Border Patrol: Staffing and Enforcement Activities (Letter Report,
03/11/96, GAO/GGD-96-65).

GAO examined the U.S. Border Patrol's enforcement activities, focusing
on the: (1) locations of Border Patrol enforcement activities; (2)
number of Border Patrol staff and non-administrative enforcement
activities at each station; (3) Border Patrol's contribution to district
stations enforcement activities; and (4) factors that influence the
hiring or relocation of Border Patrol agents to the Southwest Border.

GAO found that: (1) the Border Patrol assigned 3,911 of its 4,260 agents
to 145 stations; (2) as of September 1995, the Border Patrol had hired
and trained 530 new agents and had an additional 369 agents in training;
(3) 79 percent of the agents were located at stations within 25 miles of
the nation's borders; (4) Border Patrol agents spent 63 percent of their
enforcement time patrolling borders and 37 percent of their time
apprehending illegal aliens entering the U.S. illegally or who had
violated their visas; (5) Border Patrol enforcement activities include
identifying criminal and illegal aliens, reviewing employers' records to
see if authorized workers were being employed, and investigating alien
smuggling; (6) a Continuing Resolution for fiscal year 1996 has provided
INS with funds to relocate 200 of its agent positions to the Southwest
Border; (7) INS district directors depend on Border Patrol agents to
randomly check traffic on public transportation and freight trains for
illegal aliens; and (8) the average cost of hiring, training, and
equipping new Border Patrol agents ranges from $107,804 to $115,716.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  GGD-96-65
     TITLE:  Border Patrol: Staffing and Enforcement Activities
      DATE:  03/11/96
   SUBJECT:  Illegal aliens
             Immigration and naturalization law
             Education or training costs
             Law enforcement
             Personnel management
             Prohibited employment
             Crimes or offenses
             Deportation

             
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Cover
================================================================ COVER


Report to Congressional Committees

March 1996

BORDER PATROL - STAFFING AND
ENFORCEMENT ACTIVITIES

GAO/GGD-96-65

Border Patrol

(183595)


Abbreviations
=============================================================== ABBREV

  INS - Immigration and Naturalization Service
  rose - test

Letter
=============================================================== LETTER


B-260334.2

March 11, 1996

The Honorable Judd Gregg, Chairman
The Honorable Ernest F.  Hollings
Ranking Minority Member
Subcommittee on Commerce, Justice,
 and State, the Judiciary, and
 Related Agencies
Committee on Appropriations
United States Senate

The Honorable Alan K.  Simpson, Chairman
The Honorable Edward M.  Kennedy
Ranking Minority Member
Subcommittee on Immigration
Committee on the Judiciary
United States Senate

The Honorable Harold Rogers, Chairman
The Honorable Alan B.  Mollohan
Ranking Minority Member
Subcommittee on Commerce, Justice,
 State, the Judiciary, and Related
 Agencies
Committee on Appropriations
House of Representatives

The Honorable Lamar Smith, Chairman
The Honorable John Bryant
Ranking Minority Member
Subcommittee on Immigration and Claims
Committee on the Judiciary
House of Representatives

One of the purposes of the Violent Crime Control and Law Enforcement
Act of 1994 was to increase the resources for the Border Patrol so as
to help stem the flow of illegal aliens crossing the Southwest
Border.  To achieve this, the act authorized increases in the number
of the Department of Justice's Immigration and Naturalization
Service's (INS) Border Patrol agents and support staff.  The
increases were to be not less than 1,000 agents each year for fiscal
years 1995 through 1998 (subject to available appropriations) beyond
the number funded as of October 1, 1994.\1

The fiscal year 1995 Department of Justice Appropriations Act
provided $1.5 billion for INS, which included funding to hire 700 new
Border Patrol agents.\2 These agents and other additional staff were
being hired to support INS' new border enforcement strategy of
"prevention through deterrence." Under this strategy, more Border
Patrol agents are to be deployed on the border to discourage aliens
from entering illegally.  Previously, agents were generally deployed
in border areas, but not necessarily directly on the border. 

