    [Budget of the United States Government]
    [IV. Preparing For the 21st Century]
    [6. Enforcing the Law]
    [From the U.S. Government Publishing Office, www.gpo.gov]

    [[Page 107]]

                              6.  ENFORCING THE LAW

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

       Crime has been dropping, now, for seven straight years. This is the longest continuous decline in the crime
    rate ever recorded in our country. In part, that is because all of us, from the grassroots to Washington, D.C.,
    have intensified our support for common-sense strategies to fight crime and to prevent crime . . . . [but] I
    doubt if there is . . . . a person in our country who thinks the crime rate is low enough.

                                          President Clinton
                                          October 1999

      ----------------------------------------------------------------------
       When President Clinton took office in 1993, the violent crime rate in
    America had more than tripled during the previous three decades. Today,
    with the rate of violent crime continuing to fall each and every year
    since 1993, the President's crime-fighting program has made our streets
    safer and our communities stronger (see Chart 6-1). The Nation's overall
    crime rate is now at a 25-year low, the murder rate is its lowest in 31
    years, and crime is down in every region of the Nation.
       The President has described to leaders from the law enforcement
    community his clear-cut and effective anti-crime philosophy--``We think
    there ought to be more police and fewer guns on the street.'' Combined
    with stepped-up efforts to fight drugs, combat youth violence, and
    control illegal immigration, this multi-front fight against crime has
    significantly improved the lives of all Americans. By extending and
    expanding such efforts, as proposed in this budget, these anti-crime
    strategies can continue to make Americans safer and more secure for
    years to come.
       The President's Community Oriented Policing Services (COPS) went into
    force at the start of his first term. An ambitious plan to add 100,000
    police officers to local beats, the COPS program has increased resources
    for State and local law enforcement, expanded community policing to
    thousands of police departments Nation-wide, and brought stability and
    security to many crime-ridden neighborhoods. COPS has encouraged
    citizens to work closely with their local community police officers and
    with other criminal justice authorities to fight and prevent crime. By
    1999, COPS achieved the goal of funding 100,000 additional officers for
    our streets--ahead of schedule and under budget--helping to make
    communities safer.

       Building on the success of the COPS program, the President proposed,
    fought for, and secured passage of the next step in his anti-crime
    strategy--the 21st Century Policing Initiative. This initiative, also
    known as COPS II, maintains the Administration's commitment to keep the
    number of officers on the beat at an all-time high by funding up to an
    additional 50,000 officers by 2005. It also builds on the COPS program
    in two key ways. First, it provides significant new funds to give law
    enforcement access to the latest crime-fighting and crime-solving
    technologies. Second, the initiative engages entire communities in the
    hard work of preventing and fighting crime by funding new community-
    based prosecutors and partnerships among law enforcement and probation
    and parole officers, school officials, and faith-based organizations.
       In 1993, the Clinton Administration also began a sustained effort to
    reduce gun crime. The Administration proposed and secured passage of a
    series of new laws--the Brady Act, which created the National Instant
    Criminal Background Check System (NICS) to require background checks of
    all purchasers of firearms from federally-licensed dealers; reforms in
    the Federal firearms dealer licensing system to ensure that gun dealers
    comply with State and local laws and respond to crime gun trace
    requests; the assault weapons

    [[Page 108]]

    ban and the ban on large capacity ammunition feeding devices to reduce
    access to lethal weapons primarily designed for battle; and, the Youth
    Handgun Safety Act, prohibiting juveniles under 18 from possessing
    handguns. These laws have been instrumental in dramatically reducing
    violent gun violence, which has declined by more than 35 percent in the
    past seven years. In the same time frame, the number of juvenile gun
    homicide offenders has dropped by 57 percent.
       To strengthen enforcement of these laws and further expand the
    Administration's comprehensive efforts to combat gun violence in our
    society, the budget proposes the largest gun enforcement initiative in
    history: $70 million for upgrades to State and local criminal history
    records to improve the speed and accuracy of Brady background checks;
    $53 million for 500 new Bureau of Alcohol, Tobacco, and Firearms (ATF)
    agents and inspectors, and Nation-wide expansion of crime gun tracing
    and ballistics imaging systems; $150 million for grants to hire 1,000
    State and local gun prosecutors; $10 million for smart gun technology
    research; $15 million for over 100 Department of Justice (DOJ)
    prosecutors and 20 enforcement coordination teams; $10 million for local
    media campaigns on gun safety and gun violence; and, $10 million to help
    law enforcement end the practice of re-selling used police firearms and
    seized guns on the civilian market. These additional resources will
    further the decline of gun crime by stepping up Federal, State, and
    local law enforcement efforts against armed criminals and those who
    traffic in firearms to criminals and juveniles.
       While expanding resources to combat gun crime, the Administration
    will continue to urge Congress to pass common sense gun legislation to
    require background checks of prospective purchasers at gun shows,
    require child safety locks for handguns, ban the importation of large
    capacity ammunition magazines, and provide tougher penalties against gun
    traffickers and gun dealers who target and do business with those who
    are ineligible, including juveniles.

