    Border Patrol: Costs and Challenges Related to Training New
    Agents (19-JUN-07, GAO-07-997T).

    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
    U.S. Border Patrol by the end of December 2008. This
    unprecedented 48 percent increase over 2 years raises concerns
    about the ability of the Border Patrol's basic training program
    to train these new agents. This testimony is based on a recent
    report for the ranking member of this subcommittee on the
    content, quality, and cost of the Border Patrol's basic training
    program for new agents and addresses (1) the extent to which the
    Border Patrol's basic training program exhibits the attributes of
    an effective training program and the changes to the program
    since September 11, 2001; (2) the cost to train a new agent and
    how this compares to the costs of other similar law enforcement
    basic training programs; and (3) any plans the Border Patrol has
    developed or considered to improve the efficiency of its basic
    training program. To address these issues, GAO reviewed relevant
    documents; observed classroom training and exercises at the
    Border Patrol Academy in Artesia, New Mexico; assessed the
    methodologies of training cost estimates; and interviewed Border
    Patrol officials.
    -------------------------Indexing Terms-------------------------
    REPORTNUM:   GAO-07-997T
        ACCNO:   A71026
      TITLE:     Border Patrol: Costs and Challenges Related to Training
    New Agents
         DATE:   06/19/2007
      SUBJECT:   Border patrols
    	     Border security
    	     Comparative analysis
    	     Cost analysis
    	     Education
    	     Education program evaluation
    	     Employee training
    	     Homeland security
    	     Law enforcement
    	     Police training

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    GAO-07-997T

         * [1]Summary
         * [2]Background
         * [3]The Border Patrol's Basic Training Program Exhibits Attribut
         * [4]The Average Cost to Train a New Border Patrol Agent in Fisca
         * [5]Plans under Consideration to Improve Basic Training Efficien
         * [6]Concluding Observations

              * [7]GAO Contact and Staff Acknowledgments

         * [8]GAO's Mission
         * [9]Obtaining Copies of GAO Reports and Testimony

              * [10]Order by Mail or Phone

         * [11]To Report Fraud, Waste, and Abuse in Federal Programs
         * [12]Congressional Relations
         * [13]Public Affairs

    Testimony

    Before the Subcommittee on Management, Investigations, and Oversight,
    Committee on Homeland Security, House of Representatives

    United States Government Accountability Office

    GAO

    For Release on Delivery
    Expected at 11:00 a.m. EDT
    Tuesday, June 19, 2007

    BORDER PATROL

    Costs and Challenges Related to Training New Agents

    Statement of Richard M. Stana, Director
    Homeland Security and Justice Issues

    GAO-07-997T

    Mr. Chairman and Members of the Subcommittee:

    I appreciate the opportunity to be here today to discuss our work on the
    costs and challenges related to training 6,000 new Border Patrol agents by
    the end of December 2008.

    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 its nine southwest border field offices, called sectors, while
    transferring up to 1,000 experienced agents to the northern border. In
    addition, legislation has been proposed in Congress that would authorize
    an additional 10,000 agents, potentially increasing the size of the Border
    Patrol to about 28,000 agents by the end of 2012.

    My testimony today is based on a recent report for the ranking member of
    this subcommittee on the content, quality, and cost of the Border Patrol's
    basic training program for new agents.2 It focuses on the following
    issues:

               o the extent to which the Border Patrol's basic training program
               for new border patrol agents exhibits the attributes of an
               effective training program and how the training program has
               changed since September 11, 2001;
               o the estimated cost to train a new agent at the Border Patrol
               Academy and how the Border Patrol's basic training program and
               cost compared to those of other similar federal and nonfederal law
               enforcement basic training programs; and
               o any plans the Border Patrol has developed or considered to
               improve the efficiency of its basic training program.

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

    2GAO, Homeland Security: Information on Training New Border Patrol Agents,
    [14]GAO-07-540R (Washington, D.C.: March 30, 2007).

