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


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  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                                                              
                                                                                                                
                                                                                                                

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  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.
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                      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%
                                                                                                                
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NA=Not applicable.                                                                                              
                                                                                                                
\1\Includes Administration's proposed adjustments to 1996 continuing resolution levels.                         

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   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.
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                                        Table 11-2.  DRUG CONTROL FUNDING                                       
                                 (Budget authority, dollar amounts in millions)                                 
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                                                                                               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%
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\1\Includes Administration's proposed adjustments to 1996 continuing resolution levels.                         

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[[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).
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                       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%
----------------------------------------------------------------------------------------------------------------

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  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.