Homeland Security: Information on Training New Border Patrol	 
Agents (30-MAR-07, GAO-07-540R).				 
                                                                 
The U.S. Border Patrol is responsible for patrolling 8,000 miles 
of the land and coastal borders of the United States to detect	 
and prevent the illegal entry of aliens and contraband, including
terrorists and weapons of mass destruction. Although the Border  
Patrol apprehends hundreds of thousands of people entering the	 
country illegally each year, several hundreds of thousands more  
individuals successfully enter the country illegally and	 
undetected each year. In May 2006, the President called for	 
comprehensive immigration reform that included strengthening	 
control of the country's borders by, among other things, adding  
6,000 new agents to the Border Patrol by the end of December	 
2008. This would increase the total number of agents from 12,349 
to 18,319, an unprecedented 48 percent increase over the next 2  
years. The Border Patrol plans to add these new agents to the	 
southwest border while transferring up to 1,000 experienced	 
agents to the northern border. Concerned about the ability of the
Border Patrol's basic training program to accommodate this	 
significant increase in Border Patrol agent trainees, Congress	 
requested that we provide information on the content, quality,	 
and cost of the Border Patrol's basic training program for new	 
agents. This report addresses the following questions: To what	 
extent does the Border Patrol's basic training program for new	 
border patrol agents exhibit the attributes of an effective	 
training program and how has the training program changed since  
September 11, 2001? How much does it cost to train a new Border  
Patrol agent? How does the Border Patrol's basic training program
and cost compare to those of other similar federal and nonfederal
law enforcement basic training programs? What plans, if any, has 
the Border Patrol developed or considered to improve the	 
efficiency of its basic training program?			 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-07-540R					        
    ACCNO:   A67586						        
  TITLE:     Homeland Security: Information on Training New Border    
Patrol Agents							 
     DATE:   03/30/2007 
  SUBJECT:   Border patrols					 
	     Border security					 
	     Education						 
	     Education program evaluation			 
	     Employee training					 
	     Homeland security					 
	     Illegal aliens					 
	     Law enforcement					 
	     Police training					 

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GAO-07-540R

   

     * [1] 
     * [2]Enclosure I: Briefing Slides
     * [3]Enclosure II: Comments from the Department of Homeland Secur

          * [4]Order by Mail or Phone

United States Government Accountability Office
Washington, DC 20548

March 30, 2007

The Honorable Mike Rogers
Ranking Minority Member
Subcommittee on Management, Investigations, and Oversight
Committee on Homeland Security
House of Representatives

Subject: Homeland Security: Information on Training New Border Patrol
Agents

Dear Mr. Rogers:

The U.S. Border Patrol is responsible for patrolling 8,000 miles of the
land and coastal borders of the United States to detect and prevent the
illegal entry of aliens and contraband, including terrorists and weapons
of mass destruction. Although the Border Patrol apprehends hundreds of
thousands of people entering the country illegally each year, several
hundreds of thousands more individuals successfully enter the country
illegally and undetected each year.1 In May 2006, the President called for
comprehensive immigration reform that included strengthening control of
the country's borders by, among other things, adding 6,000 new agents to
the Border Patrol by the end of December 2008. This would increase the
total number of agents from 12,349 to 18,319, an unprecedented 48 percent
increase over the next 2 years. The Border Patrol plans to add these new
agents to the southwest border while transferring up to 1,000 experienced
agents to the northern border.

Concerned about the ability of the Border Patrol's basic training program
to accommodate this significant increase in Border Patrol agent trainees,
you requested that we provide information on the content, quality, and
cost of the Border Patrol's basic training program for new agents. This
report addresses the following questions:

           o To what extent does the Border Patrol's basic training program
           for new border patrol agents exhibit the attributes of an
           effective training program and how has the training program
           changed since September 11, 2001?
           o How much does it cost to train a new Border Patrol agent?
           o How does the Border Patrol's basic training program and cost
           compare to those of other similar federal and nonfederal law
           enforcement basic training programs?
           o What plans, if any, has the Border Patrol developed or
           considered to improve the efficiency of its basic training
           program?

1 Congressional Research Service, Border Security: The Role of the U.S.
Border Patrol, RL32562 (Washington, D.C.: Jan. 25, 2006).

