those arrested
              for Federal crimes would be drug tested before being released
              back into the community.
       Drug Courts: Drug courts, for which the budget proposes $100
              million, offer an alternative for non-violent offenders who
              are willing to participate in, and would benefit from,
              rehabilitative drug treatment. Drug court programs rely on
              sanctions, such as incarceration and increased drug-testing
              and supervision, to encourage treatment.
       Substance Abuse Treatment: The budget proposes $1.2 billion,
              a $67 million increase over 1996, to support State substance
              abuse activities, which help target resources to local hard-
              core user populations. In addition, the budget helps restore
              funding for substance abuse demonstration programs to $352
              million, a $140 million increase over 1996, providing
              treatment and prevention services for pregnant women, high-
              risk youth, and other under-served Americans.

      Community-Based Prevention: The budget proposes $1.6 billion for drug
    prevention programs, an increase of $200 million over 1996. After
    significant and steady declines through the 1980s, teenage drug use is
    rising and anti-drug attitudes are softening. Drug glamorization in
    popular culture, especially rock music, and the highly publicized debate
    about drug legalization have fueled these reversals. To help stem these
    trends, the budget puts a major focus on keeping America's youth drug-
    free.
       The Safe and Drug Free Schools and Communities Program: The
              Safe and Drug Free Schools and Communities program provides an
              important foundation for the Nation's drug and violence
              prevention efforts, helping school districts implement anti-
              drug and anti-violence programs in the schools. The program
              now serves 39 million students in 97 percent of school
              districts. The budget proposes $540 million, an increase of
              $74 million over 1995.

                   SECURING OUR BORDERS AND ENFORCING THE LAW

       The President has placed a high priority on controlling our Nation's
    borders. For too long, insufficient staff, inadequate facilities, and
    outmoded equipment and technology have permitted uncontrolled movement
    across the border--over 3.5 million aliens now reside in this country
    illegally. As a Nation of immigrants, we must welcome those who seek
    legal entry or refugees who seek protection from harm. As a Nation of
    laws, however, we must maintain our borders and deter and remove those
    who enter illegally.
       The President has worked with Congress over the last three years to
    boost funds for the Immigration and Naturalization Service (INS) by 74
    percent. The President's Immigration Initiative is a strategic plan
    [[Page 108]]
    to secure the borders as we work with State and local governments to reduce
    the effects of illegal immigration. The budget proposes $3.1 billion for
    INS, $441 million more than in 1996 (see Table 11-3).
      ----------------------------------------------------------------------

                           Table 11-3.  IMMIGRATION AND NATURALIZATION SERVICE PROGRAM FUNDING
                                     (Budget authority, dollar amounts in millions)
    ----------------------------------------------------------------------------------------------------------------
                                                                                                   Dollar    Percent
                                                            1993      1995      1996      1997     Change:   Change:
                                                           Actual    Actual   Estimate  Proposed   1993 to   1993 to
                                                                                                    1997      1997
    ----------------------------------------------------------------------------------------------------------------
    Appropriated Funds:
      Border Patrol.....................................       354       442       583       716      +362     +102%
      Investigations and Intelligence...................       142       169       229       279      +136      +96%
      Land Border Inspections...........................        83        88       122       152       +69      +83%
      Detention and Deportation.........................       161       194       309       401      +240     +149%
      Program Support and Construction..................       227       437       493       599      +373     +164%
                                                         -----------------------------------------------------------
        Subtotal........................................       967     1,330     1,736     2,147    +1,180     +122%

    Fee Collections and
      Reimbursements:
      Citizenship and Benefits..........................       308       359       539       511      +203      +66%
      Air/Sea Inspections and Support...................       255       362       381       439      +184      +72%
                                                         -----------------------------------------------------------
        Subtotal........................................       563       721       920       950      +387      +69%

                                                         -----------------------------------------------------------
    Total, INS..........................................     1,530     2,051     2,656     3,097    +1,567     +102%
    ----------------------------------------------------------------------------------------------------------------

      ----------------------------------------------------------------------

      Securing the Border: Controlling illegal entry at the border with
    limited resources has been a continuing challenge for INS--one that the
    Administration has addressed. Under its plan, Border Patrol staffing
    would rise by over 85 percent from 1993 to 1998 (to over 7,000 agents).
    Since 1993, the Administration and Congress have provided funds to hire
    1,850 more patrol agents to meet staffing needs at the Nation's busiest
    Southwest border crossing points. The budget builds on this foundation,
    adding resources to support 700 more Border Patrol agents, 150 INS
    inspectors, and 657 Customs personnel to strengthen land ports-of-entry
    and stem the flow of illegal aliens and drugs (see Chart 11-2).