    [[Page 109]]

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

                                    The Clinton Administration's Anti-Crime Strategy

      Expanded local policing and fewer guns on the street are the cornerstone of the Administration's three-part
    strategy to make Americans safer and more secure for years to come:

     putting more police on the street and promoting community policing while taking measures to deter
     violent offenders and gun violence;

     controlling illegal immigration into the United States, including organized smuggling of aliens and
     other accompanying illegal activities, through reliance on stepped-up border enforcement and the use of
     technology; and,

     fighting drug abuse on all fronts, especially among children, by vigorously enforcing the Nation's drug
     laws and developing prevention programs which give children an alternative to crime and drugs and a chance for
     a positive future.

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

    Fighting Crime

       The budget proposes $29.0 billion to control crime, $2.4 billion--or
    8.8 percent--more than enacted for 2000 (see Chart 6-2). While enhancing
    Federal anti-crime efforts, the budget seeks to empower States and
    communities, which play the central role in controlling crime,
    particularly violent crime.

      21st Century Policing Initiative: The budget includes $1.3 billion for
    this initiative, $422 million more than was provided in 2000. This
    initiative includes:
       More police on the streets: $650 million will be used to hire
              and redeploy more law enforcement officers, with an effort to
              target new police officers to crime ``hot spots.'' In addition
              to the 100,000 police officers already funded by the COPS
              program, this will place up to 50,000 officers on the street
              by 2005. A portion of the funds will also be used to help
              economically distressed communities retain new police hires,
              and for other programs to recruit, train, and educate law
              enforcement officers.
       Crime fighting technology:  $350 million will be used to help
              State and local law enforcement agencies improve police
              communication systems, crime mapping, forensic laboratories,
              and other operations. In particular, this funding, together
              with efforts at the Treasury and Justice Departments, will
              ensure that the Nation's public safety workers can communicate
              with each other securely, swiftly and effectively.
       Over 1,000 new Federal, State, and local gun prosecutors:
              $200 million will be used for State and local prosecutors,
              including $150 million for prosecutors, and $50 million for
              community-based prosecutors dedicated to local crime problems
              and quality of life issues. This will fund 1,000 new State and
              local prosecutors to combat gun crime and violence, over 100
              new Federal gun prosecutors, and new gun enforcement teams to
              coordinate efforts with local law enforcement to put gun
              criminals behind bars.
       Community crime prevention: $135 million will be used for
              community-based crime prevention programs. These funds will be
              used to form partnerships with probation and parole officers
              in supervising released offenders, local school officials in
              adopting community-wide crime prevention plans, and faith-
              based organizations to address youth crime problems. Funds
              also will be used to promote police integrity and hate crimes
              training and to establish citizens' academies that teach
              neighborhood residents problem-solving skills.

       Firearms Enforcement: When the President took office seven years ago,
    he put into place a comprehensive strategy focused on keeping guns out
    of the wrong hands and deterring and incarcerating gun criminals. The
    Brady Act has prevented more than 472,000 felons, fugitives, and
    stalkers from purchasing firearms while prosecutions of gun criminals
    are up and gun crime has dropped by more than 35 percent. However,
    despite this progress, far too many Americans, especially

    [[Page 110]]

    children, lose their lives as a result of gunfire. The budget will build
    on the Administration's efforts to reduce gun violence with the largest
    national gun enforcement initiative in history.
       500 new ATF agents and inspectors: The budget funds the
              largest increase ever in ATF agents and inspectors, including
              300 new agents to support local enforcement efforts throughout
              the country in making cases against armed criminals and
              against illegal firearms traffickers at gun shows, gun stores,
              and on the streets, and 200 new inspectors to target gun
              manufacturers, distributors, and dealers who supply firearms
              to criminals and juveniles.
       Comprehensive crime gun tracing: To move toward tracing every
              crime gun in America, the budget proposes funds to provide 250
              local law enforcement agencies with training and software to
              facilitate comprehensive tracing, and to expand the
              Administration's Youth Crime Gun Interdiction Initiative from
              38 to 50 cities across the country.
       New National Integrated Ballistics Information Network: The
              Administration proposes to triple current funding for
              ballistics testing programs to launch the first national
              ballistics network. This initiative will support the
              deployment of 150 new ballistics imaging units to law
              enforcement to trace bullets and shell casings to the
              criminals who fired them.
       Local anti-gun violence media campaigns: The budget provides
              $10 million in matching grants from DOJ to support local media
              campaigns highlighting penalties for breaking gun laws, proper
              storage of firearms, and preventing child access to guns.
       Strengthened Brady background checks: The budget provides $70
              million, double the current funding level, to improve State
              criminal history records and improve the speed and accuracy of
              Brady background checks. In addition, $5 million will fund a
              National Instant Notification system to help police apprehend
              criminals attempt