To determine the extent to which the Border Patrol's training program
exhibited the attributes and characteristics of an effective training
program, we reviewed the Border Patrol's basic training curriculum,
including course materials, evaluation procedures and forms, and syllabi
and compared them with GAO's guide for assessing federal training
programs.2 We also visited the Border Patrol Academy in Artesia, New
Mexico, and observed training in progress and discussed training content
with the Academy Chief and course managers. To determine what changes the
Border Patrol made to the basic training program since September 11, we
obtained descriptions of new material added in response to the terrorist
attacks.

To determine the cost to train a new border patrol agent, we reviewed the
Federal Law Enforcement Training Center's (FLETC) methodology used to
calculate the average training cost per agent. To assess the reliability
of these training cost data, we discussed the data collection methods and
internal control processes for ensuring data quality with responsible
officials and staff, reviewed the data and information for reasonableness,
and reviewed relevant audits and evaluations related to the data. We found
that the data we used for our analyses were sufficiently reliable for the
purposes of this report. We also reviewed the model used by Customs and
Border Protection's (CBP) Office of Finance to formulate its budget for
deploying a new border patrol agent.

To compare the cost of the Border Patrol's basic training program to that
of other similar basic training programs (i.e., civilian, patrol-based law
enforcement training for operations in the southwest region of the United
States), we obtained course curricula and training cost information from
FLETC, the Department of the Interior's Bureau of Indian Affairs (BIA),
the Southern Arizona Law Enforcement Training Center, and the Texas
Department of Public Safety. We did not identify any private firms
offering a similar training program. Because the cost information for BIA
was calculated by FLETC using the same methodology used to provide cost
information for the Border Patrol Academy, we determined that the
information was sufficiently reliable for our purposes. To assess the
reliability of the cost information provided by Arizona and Texas, we
discussed how these cost estimates were derived with knowledgeable state
officials and obtained and reviewed corroborating documentation for
reasonableness. We determined that for the purpose of this report, the
estimates were sufficiently reliable.

To determine what plans the Border Patrol has, or considered, for
improving the efficiency of its basic training program, we interviewed CBP
officials in headquarters, including the Chief of the Border Patrol; the
Assistant Commissioner, Office of Training and Development; and Chief
Patrol Agents at the Border Patrol Academy in Artesia, New Mexico, and in
El Paso and Tucson. We also obtained the views of these officials, as well
as selected supervisory and new Border Patrol agents in the field
regarding the training of new agents.

In February 2007, we discussed the results of our work with you. This
report conveys the information provided during that discussion (see
Enclosure I). We performed our work from September 2006 through March 2007
in accordance with generally accepted government auditing standards.

2 GAO, Human Capital: A Guide for Assessing Strategic Training and
Development Efforts in the Federal Government, [5]GAO-04-546G (Washington,
D.C.: March 2004).

Background

The U.S. Border Patrol, within the Department of Homeland Security's (DHS)
CBP, is responsible for patrolling 8,000 miles of the land and coastal
borders of the United States to detect and prevent the illegal entry of
aliens and contraband, including terrorists, terrorist weapons, and
weapons of mass destruction. As of October 2006, the Border Patrol had
12,349 agents stationed in 20 sectors along the southwest, northern, and
coastal borders. FLETC is an interagency training provider responsible for
basic, advanced, and specialized training for approximately 82 federal
agencies, including CBP's Border Patrol. Under a memorandum of
understanding, FLETC hosts the Border Patrol's training academy in
Artesia, New Mexico, and shares the cost of providing training with the
Border Patrol. For example, FLETC provides the facilities, some
instructors (e.g., retired Border Patrol agents), and services (e.g.,
laundry and infirmary) that are paid for out of FLETC's annual
appropriations. CBP's Office of Training and Development designs the
training curriculum (in conjunction with the Border Patrol and with input
from FLETC) for the academy, administers the Border Patrol Academy, and
provides permanent instructors and staff.

Basic training for new Border Patrol agents consists of three components:
(1) basic training at the academy, (2) postacademy classroom training
administered by the academy but conducted in the sectors, and (3) field
training conducted on the job in the sectors. The academy portion of the
training is currently an 81-day program consisting of 663 curriculum hours
in six subject areas: Spanish, law/operations, physical training, driving,
firearms, and general training. After graduating from the academy, new
Border Patrol agents are required to attend classroom instruction at their
respective sectors in Spanish and law/operations 1 day a week for a total
of 20 weeks. Finally, new agents are generally assigned to senior agents
in a sector's field training unit for additional on-the-job training
intended to reinforce new agents' skills in safely, effectively, and
ethically performing their duties under actual field conditions.