    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 and
    compared it with GAO's guide for assessing federal training programs.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. 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 has made to the basic training program
    since September 11, we reviewed new training materials.

    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. We assessed the data for
    reliability and found that the data we used for our analyses were
    sufficiently reliable for the purposes of our report. 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. We assessed the data for reliability and found them
    reliable for the purposes of this review.

    To determine what plans the Border Patrol has developed or considered for
    improving the efficiency of its basic training program, we reviewed
    relevant documentation and interviewed CBP officials.

    We performed our work from September 2006 through March 2007 and updated
    selected information in June 2007 in accordance with generally accepted
    government auditing standards.

    3GAO, Human Capital: A Guide for Assessing Strategic Training and
    Development Efforts in the Federal Government, [15]GAO-04-546G
    (Washington, D.C.: March 2004).

    Summary

    After reviewing the Border Patrol's basic training program and comparing
    it with GAO's guide for assessing federal training programs, we determined
    that the Border Patrol's basic training program exhibits attributes of an
    effective training program. The Border Patrol's training program included
    all of the applicable key attributes of an effective training program.4
    The core training curriculum used at the Border Patrol Academy has not
    changed since September 11, but the Border Patrol has added new material
    on responding to terrorism and practical field exercises, such as what
    actions agents should take if they encounter a suspected weapon of mass
    destruction or an improvised explosive device. Border Patrol officials are
    confident that the academy can accommodate the large influx of new
    trainees anticipated over the next 2 years.

    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. 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 a BIA
    police officer was about $15,300; an Arizona state police officer,
    $15,600; and a Texas state trooper, $14,700. 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. Also, 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.

    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, in October 2007 the Border Patrol plans to
    implement a proficiency test for Spanish that should 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 beginning in October 2007, 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, some Border Patrol officials have
    expressed concerns over the sectors' ability to provide sufficient field
    training and supervision to new agents. 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. In addition, the Border Patrol does not currently have a
    uniform field training program that establishes uniform standards and
    practices that each sector's field training should follow. The addition of
    new training expectations could complicate this situation.

    4One 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.

    Background

    The U.S. Border Patrol, within the Department of Homeland Security's (DHS)
    U.S. Customs and Border Protection (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. 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. As shown in
    figure 1, this increase is nearly equivalent to the number of agents
    gained over the past 10 years. In addition, legislation has been proposed
    in Congress that would authorize an additional 10,000 agents, potentially
    increasing the size of the Border Patrol to about 28,000 agents by the end
    of 2012.

    Figure 1: Border Patrol Agent Growth, Fiscal Years 1996 to 2006, Compared
    with Anticipated Growth, Fiscal Years 2006 to 2009

    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.

    The Border Patrol's Basic Training Program Exhibits Attributes of an Effective
    Training Program

    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. As shown in table 1, the Border
    Patrol was able to document that its training program had key indicators
    in place for the applicable attributes of an effective training program.5

    5One 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.