    [[Page 111]]

              ing to illegally purchase firearms in those States not acting
              as a point of contact for NICS.
      Smart gun technology: The budget proposes $10 million for
              expansion, testing, and replication of ``smart'' gun
              technologies. These state-of-the-art gun safety precautions
              can limit a gun's use to its owner or other authorized users--
              preventing gun deaths and injuries.
      Keeping used police guns out of the hands of criminals: To end
              the resale of used police guns and seized firearms, $10
              million is provided for one-time grants to law enforcement
              agencies on the condition that they halt such practices.

       Youth Violence: A total of $8.9 billion is included in the budget for
    Government-wide programs to address youth violence. One example of this
    cross-agency effort is the Safe Schools/Health Students program, which
    brings together the Justice, Education, and Labor Departments to create
    colloborative solutions to youth violence. Also included in this effort
    is $289 million for DOJ programs to fight juvenile crime, including
    support for local community prevention programs such as mentoring,
    truancy prevention, and gang intervention.
       Safe Streets Task Forces: The budget proposes $128 million to
    continue the Safe Streets program, which blends the efforts of the FBI
    and other Federal law enforcement agencies with those of State and local
    police departments to investigate street crime and violence. A
    complementary initiative, the Weed and Seed Program, provides $42
    million for multi-agency efforts to ``weed out'' crime from targeted
    neighborhoods, then ``seed'' the sites with a wide range of crime and
    drug prevention programs.
       Community Supervision of Released Offenders--Project Reentry: The
    budget proposes a new $60 million community supervision initiative to
    address community safety concerns, lower recidivism rates, and promote
    responsible fatherhood for the nearly 500,000 inmates who will leave
    prison or jail this year and reenter local communities. The need for
    greater supervision is significant: two-thirds of all prisoners are
    arrested for new offenses within three years of release. The initiative
    is comprised of reentry partnerships and reentry courts. Reentry
    partnerships will team up police and corrections agencies with local
    service providers and non-profit groups (including faith-based, victims,
    and fatherhood groups) to regularly monitor released offenders. Grants
    will fund partnerships to help hire additional corrections staff to
    supervise offenders and impose graduated sanctions, target resources
    such as drug testing and treatment and job training, and require
    responsibility for child support and other obligations. Reentry courts
    will employ the drug court model of judicial supervision to oversee
    offenders on conditional release--with regular court appearances,
    graduated sanctions to establish accountability, and targeted services
    such as drug testing and treatment. The initiative will be complemented
    by job training grants from the Department of Labor's Responsible
    Reintegration for Young Offenders initiative, and targeted substance
    abuse and mental health grants from HHS.
       Crime in Public Housing: The budget proposes $345 million to support
    anti-crime, anti-drug, gun safety, and violence reduction programs in
    public housing, including Operation Safe Home and a new $3.0 million
    Community Gun Safety and Violence Reduction initiative. The Department
    of Housing and Urban Development's Office of Public Housing and Office
    of the Inspector General jointly administer Operation Safe Home, which
    brings together residents, managers, and various Federal and local law
    enforcement agencies to rid public housing communities of crime. The
    Community Gun Safety and Violence Reduction initiative will support gun
    violence reduction programs to complement existing community safety
    programs and will fund state-of-the art computerized gun-violence
    tracking and gun-tracing efforts to assist communities and law
    enforcement agencies in planning gun-violence reduction efforts.
       Violence Against Women: Violence against women is a continuing
    problem. Nearly a third of all women murdered in the United States are
    killed by a current or former spouse or intimate partner. Studies show
    that child abuse occurs in 30 to 60 percent of domestic violence cases
    involving families with children. Studies also show that law enforcement
    inter

    [[Page 112]]