We analyzed the Border Patrol's enforcement activities nationwide and
by location for fiscal year 1994 under our basic legislative
authority.  This analysis is intended for your use in deliberations
on the number of Border Patrol agents to patrol the Southwest Border,
such as hiring new agents, relocating agents from other locations,
and redirecting the enforcement time of agents along the Southwest
Border who were not patrolling the border.  Further, our analysis
provides baseline data that may assist your oversight of the Border
Patrol's activities and staffing.  Specifically, we (1) identified
the locations where the Border Patrol carried out its enforcement
activities; (2) obtained data on the number of Border Patrol staff at
each location; (3) determined the specific enforcement activities
carried out at each location, excluding administrative
(nonenforcement) time; (4) obtained the views of selected INS
district directors on the contributions of the Border Patrol to the
districts' enforcement activities; and (5) identified some factors
that could affect decisions related to hiring or relocating agents to
deploy on the Southwest Border. 


--------------------
\1 P.L.  103-322, Sec.  130006, 108 Stat.  1796, 2028, 2029 (1994). 

\2 The conference report said that INS is provided $54.5 million to
fund 700 new and 250 redirected Border Patrol agents, as well as 110
support staff.  (Departments of Commerce, Justice, and State, the
Judiciary, and Related Agencies 1995 Appropriations and 1994
Supplemental Appropriations, P.L.  103-317; H.R.  103-708, 103d
Cong., 2d Sess.  at 98 (1994).) The 1995 Appropriations Act included
$154.6 million for modernized automation and communications systems
and other new technologies to improve control of the border. 
According to an INS official, this funding was intended to enable
agents to redirect the time spent on administrative activities, such
as preparing arrest reports on apprehended illegal aliens, thereby
allowing them to increase the time spent on enforcement activities. 


   RESULTS IN BRIEF
------------------------------------------------------------ Letter :1

At the end of fiscal year 1994, according to INS data, the Border
Patrol had assigned 3,911 of its 4,260 Border Patrol agents to its
145 Border Patrol stations.  As of September 13, 1995, according to
INS data, it had hired and finished training 530 Border Patrol agents
and had an additional 369 agents in training.  These new agents are
estimated to represent 22 percent of INS' expected overall increase. 
These 899 new hires were not included in our analysis because they
were not deployed at the end of fiscal year 1994.  Of the 3,911
agents at Border Patrol stations at the end of fiscal year 1994,
3,088 (79 percent) were located at 85 stations that were within 25
miles of the nation's border, including 2,543 agents who were located
at the 32 Southwest Border stations.  Of the 3,911 agents, 701 agents
(18 percent) were located at 41 stations that were between 26 and 100
miles from the border, and 122 agents (3 percent) were located at 19
stations that were over 100 miles from the border. 

According to INS data, Border Patrol agents spent their enforcement
time (which excludes administrative time) (1) patrolling the border
to prevent illegal alien entry or (2) apprehending aliens after entry
(which includes seven activities such as checking traffic on highways
to search for illegal aliens).  Nationwide, in fiscal year 1994, the
Border Patrol reportedly spent 63 percent of its enforcement time
preventing illegal alien entry.  The remaining 37 percent was
reportedly spent apprehending aliens who had illegally entered or had
violated the conditions upon which they had legally entered (e.g.,
overstaying their visas). 

According to INS officials, INS considers the apprehension of illegal
aliens at traffic check points along highways and transportation
checks in airports and bus stations to be part of its overall Border
Patrol strategy to deter illegal alien entry.  Accordingly, it would
include these activities along with patrolling the border to
determine the percentage of time spent preventing entry.  This would
increase the percentage of time from 63 to 86 percent--19 percent for
traffic checks and 4 percent for transportation checks.  Although
these activities may have a deterrent effect on illegal entry, they
are not performed in most locations at or near the border.  The
illegal aliens who are apprehended as a result of traffic or
transportation checks have already entered the country, and these
apprehensions in most cases occurred at locations that were over 25
miles from the border.  Therefore, in our opinion, traffic and
transportation checks are more appropriately included with activities
that apprehend aliens after entry, as we have done in our
calculations. 

According to INS data, the activities of the Border Patrol agents
varied according to their distance from the border.  Agents at most
stations that were within 25 miles of the border were principally
engaged in patrolling the border to prevent the illegal entry of
aliens.  In contrast, agents at stations that were over 25 miles from
the border were principally engaged in apprehending illegal aliens
after their entry. 