    Table 1: GAO Attributes of an Effective Training Program

    Planning and front-end analysis
           Training goals are consistent with its overall mission, goals, and
           culture
           Has strategic and annual performance planning processes that
           incorporate human capital professionals
           Determines the skills and competencies its workforce
           Identifies the appropriate level of investment to provide for training
           Has measures to assess the contributions that training efforts make
           toward individual mastery of learning
           Incorporates employees' developmental goals in its planning processes
           Integrates the need for continuous and lifelong learning into its
           planning processes
           Considers governmentwide reforms and other targeted initiatives to
           improve management and performance when planning its training programs
           Has a formal process to ensure that strategic and tactical changes are
           promptly incorporated in training
    Design and development
           Ensures that training is connected to improving individual and agency
           performance in achieving specific results
           The design of the training program is integrated with other strategies
           to improve performance and meet emerging demands
           Uses the most appropriate mix of centralized and decentralized
           approaches for its training
           Uses criteria in determining whether to design training programs
           in-house or obtain from a contractor or other external source
           Compares the merits of different delivery mechanisms (such as
           classroom or computer-based training) and determines what mix to use
           to ensure efficient and cost-effective delivery
           Determines a targeted level of improved performance in order to ensure
           that the cost of a training program is appropriate to achieve the
           anticipated benefit
           Incorporates measures of effectiveness into courses it designs
    Implementation
           Agency leaders communicate the importance of training and developing
           employees, and their expectations for training programs to achieve
           results
           Has a training and performance organization that is held accountable,
           along with the line executives, for the maximum performance of the
           workforce
           Agency managers are responsible for reinforcing new behaviors,
           providing useful tools, and identifying and removing barriers to help
           employees implement learned behaviors on the job
    n/a Selects employees (or provides the opportunity for employees to
           self-select) to participate in training and development efforts
           The agency considers options in paying for employee training and
           development and adjusting employee work schedules so that employees
           can participate in these developmental activities
           Takes actions to foster an environment conducive to effective training
           Takes steps to encourage employees to buy in to the goals of training
           efforts
           Collects data during implementation to ensure feedback on its training
           programs
    Evaluation
           Systematically plans for and evaluates the effectiveness of its
           training efforts
           Uses the appropriate analytical approaches to assess its training
           programs
           Uses performance data (including qualitative and quantitative
           measures) to assess the results achieved through training efforts
           Incorporates evaluation feedback into the planning, design, and
           implementation of its training efforts
           Incorporates different perspectives (including those of line managers
           and staff, customers, and experts in areas such as financial,
           information, and human capital management) in assessing the impact of
           training on performance
           Tracks the cost and delivery of its training programs
           Assesses the benefits achieved through training programs
           Compares its training investments, methods, or outcomes with those of
           other organizations to identify innovative approaches or lessons
           learned

    Source: GAO analysis based on [16]GAO-04-546G

    = indicators (in place or in development) of the attribute

    n/a = not applicable

    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. For
    example, the Border Patrol added an antiterrorism course that covers,
    among other things, what actions agents should take if they encounter what
    they believe to be a weapon of mass destruction or an improvised explosive
    device. The Border Patrol also incorporated practical field exercises that
    simulate a variety of situations that agents may encounter, such as
    arresting an individual who is armed with a weapon, as shown in figure 2.
    With regard to capacity, Border Patrol officials told us they are
    confident that the academy can accommodate the large influx of new
    trainees anticipated over the next 2 years.

    Figure 2: Trainees Engaged in Simulated Apprehension of an Armed
    Individual

    The Average Cost to Train a New Border Patrol Agent in Fiscal Year 2006 Was
    About $14,700 and Was Comparable to Those of Other Federal and Nonfederal Law
    Enforcement Training Programs

    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. (See table 2.) 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.

    Table 2: Average Cost to Train a New Border Patrol Agent, Fiscal Year 2006

                                    FLETC    CBP Total cost to DHS
    Tuition                     $1,773      0           $ 1,773
    Meals                            0 $2,010             2,010
    Lodging                          0  1,826             1,826
    Instructor cost per student  3,069  2,805             5,874
    Miscellaneousa               3,250      0             3,250
    Total cost per student      $8,092 $6,641           $14,733

    Source: Federal Law Enforcement Training Center.

    Note: While FLETC's costs include the cost of training materials for
    postacademy training conducted in the sectors, these costs do not include
    the cost of postacademy instructors or field training conducted in the
    sectors.

    aMiscellaneous costs include items such as support services (health unit,
    uniform laundry, janitorial), supplies (athletic trainer and student
    supplies, utility uniforms), and utilities (garbage collection, gas,
    electricity, and water and sewer).

    For fiscal year 2007, the average cost to train a new agent will increase
    to about $16,200. This is primarily due to an increase in the number of
    instructors hired, which increased CBP's instructor costs from about
    $2,800 to $6,100 per student.