    vention often breaks the cycle of domestic violence, preventing
    subsequent incidents. The budget proposes a record high $516 million to
    maintain efforts to combat gender-based crime, $33 million more than
    2000. These funds are used to support grants to develop and strengthen
    the criminal justice system's response to violence against women and to
    support and enhance services for victims, to fund the National Domestic
    Violence hotline, to fund battered women's shelters, and to expand
    outreach to under-served rural, Indian, and minority populations.
      Hate Crimes: The President has urged Congress to pass the Hate Crimes
    Prevention Act, which would strengthen the existing Federal hate crimes
    law by expanding the situations in which DOJ can prosecute defendants
    for violent crimes based on race, color, religion, or national origin.
    Further, it would expand existing law to cover cases of hate crimes
    based on sexual orientation, gender, or disability. The budget includes
    $20 million for training for Federal, State, and local law enforcement
    to prevent and respond to hate crimes and police integrity.
      Law Enforcement on Indian Lands: Homicide and violent crime rates on
    Indian lands are rising, even as crime rates in the rest of the country
    fall. According to DOJ, American Indians are the victims of violent
    crimes at more than twice the rate of all U.S. residents. The
    Administration proposes $439 million for the third year of this joint
    Justice and Interior Departments initiative, an increase of $103 million
    over the 2000 level. The money is used to increase the number of fully
    trained and equipped police officers in Indian country, improve the
    quality of the criminal justice system, including courts and detention
    facilities, enhance substance abuse programs, and combat tribal youth
    crime.
       State Criminal Alien Assistance: The budget proposes $600 million to
    reimburse State and local governments for the cost of incarcerating
    criminal illegal aliens. This is a $15 million increase over the 2000
    level.
       Financial Crime: The budget provides a $15 million increase to the
    Treasury Department to develop and implement initiatives as part of the
    national strategy for combating money laundering and financial crime.
    This strategy relies on the efforts of a number of Treasury Department
    bureaus, including the U.S. Customs Service and the Internal Revenue
    Service, which identify, disrupt, and dismantle criminal organizations
    that launder the proceeds generated by smuggling, trade fraud, export
    violations, and a range of other illegal activities. In addition, the
    Financial Crimes Enforcement Network provides money laundering case
    support through its regulatory partnerships and technology enhancements
    that allow for strategic analysis of trends and patterns in money
    laundering and related financial crimes.
       Terrorism: Acts of domestic terrorism have resulted in deaths and
    injuries to American citizens, while terrorism overseas has taken an
    even heavier toll. While it is true that our Nation has had fewer
    incidents of domestic terrorism than many others, we must remain
    vigilant against terrorist threats on domestic soil and overseas.
       Over the past years, the Administration has consistently sought
    additional resources to enhance the safety of the public and the
    Government from these violent and devastating criminal acts. The budget
    provides over $11 billion to combat terrorism, weapons of mass
    destruction, and cyber crime, $1.3 billion more than provided in 2000.
    Of the total, $632 million would support law enforcement activities in
    the Departments of Justice and the Treasury and other domestic agencies.
    Chapter 9, ``Supporting the World's Strongest Military Force,''
    describes the Federal Government's efforts to combat terrorism and
    protect our national security.

       Federal Crime Fighting Technology: The budget includes major
    increases for two technology programs that will significantly enhance
    the capabilities of Federal law enforcement. Court-authorized wiretaps
    are a major investigative tool of Federal law enforcement. However, as
    the telecommunications industry converts from an analog to digital
    environment, the ability of law enforcement to use this tool is
    diminished unless the digital equipment contains certain features. The
    Communications Assistance for Law Enforcement Act of 1994 authorizes the
    Federal Government to reimburse telecommunications manufacturers and
    carriers for the costs of ``retrofitting''

    [[Page 113]]

    equipment installed before January 1, 1995, in order that court-
    authorized wiretaps can be conducted. Funding for this purpose would be
    increased from $15 million in 2000 to $240 million in 2001.
    Manufacturers and carriers are responsible for including the necessary
    features in telecommunications equipment installed after January 1,
    1995.
       In addition, the budget proposes increases to support upgrades in
    Federal wireless communications systems, including improved efficiency
    in the use of telecommunications spectrum assigned to law enforcement
    and promoting compatibility with communications equipment of public
    safety agencies at all levels of government. DOJ's budget for wireless
    systems would increase from $103 million to $205 million, which would
    support radio systems for the FBI, the Drug Enforcement Administration
    (DEA), the Immigration and Naturalization Service (INS), and the U.S.
    Marshals Service. DOJ's planning and infrastructure efforts also would
    support other agencies' wireless efforts. Treasury's budget includes $55
    million to establish an Integrated Treasury Network for wireless
    communications, which would primarily support Treasury's law enforcement
    bureaus, including the U.S. Customs Service, the U.S. Secret Service,
    and the ATF. Increased costs in Justice, Treasury, and other agencies
    would be offset by $200 million in proposed fees on commercial
    television broadcasters' use of the analog spectrum.

       Corrections: The number of inmates in the Federal Prison System has
    more than doubled since 1990 as a result of tougher sentencing
    guidelines, the abolition of parole, minimum mandatory sentences, and
    significant increases in Federal law enforcement spending. This growth
    rate is projected to continue into the 21st Century. The budget provides
    $4.4 billion for the Federal Bureau of Prisons, $736 million over the
    2000 level, to reduce the current level of overcrowding and to
    accommodate this future growth. The budget also supports an effort to
    increase inmate enrollment in literacy programs.