       Enforcement Strategy Along the Border: Since 1993, the
              Administration has focused on deterrence at the border. This
              multiyear plan has targeted border enforcement along the
              Southwest border, starting with the largest illegal crossing
              areas. Projects such as ``Operation Gatekeeper'' in San Diego
              and ``Operation Hold-the-Line'' in El Paso have helped deter
              illegal crossing. Local law enforcement officials cite these
              projects as important factors that helped to reduce crime
              significantly--upwards of 60 percent--in affected border
              communities. The budget expands these initiatives to cover the
              full Southwest border. It adds 850 INS agents and inspectors;
              proposes $33 million to replace outmoded equipment; and funds
              new weapons and electronic detection technology.
       Use of Technology: INS is using advanced biometric technology
              along the Southwest border to identify and control alien
              crossings. Its IDENT system uses stored fingerprints and
              photographs to form a unique identifier with information on
              aliens, for use in law enforcement. The IDENT system has
              allowed INS to tap ``lookout'' and law enforcement criminal
              data bases and
    [[Page 109]]
              provide real-time evaluation of illegal
              crossing trends, enabling INS to quickly redeploy Border
              Patrol resources. The budget provides $7.8 million to expand
              and operate the IDENT pilot along the entire Southwest border,
              and includes another $16.8 million for technology to
              strengthen Southwest border enforcement.

       Reducing the ``Job Magnet'' for Illegal Entry: Each year, a powerful
    ``job magnet'' draws hundreds of thousands of illegal aliens to this
    country. The Administration has put muscle into the employer sanctions
    enforcement provisions of the 1986 Immigration Reform and Control Act.
    Since 1993, the Government has taken over 15,000 enforcement actions,
    leading to over 25,000 apprehensions and $10.5 million in employer
    fines. The budget proposes to make it easier for employers to verify
    employment eligibility, and to expand enforcement efforts against
    traditional employers of unauthorized labor. In addition, the President
    signed a path-breaking Executive Order on February 13, 1996 to deny
    Federal contracts, for up to a year, to firms that employ illegal
    aliens.
       Employment Verification: Over half of the illegal aliens in
              this country never crossed our borders illegally; rather, they
              overstayed the terms of their visas. Many of them use
              fraudulent documents to get jobs. To address this problem, INS
              developed several pilot employment verification systems to
              help employers determine the eligibility of potential
              employees. A telephone verification system in Orange County,
              California has enlisted over 200 employers--expected to grow
              to over 1,000 in 1996--who use a quick, effective, and non-
              discriminatory system to verify the employment eligibility of
              new employees. The budget proposes $10 million to expand
              verification and fraud detection and prevention programs.
    [[Page 101]]
       Worksite Enforcement: Worksite enforcement and employer
              sanctions are keys to dampening the lure of illegal
              employment. The Administration's vigorous enforcement of
              employment standards denies employers the advantages of hiring
              highly vulnerable and exploitable illegal immigrants to work
              at substandard wages and in poor working conditions. Employers
              who knowingly hire illegal aliens should be held accountable.
              INS has launched a concentrated enforcement effort, centered
              in the Midwest and titled ``Operation JOBS,'' that targets
              employers who routinely flout the law and hire illegal aliens.
              The joint exercise, drawing on the expertise of INS, the State
              and Labor Departments, and local officials, has generated
              5,555 alien apprehensions and 4,453 removals since it began in
              January 1995. In addition, it has placed over 3,000 citizens
              in jobs that illegal aliens previously held. The budget
              proposes to add 106 investigators and deportation officials to
              strengthen INS' worksite enforcement efforts.

       Swiftly Removing Illegal and Criminal Aliens: The budget expands
    another part of the President's Immigration Initiative--removing
    criminal and undocumented aliens. It proposes to enhance INS' ability to
    identify, locate, and remove criminals and other deportable aliens. With
    these and other resources, INS would be able to remove 93,000 aliens in
    1997, a 50 percent increase over projections for 1996.
       Port Courts and Deportation: The budget proposes $4.2 million
              to expand efforts by INS and the Executive Office of
              Immigration Review (EOIR) to expand the innovative ``port
              court'' concept that began in California. INS has established
              a port court at the Otay Mesa land border crossing port to
              expedite immigration hearings for aliens who try to enter the
              country using counterfeit documents or falsely claiming U.S.
              citizenship. The budget expands the courts to additional ports
              of entry in 1997.
       Institutional Hearing Program: The criminal alien inmate
              population represents a growing portion of all inmates in
              Federal, State, and local prisons and correctional facilities.
              To expedite deportation and expulsions, INS, in conjunction
              with EOIR and State correction officials, has launched an
              innovative, on-site prison hearing program to conduct criminal
              alien deportation hearings while inmates serve their
              sentences. The program led to the removal of over 9,500
              criminal aliens in 1995. The budget proposes $9.2 million to
              add courtrooms and staff, and $11.1 million to expand the same
              concept to aliens incarcerated in local jails.
       Deportation: The budget proposes funds to activate 700 new
              detention beds in Texas and Florida, and to enhance the INS
              alien transportation system.

       Assisting States and Localities with the Costs of Illegal Aliens:
    Through the State Criminal Alien Assistance Program, the President has
    provided unprecedented help to reimburse State and local governments for
    the costs of incarcerating illegal aliens. In 1995, the Federal
    Government provided $130 million to reimburse 41 States. The budget
    recommends $500 million to expand reimbursements to State and local
    governments.