However, according to INS data, the time agents spent patrolling the
border varied significantly across the 85 stations that were within
25 miles of the border.  For example, the agents at the 32 Southwest
Border stations spent 83 percent of their 3.4 million enforcement
(nonadministrative) hours in fiscal year 1994 patrolling the border. 
Agents at the 36 Canadian Border stations spent 67 percent of their
305,155 enforcement hours patrolling the border.  Agents at the 17
coastal border stations spent 14 percent of their 380,785 enforcement
hours patrolling the border. 

Nationwide, Border Patrol agents spent 37 percent of their 5.3
million enforcement hours apprehending aliens after entry.  For
example, the agents at the 32 Southwest Border stations spent 17
percent of their 3.4 million enforcement hours apprehending aliens
after entry.  At the 36 Canadian Border stations, agents spent 33
percent of their enforcement hours apprehending aliens after entry. 
At the 17 coastal border stations, agents spent 86 percent of their
enforcement hours apprehending aliens after entry. 

Our analysis showed that some of the Border Patrol's enforcement
activities paralleled the enforcement activities of other INS
enforcement divisions.  The Border Patrol and Investigations both are
responsible for identifying criminal and illegal aliens, reviewing
employers' records to determine that only authorized workers are
employed, and investigating alien smuggling.  In fiscal year 1994, 9
percent of the Border Patrol agents' time was spent on activities
that were also performed by Investigations.  Similarly, the Border
Patrol and Inspections both are responsible for inspecting crewmen
and passengers aboard vessels to determine their admissibility into
the country.  Agents spent 10,886 hours (less than 1 percent) of
their enforcement hours on crewman/stowaway activities.  The Border
Patrol has responsibility for carrying out these activities in the
same geographic areas as Investigations and Inspections.  For
example, in the Miami and New Orleans areas, agents and inspectors
can determine if nonadmissible crew members should stay aboard their
ships. 

The Border Patrol's enforcement work in some of these parallel areas
was generally lower priority, according to INS criteria.  For
example, both the Border Patrol and Investigations identify
incarcerated aliens who should be removed from the country.  INS
criteria place a high priority on identifying and removing criminal
aliens.  According to an INS official, because these aliens are most
likely to be found serving their sentences in state and federal
prisons, identifying aliens at these facilities is a high priority. 
In contrast, identifying aliens at local jails is a lower priority
because jail inmates are less likely to have committed deportable
crimes.  The Border Patrol principally visits local jails to identify
deportable aliens, and Investigations visits prisons to identify
criminal aliens. 

During congressional testimony, the Commissioner of INS said that the
Border Patrol needs to be devoted to border enforcement at the
border.  She favored moving Border Patrol agents from the interior to
the border if additional resources would be provided to do the work
presently being done by the interior agents.  A Continuing Resolution
for fiscal year 1996 provides funds for INS to relocate 200 agent
positions to the border.  According to INS, it expects to relocate
these 200 agent positions to the Southwest Border.  In 1994, INS had
1,368 agents who were not on the Southwest Border. 

The INS district directors whom we visited pointed out the
contributions that the Border Patrol makes.  For example, in most
locations, the district directors told us they depended on the Border
Patrol agents to help carry out INS' enforcement activities. 
However, some of the district directors said that if Border Patrol
agents were redeployed or redirected and were replaced with new
district enforcement staff, the new staff would not do some of the
lower priority work that is now performed by Border Patrol agents. 
This work includes randomly patrolling the interior and checking
traffic, public transportation, or freight trains for illegal aliens. 

In addition to the impact on local INS enforcement efforts of
relocating agents to the border, cost factors could affect the
decision to hire or relocate agents.  According to INS data, the cost
to hire, train, and equip a new agent ranged from $107,804 to
$115,716; to relocate an agent between stations costs an average of
$59,638.  However, to fully determine if relocation is less costly
than hiring new agents, more information, such as whether relocated
agents would be replaced, would be needed. 