    Meeting the Challenges of Immigration

       The United States is a Nation of immigrants. While we have always
    welcomed legal immigrants, the United States is also a Nation of laws
    and must act to combat illegal immigration. This Administration has done
    more to control illegal immigration than any before. Working through the
    INS, the Administration has reversed decades of neglect along the
    Southwest border and has added technology along the Northern border.
    Since 1993, this strategy has added over 5,400 new Border Patrol
    agents--over 130 percent higher than the 1993 level. And while the INS
    continues to recruit and train qualified new Border Patrol agents
    aggressively, it is also extending its enforcement efforts through the
    use of state-of-the-art technology, border barriers, and infrastructure
    to enhance the rule of law along the border. However, we must do more.
    The budget continues to fund this bipartisan effort to gain control and
    effectively manage our Nation's borders. (See Table 6-1 for INS funding
    by program.)
      ----------------------------------------------------------------------

                   Table 6-1.  Immigration  and  Naturalization  Service            Funding by Program
                                           (Budget authority, in millions of dollars)
    ----------------------------------------------------------------------------------------------------------------
                                                                                                   Dollar    Dollar
                                                                      1993      2000      2001     Change:   Change:
                                                                     Actual   Estimate  Proposed   1993 to   2000 to
                                                                                                    2001      2001
    ----------------------------------------------------------------------------------------------------------------
    Appropriated Funds:
       Border Patrol..............................................       354     1,055     1,208      +854      +153
       Investigations and intelligence............................       142       308       328      +186       +20
       Land border inspections....................................        83       182       218      +135       +36
       Immigration support........................................  ........       124        35       +35       -89
       Detention and deportation..................................       161       728       828      +667      +100
       Program support and construction...........................       227       594       649      +422       +55
                                                                   -------------------------------------------------
         Subtotal, Appropriated Funds.............................       967     2,991     3,266    +2,299      +275

    Fee Collections and  Reimbursements:
       Citizenship and benefits...................................       308       754       807      +499       +53
       Detention and deportation..................................  ........        69       110      +110       +41
       Air/sea inspections and support............................       255       487       529      +274       +42
       Immigration support/enforcement............................  ........  ........        98       +98       +98
                                                                   -------------------------------------------------
         Subtotal, Fee Collections and Reimbursements.............       563     1,310     1,544      +981      +234
                                                                   =================================================
    Total, Immigration and Naturalization Service.................     1,530     4,301     4,810    +3,280      +509
    ----------------------------------------------------------------------------------------------------------------

      ----------------------------------------------------------------------
       While the Federal Government takes steps to curb illegal immigration,
    it must also be responsive to those who seek to immigrate to this
    country by legal means, and to those who have emigrated and now seek to
    become U.S. citizens.
       Over the past year, the Administration has made steady progress in
    reforming the naturalization process which, since 1995, has seen a
    dramatic upsurge in demand for naturalization and other immigration
    benefits. After two years of a growing application backlog and longer
    wait times, in 1999, the first year of a two-year naturalization program
    reform effort, INS reduced the pending application backlog by nearly
    500,000 applications. In total, INS completed over 1.2 million
    applications for new citizens and reduced the average application
    processing times from 27 months in 1998 to 12 months in 1999. INS
    intends to reduce average processing times further, to just six months,
    by the end of 2000. This will be accomplished while completing 1.3
    million applications for citizenship. The Administration is committed

    [[Page 114]]

    to a streamlined naturalization program that provides high quality and
    timely customer service for the most important and valuable benefit the
    Federal Government can bestow--citizenship. In addition, the INS has
    established completion goals and developed a multi-year plan to address
    application backlogs in other immigration services programs. The budget
    provides additional funds to reduce these backlogs and expand process
    reinvention to ensure that all immigration benefits and services are
    provided in an efficient and timely manner.

      Border Control and Enforcement: The budget proposes support for a
    combination of Border Patrol agents and technology to control specific
    border crossing areas. Previous investments have lead to successful
    efforts to control and manage the border near urban areas with a high
    level of illegal entry, such as San Diego, California, and El Paso,
    Texas. Continuing this border control strategy, the budget funds 430 new
    Border Patrol agents and $20 million in ``force-multiplying''
    technology. The current focus is to gain control of the border around
    Douglas, Arizona. Once an acceptable level of control has been achieved
    here, the agents and technology proposed in the budget will be used to
    improve Border Patrol control over border areas in and around Laredo,
    McAllen, and Del Rio, Texas. With the new agents to be added by the end
    of 2001, it is estimated that over 9,800 Border Patrol agents will be
    deployed along the Nation's Northern and Southern borders--nearly 150
    percent more than the 3,965 agents in 1993. An additional $20 million
    will fund high resolution color and infrared cameras and state-of-the-
    art command centers as force multipliers to supplement the new agents
    and provide continuous monitoring of the border from remote sites. In
    test locations in Arizona and New Mexico, this technology has had a
    dramatic effect on border control and management and is increasing the
    safety of officers who must respond to incursions. The proposed
    combination of surveillance technology and

