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 [email protected]. 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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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:[email protected]
  21. mailto:[email protected]
  22. mailto:[email protected]
  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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