Results

The briefing slides in the enclosure address each of our four questions
regarding the training of new border patrol agents. In summary, we found
the following:

           o The Border Patrol's basic training program exhibits attributes
           of an effective training program. GAO's training assessment guide
           suggests the kinds of documentation to look for that indicate that
           a training program has a particular attribute in place, such as
           incorporating measures of effectiveness into its course designs.
           The Border Patrol had documentation that its training program had
           at least 1 key indicator in place for 31 of the 32 attributes of
           an effective training program.3 While we determined the presence
           of indicators of particular attributes, we did not assess the
           extent to which these attributes contributed to the quality of the
           training program. For example, we confirmed that the Border Patrol
           surveys all students at the academy, but we did not verify how the
           agency used the results. In addition, the Border Patrol is
           pursuing accreditation of its training program from the Federal
           Law Enforcement Training Accreditation organization. The core
           training curriculum used at the Border Patrol Academy has not
           changed since September 11, but the Border Patrol added new
           material on responding to terrorism and practical field exercises.
           While Border Patrol officials are confident that the academy can
           accommodate the large influx of new trainees anticipated over the
           next 2 years, they have expressed concerns over the sectors'
           ability to provide sufficient field training. For example,
           officials are concerned with having a sufficient number of
           experienced agents available in the sectors to serve as field
           training officers and first-line supervisors. CBP officials told
           us that a 5-to-1 agent-to-supervisor ratio is desirable to ensure
           proper supervision of new agents, although the desired ratio in
           certain work units with more experienced agents would be higher.
           Our analysis of Border Patrol data showed that as of October 2006,
           the overall agent-to-supervisor ratios for southwest sectors,
           where the Border Patrol assigns all new agents, ranged from about
           7 to 1 up to 11 to 1. These ratios include some work units with a
           higher percentage of experienced agents that do not require the
           same level of supervision as new agents. However, given the large
           numbers of new agents the Border Patrol plans to assign to the
           southwest border over the next 2 years, along with the planned
           reassignment of experienced agents from the southwest border to
           the northern border, it will be a challenge for the agency to
           achieve the desired 5-to-1 ratio for new agents in all work units
           in those sectors receiving the largest numbers of new agents. In
           addition to concerns about having a sufficient number of
           experienced agents, the Border Patrol does not have a uniform
           field training program that establishes uniform standards and
           practices that each sector's field training should follow. As a
           result, Border Patrol officials are not confident that all new
           trainees receive consistent postacademy field training. While the
           Border Patrol is in the process of developing a uniform field
           training program, sectors currently design and administer their
           own field training based on their particular operational
           environment independent of the other sectors.

           o In fiscal year 2006, the average cost to train a new Border
           Patrol agent at the academy was about $14,700. This cost
           represents the amounts expended by both the Border Patrol and
           FLETC. The Border Patrol paid about $6,600 for the trainee's meals
           and lodging, and a portion of the cost of instructors, and FLETC
           paid about $8,100 for tuition, a portion of the cost of
           instructors, and miscellaneous expenses such as support services,
           supplies, and utilities. The $14,700 cost figure does not include
           the costs associated with instructors conducting postacademy and
           field training in the sectors.

           o Given the Border Patrol's unique mission and difficulties making
           direct comparisons with other federal and nonfederal law
           enforcement training programs, it appears that the Border Patrol's
           average cost per trainee at the academy is consistent with that of
           training programs that cover similar subjects and prepare officers
           for operations in similar geographic areas. For example, the
           estimated average cost per trainee for (1) a BIA police officer is
           $15,291; (2) an Arizona state police officer, $15,555; and (3) a
           Texas state trooper, $14,739. However, differences in the emphasis
           of some subject areas over others dictated by jurisdiction and
           mission make a direct comparison difficult. For example, while
           both the Border Patrol and the Texas Department of Public Safety
           require Spanish instruction, the Border Patrol requires 214 hours
           of instruction compared with 50 hours for a Texas state trooper.
           Similarly, the Border Patrol does not provide instruction in
           investigation techniques while BIA, Arizona, and Texas require
           139, 50, and 165 hours of such instruction, respectively.