    [[Page 115]]

    Border Patrol agents will permit INS to enforce the rule of law and
    enhance border management over larger portions of the border. The budget
    also supports the INS border safety initiative to dissuade migrants from
    illegal crossings, particularly in areas that could lead to their injury
    or death.
       The budget provides funds for compensation and overtime reform for
    Border Patrol agents and inspectors. It also provides funds to expand,
    renovate, and construct Border Patrol stations, border barriers and
    fencing, install permanent lighting, and construct support roads along
    the borders. These deterrents help control the border by increasing the
    abilities of Border Patrol agents to apprehend those trying to enter
    illegally. Since 1993, INS has added over 233 night scopes, 7,299 ground
    sensors, 82 miles of fencing, and 22 miles of border lighting. It has
    also added or improved over 1,500 miles of roads. The budget provides
    funds for another 18 miles of border lighting and fencing, and for
    maintaining border deterrents now in place.

       Detention and Removal of Illegal Aliens: The Administration is
    committed to removing those who have entered the country illegally and
    to detain criminal aliens. Since 1993, INS' detention budget has
    increased by over 407 percent and over 13,600 detention beds have been
    added. The budget expands on this commitment by adding another 1,000
    detention beds and 38 juvenile beds--bringing total INS detention
    capacity to nearly 20,000 beds. It also funds INS detention and
    deportation staff and increases resources to remove criminal and illegal
    aliens swiftly. With the resources provided over the past few years, INS
    has targeted its efforts primarily on removing deportable aliens held in
    Federal, State, and local facilities to ensure these criminal aliens are
    not allowed back on the street. In 1999, INS removed 178,168 aliens,
    including 62,838 criminal aliens. At the same time, the budget provides
    funding to implement detention standards to ensure those detained,
    particularly those who have pending asylum cases, are treated fairly.
       Border and Port-of-Entry Coordination: The Departments of Justice and
    Treasury have initiated a five-year Border Coordination Initiative with
    a goal of achieving a comprehensive, integrated border management
    strategy that provides for increased cooperative efforts to interdict
    illegal aliens, drugs, and other contraband. It will result in a
    seamless process of travel and trade facilitation and border enforcement
    at and between the land ports of entry, especially along the Southwest
    Border. During the past year, the Customs Service and INS have made
    strides in fostering a culture of cooperation that enables them to act
    in concert for improved results. These cooperative efforts include
    expansion of multi-agency intelligence units to coordinate intelligence
    gathering and dissemination among agencies and the establishment of a
    timetable to implement compatible and secure communications systems.
       Citizenship and Benefits: The Administration is committed to building
    and maintaining a naturalization and immigration service system that
    ensures integrity and provides service and benefits in a timely manner.
    The surge of citizenship applications, growing from approximately
    340,000 in 1993 to a peak of nearly 1.6 million in 1997, resulted in an
    unacceptable backlog and has required the INS to redesign its
    decentralized process which had been built for a far smaller application
    volume. The record number of applications, antiquated INS processes, and
    complex automation and redesign efforts contributed to an unacceptable
    citizenship application backlog that exceeded 1.8 million cases in 1999.
    As a result of a concerted and ongoing effort, this backlog has since
    been significantly reduced.
       Over the past two years, the Administration, working with Congress,
    has provided $300 million to supplement INS examinations fee revenue in
    a successful effort to reduce naturalization backlogs and to initiate
    reforms in the processing of immigration service programs. Ongoing
    initiatives include:
       centralization of immigrant records into a National Records
              Center with automated query and retrieval capability to ensure
              accurate and complete records and to speed service delivery;
       establishment of a National Customer Service Center for
              telephone service, with access throughout the United States
              and Puerto Rico in 2000;

    [[Page 116]]

       centralization of application and medical waiver reviews from
              INS field offices to Service Centers to maximize application
              and file quality and integrity, thereby ensuring that INS
              adjudicators receive cases that can be processed properly;
              and,
       quality assurance audits and reviews of the benefits
              processing system and benefits applications.
       The budget provides $35 million to address backlogs in other
    immigration benefit programs and establishes an Immigration Services
    Capital Investment Account to provide funding for ongoing backlog
    reduction efforts in all immigration benefit programs and for major
    capital acquisitions. This account will be further capitalized with an
    estimated $93 million from two new fees, including a premium processing
    fee of $1,000 for expedited adjudication of business-related services.
    Payment of this voluntary fee will ensure INS action on applications
    within 15 days through direct business-INS liaison, and permits INS to
    target additional resources at fraud prevention in business
    applications. The second proposal would re-authorize the 245(i)
    adjustment of status penalty provision. This provision, which expired in
    1998, permits certain migrants, upon payment of a $1,000 penalty, to
    adjust their immigration status while remaining in the United States.