Also, redirecting the time spent by agents at the 32 Southwest Border
stations, who spent about 563,000 (17 percent) of their 3.4 million
enforcement hours apprehending aliens after entry, could increase the
time spent patrolling the border.  Again, the impact of redirecting
agents' time on district enforcement activities at border locations
would have to be considered, such as whether redirected agents would
be replaced. 


   BACKGROUND
------------------------------------------------------------ Letter :2

INS is responsible for enforcing the nation's immigration laws.  INS
operates through a headquarters in Washington, D.C., 3 regional
offices, 33 district offices, 21 Border Patrol sectors, and 265
staffed ports of entry.  The Border Patrol, Investigations, and
Inspections are three of the principal INS divisions with enforcement
responsibilities.  INS' district offices and Border Patrol sectors
geographically overlap throughout the country.  Districts are
responsible for Investigations' and Inspections' enforcement
activities, and sectors are responsible for the Border Patrol's
enforcement activities. 

The Border Patrol's 21 sectors are headed by chief patrol agents who
carry out enforcement activities at 145 stations located throughout
the continental United States and in the Commonwealth of Puerto Rico
(see app.  I for a map showing the 145 stations).\3

At the end of fiscal year 1994, the Border Patrol had 4,260 Border
Patrol agents on duty.  As of September 13, 1995, INS had hired and
finished training 530 Border Patrol agents and had an additional 369
agents in training.  This represents an estimated 22 percent of INS'
expected increase in the number of new agents over the next 3 years. 
We did not include these 899 new agents in our analysis because they
were not deployed at the end of fiscal year 1994. 

INS' 33 districts are headed by district directors.  The districts'
enforcement efforts involve conducting investigations and
inspections.  Investigations' mission is to detect criminal law
violations involving aliens, to deter the employment of aliens who
are not authorized to work, and to identify and prosecute alien
smugglers.  Inspections' mission is to determine the admissibility of
all persons seeking entry into the United States at land, air, and
sea ports of entry. 

The Border Patrol's portion of the INS enforcement mission is to
secure and protect the borders of the United States by preventing
illegal entry, and by detecting, interdicting, and apprehending
illegal aliens, smugglers, and contraband.  To prevent and detect
illegal entry, the Border Patrol patrols the border by land, sea, and
air.  To apprehend illegal aliens and smugglers, it checks traffic,
public transportation, and vessels, and patrols the interior (e.g.,
looking for illegal aliens in areas over 25 miles from the border). 
In addition, the Border Patrol assists Investigations and Inspections
staff in carrying out their missions.  To do this, the Border Patrol
is to check employers for illegal workers, visit local jails or state
prisons to interview aliens, and identify alien smugglers. 

All immigration officers who carry out INS' enforcement functions are
to receive general and specialized training to carry out their
enforcement responsibilities.  For example, Border Patrol agents
receive the same general training in the use of firearms that is
given to other enforcement officers and receive specialized training
to track individuals or groups who illegally cross the border. 


--------------------
\3 References in this report to the Border Patrol's stations include
the agents assigned to and the enforcement work performed at the
Border Patrol's eight substations. 


      THE BORDER PATROL'S
      ENFORCEMENT STRATEGY
---------------------------------------------------------- Letter :2.1

The Border Patrol's border enforcement strategy has been to apprehend
aliens after they had illegally entered the United States.  After
initially locating stations on the border and in the immediate border
area, the Border Patrol established stations in nonborder areas that
had concentrations of illegal aliens.  For example, the El Paso,
Texas; Warroad, Minnesota; and Niagara Falls, New York, stations on
the Southwest and Canadian Borders were established in 1924.  In
1926, the Miami, Florida, station was established because aliens were
being smuggled into the United States from Cuba.  Generally, stations
over 100 miles from the border, such as the stations in Dallas and
San Antonio, Texas; and Boulder City, Nevada, that were opened
between 1986 and 1988, were opened because there were large numbers
of illegal aliens in those areas.  However, INS did not establish
Border Patrol stations in some large metropolitan areas known to have
substantial alien populations, such as New York City, Chicago, or Los
Angeles, because these cities generally were considered to be the
final destination for many illegal aliens.  The strategy at the time
called for stopping illegal aliens before they had reached their
final destination. 