           o The Border Patrol is considering several alternatives to improve
           the efficiency of basic training delivery and to return agents to
           the sectors more quickly. For example, the Border Patrol is
           pilot-testing a proficiency test for Spanish that will allow those
           who pass the test to shorten their time at the academy by about 30
           days. According to Border Patrol officials, this could benefit
           about half of all trainees, because about half of all recruits
           already speak Spanish. The Border Patrol also plans to convert
           postacademy classroom training to computer-based training,
           allowing agents to complete the 1-day-a-week training at their
           duty stations rather than having to travel to the sector
           headquarters for this training. As a result, fewer senior agents
           will be required to serve as instructors for postacademy training.
           Finally, the Border Patrol is considering what other training it
           can shift from the academy to postacademy and field training
           conducted in the sectors, which could further reduce the amount of
           time trainees spend at the academy. However, these planned
           improvements may present trade-offs and challenges. For example,
           some officials said that proficiency testing for Spanish could
           diminish esprit de corps in that while at the academy, those who
           already speak Spanish sometimes help non-Spanish speakers learn
           the language, enhancing esprit de corps. In addition, officials
           expressed concern about the sectors' ability to train and
           supervise the nearly 6,000 new agents the Border Patrol
           anticipates hiring over the next 2 years. This increase is nearly
           equivalent to the number of agents gained over the past 10 years,
           from 5,878 at the end of fiscal year 1996 to 12,349 at the end of
           fiscal year 2006.

3 One attribute dealing with the selection or voluntary self-selection of
employees was not applicable because basic training is mandatory for all
new Border Patrol agents.

Concluding Observations

The Border Patrol's basic training program exhibits the attributes of an
effective training program, and the average cost to train a Border Patrol
agent is in line with that of other similar law enforcement training
programs. However, the Border Patrol's plan to hire an unprecedented
number of new agents over the next 2 years could strain the sectors'
ability to provide adequate supervision and training. The large influx of
new agents and the planned transfer of more experienced agents to the
northern border could further exacerbate the already higher than desired
agent-to-supervisor ratio in some southwest sectors. Moreover, the field
training new agents receive is not consistent from sector to sector, a
fact that has implications for how well agents perform their duties. To
ensure that these new agents become proficient in the safe, effective, and
ethical performance of their duties, it will be extremely important that
new agents have the appropriate level of supervision and that the Border
Patrol have a standardized field training program.

Agency Comments and Our Evaluation

On March 22, 2007, we received written comments on a draft of this report
from the Department of Homeland Security (see Enclosure II). DHS said that
we accurately stated the Border Patrol's concern about the availability of
sufficient supervisory personnel to address the rapid influx of
inexperienced new agents.

DHS pointed out that while a 5-to-1 agent-to-supervisor ratio is desired
for work units within a sector composed predominantly of new agents, a
higher ratio is appropriate for those units composed predominantly of more
experienced agents. The overall agent-to-supervisor ratio of an entire
sector would represent a combined average ratio of all work units within
the sector. This combined ratio results in a higher ratio than if only
those work units composed predominantly of new agents were considered.
While this may be true, officials we met with in the field said that
achieving the desired 5-to-1 ratio for new agents has been a challenge.
For example, one supervisory agent said that about three-quarters of the
30 to 40 agents assigned to his duty station had 3 or fewer years of
experience and only three supervisors. We modified our report as
appropriate to reflect DHS's comment that the 5-to-1 ratio does not apply
to all work units.

We are sending copies of this report to the Department of Homeland
Security and interested congressional committees. We will also make copies
available to others upon request. In addition, the report will be
available at no charge on GAO's Web site at http://www.gao.gov.

If you or your staff have any questions concerning this report, please
contact me at (202) 512-8816 or by e-mail at [email protected] . Key
contributors to this report were Michael Dino, Assistant Director; Mark
Abraham; E. Jerry Seigler; Julie Silvers, Ph.D.; and Gladys Toro. Contact
points for our Offices of Congressional Relations and Public Affairs may
be found on the last page of this report.

Sincerely yours,

Richard M. Stana, Director
Homeland Security and Justice Issues

Enclosures

Enclosure I: Briefing Slides

Enclosure II: Comments from the Department of Homeland Security

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