    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 a BIA police officer was about
    $15,300; an Arizona state police officer, $15,600; and a Texas state
    trooper, $14,700. 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 investigative techniques, while BIA, Arizona, and Texas
    require 139, 50, and 165 hours of such instruction, respectively. Table 3
    shows a comparison of Border Patrol's basic training program with other
    federal and nonfederal law enforcement basic training programs.

    Table 3: Border Patrol's Basic Training Program Compared with Other
    Federal and Nonfederal Law Enforcement Basic Training Programs

                   Border Bureau of                                         Texas
                   Patrol    Indian            Southern Arizona Law Department of
                  Academy   Affairs     Enforcement Training Center Public Safety
    Class size      50        50                              40           130
    (average)
    Length of       16        16                              36            26
    training
    (weeks)
    Length of      663       736                             680         1,246
    training
    (hours)
    Cost per   $14,733   $15,291                         $15,555      $14, 739
    student

    Course curriculum                       Training hours
    Spanish                             214    n/a    n/a  50.0
    Law/operations                      191 152.00 223.50 567.0
    Firearms training                    67  71.25  70.00 119.5
    Driving training                     44 104.50  28.00  71.0
    Basic investigative techniques      n/a 139.00  50.00 165.0
    Physical fitness and safety         125 239.50 114.75  96.5
    Antiterrorism                         8   9.00   4.00  16.0
    General Training and administration  14  21.00 189.75 161.0

    Source: GAO analysis of information received from FLETC, the Office of
    Border Patrol, the Bureau of Indian Affairs, the Southern Arizona Law
    Enforcement Training Center, and the Texas Department of Public Safety.

    Note: Training hours may not add to length of training due to rounding.

    n/a = not applicable

    Plans under Consideration to Improve Basic Training Efficiency May Present
    Challenges

    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, in October 2007 the Border Patrol plans to
    implement a proficiency test for Spanish that should 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 beginning in October 2007, 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.

    While these strategies may improve the efficiency of training at the
    academy, officials expressed concern about the sectors' ability provide
    adequate supervision and continued training once the new agents arrive at
    the sectors. Some Border Patrol officials are concerned with having enough
    experienced agents available in the sectors to serve as first-line
    supervisors and field training officers for these new agents. According to
    the Chief of the Border Patrol, agencywide the average experience level of
    Border Patrol agents is about 4 or 5 years of service. However, in certain
    southwest border sectors the average experience level is only about 18
    months. Moreover, the supervisor-to-agent ratio is higher than the agency
    would like in some southwest sectors. Border Patrol 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. To augment the supervision of new agents, the Border Patrol is
    considering using retired Border Patrol agents to act as mentors for new
    agents. Nevertheless, 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 to serve as supervisors and field training officers, 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 currently receive consistent postacademy field training.
    Moreover, the addition of new training expectations may complicate this
    situation. The Border Patrol is in the process of developing a uniform
    field training program that it plans to implement beginning in fiscal year
    2008.

    Concluding Observations

    While Border Patrol officials are confident that the academy can
    accommodate the large influx of new trainees anticipated over the next 2
    years, the larger challenge will be the sectors' capacity to provide
    adequate supervision and training. The rapid addition of new agents along
    the southwest border, coupled with the planned transfer of more
    experienced agents to the northern border, will likely reduce the overall
    experience level of agents assigned to the southwest border. In turn, the
    Border Patrol will be faced with relying on a higher proportion of less
    seasoned agents to supervise these new agents. In addition, the possible
    shifting of some training from the academy to the sectors could increase
    demand for experienced agents to serve as field training officers.
    Moreover, without a standardized field training program, training has not
    been consistent from sector to sector, a fact that has implications for
    the sectors' ability to add new training requirements and possibly
    consequences for how well agents will 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 sufficient number of field training officers and a
    standardized field training program.