      An INS Structure for the Future: Over the past few years, the
    Administration has worked in a close and bipartisan manner with Congress
    to improve INS' operations. In the same vein, the Administration remains
    committed to addressing systemic problems, particularly those related to
    INS' dual missions of service and enforcement. These systemic problems
    include: competing priorities; insufficient accountability between field
    offices and headquarters; overlapping organizational relationships, and,
    lack of consistent operations and policies.
       The Administration's principles for a successful restructuring are
    that immigration enforcement and service missions must have separate and
    clear lines of authority at all levels, from the field to headquarters,
    and that the immigration agency must be led by a single executive who
    can integrate immigration policy, standards, and management operations.
    This single executive, appointed by the President and confirmed by the
    Senate, is essential to maintain balance between enforcement and
    services, while ensuring a coherent and coordinated national immigration
    policy. To be effective, this official must have the statutory authority
    to direct operations and supervise key integrating and oversight
    functions, such as legal counsel, financial management, policy, and
    communications.
       The Administration will work with Congress to enact legislation that
    will fundamentally improve the way immigration operations are conducted,
    building on the progress already made to reform the INS. The
    Administration considers it critical to meet this challenge and enact
    responsible restructuring legislation this year.

    Reducing Drug Use, Trafficking, Drug-Related Crime, and Its Consequences

       Drug use and its damaging consequences cost our society more than
    $110 billion a year and poison the schools and neighborhoods where our
    youth strive to reach their full potential. Illicit drug trafficking
    thrives on a culture of crime, violence, and corruption throughout the
    world. Drug use is a major contributing factor in the spread of AIDS and
    other deadly diseases. All Americans, regardless of economic,
    geographic, or other position in society, feel the effects of drug use
    and drug-related crime.
       The results of the most recent National Household Survey on Drug
    Abuse show that the rate of use in the past month of any illicit drug
    among 12 to 17 year olds declined from 11.4 percent in 1997 to 9.9
    percent in 1998, a 13-percent decrease. This change is complemented by
    the 1999 Monitoring the Future Study finding that over the past three
    years, youth viewed marijuana use with greater risk. Youth use of other
    drugs, including alcohol, cigarettes, cocaine, and heroin, either
    declined or remained stable over this period. These results suggest that
    America's youth are receptive to the Government's ``no use'' message.
       The budget proposes $19.2 billion for drug control programs, an $1.7
    billion increase over the 2000 enacted level. The budget

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     supports increases for key elements in the effort to reduce drug use
    and its consequences, such as drug treatment; prevention, especially for
    children and adolescents; domestic law enforcement; and, other supply
    reduction programs, including significant support for anti-drug efforts
    in Colombia. (For more information, see Chart 6-3, and Chapter 23,
    ``Federal Drug Control Funding'' in Analytical Perspectives.)

      Colombia: The budget proposes $1.6 billion, of which $1.3 billion is
    new 2000 and 2001 funding, for counternarcotics efforts in the Andean
    Region, primarily in Colombia. An estimated 80 percent of the cocaine
    that enters the United States originates in or passes through Colombia.
    Colombia also produces up to six metric tons of heroin annually, and is
    a major supplier of heroin to the United States. Cultivation of coca,
    the raw material for cocaine, has nearly tripled in Colombia since 1992.
    In addition, Colombian traffickers and coca farmers have recently
    adopted new cultivation and processing techniques, increasing the amount
    of drugs processed from each acre of crop. Colombia now cultivates more
    than half of the coca leaf grown in the world. If unchecked, the rapid
    expansion of coca crops and cocaine production in Colombia threatens to
    increase significantly the global supply of cocaine over the next
    several years.
      The Government of Colombia's efforts to attack the drug trade are
    hampered by the fact that guerrillas and paramilitary groups dominate
    key drug-producing regions. In addition to these illegal armed groups,
    organized drug mafias continue to control the international aspects of
    Colombia's drug trade. The money flowing to these outlaw groups from the
    drug trade generates violence and corruption and threatens Colombia's
    democratic institutions. The drug threat, violence, and insecurity are
    compounded by the worst economic recession in Colombia in almost 70
    years.
       The democratically elected government of Colombian President Andres
    Pastrana has devised a comprehensive, integrated strategy,

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    Plan Colombia, to address Colombia's drug and interrelated social and
    economic troubles. The budget proposes $1.6 billion in assistance for
    Plan Colombia, including an increase of $1.3 billion over two years--a
    2000 supplemental appropriation of $954 million and $318 million in
    2001.
       Since there is no single solution to Colombia's difficulty, the
    program is an integrated combination of funds for Colombian counterdrug
    efforts and for other programs to help President Pastrana strengthen
    democracy and promote prosperity. The proposal would enhance alternative
    development, strengthen the justice system and other democratic
    institutions, and provide counterdrug equipment, training, and technical
    assistance to Colombian police and military forces. The Administration
    is also encouraging U.S. allies and international institutions to assist
    Colombia in implementing President Pastrana's Plan Colombia. The budget
    proposal would also provide additional funding to support counterdrug
    regional interdiction and alternative development programs to preserve
    and advance gains against drug production in Peru and Bolivia and
    prevent the traffickers from simply moving their operations to avoid law
    enforcement. It is in the national interest of the United States to stem
    the flow of illegal drugs into the United States and to promote
    stability and strengthen democracy in Colombia and the Andean Region.