Recently, INS changed the Border Patrol's enforcement strategy along
the Southwest Border from apprehending aliens after they had
illegally entered to deterring them from entering in the first place. 
According to INS officials, the new strategy is to concentrate agents
on the border to raise aliens' risk of apprehension to a maximum
level and thereby deter aliens and alien smugglers from attempting
illegal entry.  In July 1994, INS issued a phased multiyear border
control plan to implement the new strategy. 


   SCOPE AND METHODOLOGY
------------------------------------------------------------ Letter :3

To identify the locations of the Border Patrol's stations, we
reviewed INS maps, documents, and directories.  To identify the
number of Border Patrol staff at each location, we reviewed INS'
fiscal year 1994 personnel summary that listed INS employees,
including Border Patrol agents and staff.  During visits to selected
stations, we interviewed Border Patrol officials to determine if INS'
personnel summary for each location accurately reflected the staff as
of October 1, 1994. 

To identify the enforcement activities carried out at each location,
we analyzed the Border Patrol's statistical work reports that
contained, by location, the hours charged by Border Patrol agents to
enforcement and other activities.  We excluded from our analysis
administrative activities.  We did not verify the validity of the
data.  However, during visits to selected stations, we discussed the
statistical reports with Border Patrol officials, who said that the
reports generally reflected how the agents spent their enforcement
time and what types of activities the agents performed.  Through
these discussions, we identified the specific types of work included
under each activity.  To obtain an understanding of these activities,
we accompanied and observed Border Patrol agents as they performed
various enforcement activities in the field.  Our analysis of Border
Patrol activities enabled us to identify its activities that
paralleled the activities performed by Investigations or Inspections. 

We judgmentally selected Border Patrol stations to visit so as to
include the full range of Border Patrol enforcement activities and
provide broad coverage of different geographic locations.  We visited
15 of the 21 Border Patrol Sector headquarters and 49 of the 145
Border Patrol stations. 

For our analysis, we grouped Border Patrol stations according to
their distance from the nearest land border or coastline and, for
those stations most proximate to the border, the specific border they
were near.\4 We grouped Border Patrol stations on the basis of their
distance from the nearest land or coastal borders--within 25 miles of
a border, from 26 to 100 miles, and over 100 miles.  We refer to
these as zones I, II, and III, respectively.\5 We chose the 25-mile
distance because INS has authority to enter private land, but not
dwellings, without a warrant for the purpose of patrolling the border
within 25 miles of any external boundary of the United States.\6 We
chose the 100-mile distance because INS has authority to stop
individuals and search public and private conveyances for illegal
aliens without a warrant anywhere within a reasonable distance from
any external boundary, defined by INS as within 100 air miles.\7 We
further subdivided zone I into three geographic areas:  the
Southwest, Canadian, and coastal borders.  We identified these three
areas within zone I because they have different enforcement
characteristics. 

In analyzing the enforcement work of the Border Patrol, we did not
include the work performed at INS headquarters, regions, training
facilities, special operations, and sector headquarters.  These units
are principally to provide support to the Border Patrol's stations. 

To identify the contributions of the Border Patrol to the districts'
enforcement activities, we interviewed 15 INS district directors to
obtain their views on how their districts would be affected if Border
Patrol agents' enforcement activities were redirected into border
enforcement at the border.  We selected the 15 districts that
overlapped the 15 sectors we chose to visit. 

To identify some factors that could affect decisions related to
hiring or relocating agents to the Southwest Border, we analyzed the
Border Patrol's locations and activities.  On the basis of our
analysis, we identified options, other than hiring agents, that could
increase the time agents spend patrolling the Southwest Border.  The
options that we identified included relocating agents to the border
and redirecting agents' enforcement activities at the border.  We
also obtained INS data for costs related to hiring, training,
equipping, and relocating Border Patrol agents, and leasing space. 
We did not verify the budget or cost data that INS provided or
determine all of the costs related to redeploying agents within the
country. 

We did our work between February and October 1995 in accordance with
generally accepted government auditing standards.  We provided the
Attorney General and the INS Commissioner with a draft of this report
for comment on December 15, 1995.  Their representatives' comments
are discussed and evaluated on pages 24 and 25, and the technical
information they provided was incorporated in this report as
appropriate. 