    Mr. Chairman, this completes my prepared statement. I would be happy to
    respond to any questions you or other members of the subommittee may have
    at this time.

    GAO Contact and Staff Acknowledgments

    For further information about this testimony, please contact me at (202)
    512-8816 or by e-mail at Stanar@gao.gov. Key contributors to this
    testimony were Michael Dino, Assistant Director; Mark Abraham; E. Jerry
    Seigler; and Julie Silvers. Contact points for our Offices of
    Congressional Relations and Public Affairs may be found on the last page
    of this testimony.

    (440638)

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    [23]www.gao.gov/cgi-bin/getrpt?GAO-07-997T .

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    Highlights of [24]GAO-07-997T , a testimony before the Subcommittee on
    Management, Investigations, and Oversight, Committee on Homeland Security,
    House of Representatives

    June 19, 2007

    BORDER PATROL

    Costs and Challenges Related to Training New Agents

    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 U.S. Border Patrol by the end
    of December 2008. This unprecedented 48 percent increase over 2 years
    raises concerns about the ability of the Border Patrol's basic training
    program to train these new agents. This testimony is based on a recent
    report for the ranking member of this subcommittee on the content,
    quality, and cost of the Border Patrol's basic training program for new
    agents and addresses (1) the extent to which the Border Patrol's basic
    training program exhibits the attributes of an effective training program
    and the changes to the program since September 11, 2001; (2) the cost to
    train a new agent and how this compares to the costs of other similar law
    enforcement basic training programs; and (3) any plans the Border Patrol
    has developed or considered to improve the efficiency of its basic
    training program. To address these issues, GAO reviewed relevant
    documents; observed classroom training and exercises at the Border Patrol
    Academy in Artesia, New Mexico; assessed the methodologies of training
    cost estimates; and interviewed Border Patrol officials.

    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. The Border Patrol's training program
    included all of the applicable key attributes of an effective training
    program. The core 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. Border Patrol
    officials are confident that the academy can accommodate the large influx
    of new trainees anticipated over the next 2 years.

    In fiscal year 2006, the average cost to train a new Border Patrol agent
    at the academy was about $14,700. While differences in programs make a
    direct comparison difficult, 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 a Bureau of Indian Affairs police officer was about $15,300;
    an Arizona state police officer, $15,600; and a Texas state trooper,
    $14,700.

    The Border Patrol is considering several alternatives to improve the
    efficiency of basic training delivery at the academy and to return agents
    to the field more quickly. For example, in October 2007 the Border Patrol
    plans to implement a proficiency test for Spanish that should allow those
    who pass the test to shorten their time at the academy by about 30 days.
    The Border Patrol is also considering what training it can shift from the
    academy to postacademy training conducted in the field, which could
    further reduce the amount of time trainees spend at the academy. However,
    Border Patrol officials have expressed concerns with having a sufficient
    number of experienced agents available to serve as first-line supervisors
    and field training officers. The Border Patrol also currently lacks
    uniform standards and practices for field training, and shifting
    additional training responsibilities to the field could complicate this
    situation.

    Border Patrol Agent Growth, Fiscal Years 1996 to 2006, Compared with
    Anticipated Growth, Fiscal Years 2006 to 2009

    References

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      14.http://www.gao.gov/cgi-bin/getrpt?GAO-07-540R
      15.http://www.gao.gov/cgi-bin/getrpt?GAO-04-546G
      16.http://www.gao.gov/cgi-bin/getrpt?GAO-04-546G
      17.http://www.gao.gov/
      18.http://www.gao.gov/
      19.http://www.gao.gov/fraudnet/fraudnet.htm
      20. mailto:fraudnet@gao.gov
      21. mailto:JarmonG@gao.gov
      22. mailto:AndersonP1@gao.gov
      23.http://www.gao.gov/cgi-bin/getrpt?GAO-07-997T
      24.http://www.gao.gov/cgi-bin/getrpt?GAO-07-997T
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