       Stop Drugs--Stop Crime: In order to break the cycle of drug use and
    its consequences, drug-abusing offenders in local, State, and Federal
    correctional systems should be subject to vigorous drug testing and
    treatment. The budget includes $215 million, including $112 million in
    new funding, to help break this cycle. The initiative includes: $100
    million of new funding to help States and localities implement or expand
    tough systems of drug testing, treatment, and graduated sanctions for
    prisoners, parolees, probationers, and ex-offenders re-entering society;
    $50 million, a 25-percent increase over 2000, for drug courts that work
    to break non-violent offenders of their drug addiction; and, $65
    million, three percent above 2000, to provide intensive drug treatment
    to hardcore drug users before and after they are released from prison.
       Drug Treatment: The budget proposes $3.8 billion to treat drug abuse,
    $256 million more than in 2000, including $1.2 billion, two percent
    above 2000, for the Substance Abuse Block Grant and $163 million, a 43-
    percent increase over 2000, for the Targeted Treatment Capacity
    Expansion Grants. The Administration realizes that an effective
    treatment system must confront drug abuse where the challenge is the
    greatest--in the streets of urban, suburban, and rural drug markets, and
    in the criminal justice system. It is a top priority to close the gap
    between the number of persons wanting treatment and the number receiving
    it. These chronic drug users consume a disproportionate amount of the
    illicit drugs used and inflict a disproportionate share of drug- related
    costs on society.
       National Youth Anti-Drug Media Campaign: The Office of National Drug
    Control Policy, in conjunction with other Federal, State, local, and
    private experts, is implementing a $2 billion, multi-year national media
    campaign, including paid advertisements. The campaign targets youth,
    their parents, and other influential adults on the consequences of
    illicit drug use. The anti-drug media campaign is fully integrated
    Nation-wide, including utilization of the Internet, radio, newspapers,
    and other media outlets. This campaign will continue in 2001 with $195
    million in Federal funds, matched by private sector contributions.
       Community-Based Prevention: The budget proposes $2.5 billion for drug
    prevention programs, an increase of $75 million over 2000. The budget
    also includes $35 million, a 17-percent increase over 2000, for
    activities of the Drug-Free Communities Support program that promotes
    citizen participation in efforts to reduce substance abuse among youth
    and help community anti-drug coalitions carry out their important
    missions.
       Safe and Drug-Free Schools and Communities Program: Students can
    reach their full potential only in safe, disciplined, and drug-free
    learning environments. The Safe and Drug-Free Schools and Communities
    program helps 97 percent of all school districts implement anti-drug and
    anti-violence programs. The budget proposes $650 million for this
    program, including $40 million in new funding

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    to expand the interagency Safe Schools/Healthy Students initiative,
    which supports comprehensive, community-wide school safety and violence
    prevention plans. The budget also includes $50 million for the
    Coordinator Initiative, which will enable over 1,300 of the Nation's
    middle schools to have a knowledgeable director for drug and violence
    prevention programs to ensure that local programs are effective and that
    school-based prevention programs are linked to community-based efforts.
       Domestic Drug Law Enforcement: The budget proposes $9.8 billion for
    drug-related domestic law enforcement, $774 million more than in 2000,
    to bolster community-based law enforcement efforts, shield the Southwest
    border from illicit drugs, and enhance coordination among Federal,
    State, and local law enforcement agencies. The budget proposes an
    increase of $65 million for DEA, most of which is to increase staff
    productivity through an improved information, telecommunications, and
    technology infrastructure. The Federal Government will continue its
    focus on providing leadership and training; facilitating multi-agency
    cooperative efforts through the High Intensity Drug Trafficking Areas
    program, the Southwest border initiative, and other efforts; and,
    offering incentives to States and localities to use the most effective
    drug control methods.
       Southern Tier of the United States: The Administration remains
    committed to shielding the Nation's Southern tier from the drug threat.
    The budget supports the addition of inspectors and new technology at
    additional ports of entry along the Southwest border. The Customs
    Service will continue to deploy technology, such as the use of x-rays in
    the air passenger and outbound environments, to detect illicit
    contraband and currency. The budget further solidifies the INS
    interdiction effort by providing additional staff and force-multiplying
    technology. An increase of $46 million will expand Coast Guard
    interdiction operations nine percent above the 2000 level.