--------------------
\4 To determine a station's distance from the border, we coded all
Border Patrol locations, placed them within a computer-generated map,
and used a computer program that measures distances between two known
points.  For some locations, we used an atlas to verify and establish
distances to the border.  To identify the location for the Ramey,
Puerto Rico, station, we spoke to an official at the station and used
a computer-generated street map. 

\5 We classified the stations on the basis of their location without
consideration of the enforcement activities performed at the
stations. 

\6 Section 287(a)(3) of the Immigration and Nationality Act, 8 U.S.C. 
1357(a)(3). 

\7 8 U.S.C.  1357(a)(3) and 8 C.F.R.  287.1(a)(2).  INS defines an
air mile as the equivalent of a statute mile (i.e., 5,280 feet). 


   BORDER PATROL LOCATIONS AND
   STAFF
------------------------------------------------------------ Letter :4

Of the 5,451 total Border Patrol agents and staff, as of September
30, 1994, 4,161 were located at 145 Border Patrol stations.  The
4,161 consisted of 3,911 Border Patrol agents, 32 investigators, 64
detention officers, and 154 support staff.  (See app.  II for Border
Patrol staffing by location.) The Border Patrol's agents' duties
include patrolling the border and the interior, conducting traffic
and transportation checks, inspecting crew and passengers aboard
vessels, and checking employers and jails to identify illegal aliens. 
The Border Patrol's investigators are to identify alien smugglers,
and detention officers are to arrange accommodations and
transportation for apprehended illegal aliens.  The Border Patrol's
support staff included automotive, electronics, and communication
technicians; clerks; and computer specialists. 


      MOST OF THE BORDER PATROL'S
      AGENTS WERE WITHIN 25 MILES
      OF THE BORDER
---------------------------------------------------------- Letter :4.1

As shown in table 1, 3,088 (79 percent) of the Border Patrol's agents
and 85 stations (59 percent) were located within 25 miles of the
border--zone I--at the end of fiscal year 1994.  The number of agents
at the 145 stations ranged from 1 to 299 and averaged 27 agents per
station. 



                                Table 1
                
                 Location of Border Patrol Stations and
                 Agents at the End of Fiscal Year 1994


Zones    Distance from the border    Number  Percent   Number  Percent
-------  -------------------------  -------  -------  -------  -------
I        0-25 miles                      85      59%    3,088      79%
II       26-100 miles                    41       28      701       18
III      over 100 miles                  19       13      122        3
======================================================================
Total                                   145     100%    3,911     100%
----------------------------------------------------------------------
Source:  GAO analysis of INS data. 


      BORDER PATROL AGENTS IN ZONE
      I
---------------------------------------------------------- Letter :4.2

Within zone I, the Border Patrol had 3,088 agents, and most of them
were on the Southwest Border.  As shown in table 2, there were 2,543
agents (82 percent) located in the 32 stations (38 percent) on the
Southwest Border. 



                                Table 2
                
                Zone I Border Patrol Stations and Agents
                     at the End of Fiscal Year 1994


Zone I border areas               Number   Percent    Number   Percent
------------------------------  --------  --------  --------  --------
Southwest                             32       38%     2,543       82%
Canadian                              36        42       213         7
Coastal\a                             17        20       332        11
======================================================================
Total                                 85      100%     3,088      100%
----------------------------------------------------------------------
\a Includes stations that are over 25 miles from a land border, but
are within 25 miles of the Atlantic or Pacific Oceans, or the Gulf of
Mexico. 

Source:  GAO analysis of INS data. 

The 32 zone I Southwest Border stations ranged in size from 4 agents
at the Zapata, Texas, station to 299 at the Brown Field, California,
station.  The average number of agents assigned to a station on the
Southwest Border was 80, and 25 of the 32 stations had fewer than 80
agents.  Twelve of these 25 stations had between 55 and 79 agents. 
Four stations--Imperial Beach (298), Brown Field (299), and Chula
Vista (295), California; and El Paso (274), Texas--accounted for 46
percent of the agents on the Southwest Border. 

Along the Canadian Border, the Border Patrol had a total of 213
agents.  These agents were concentrated on the eastern and western
ends of the Canadian Border.  Specifically, 20 of the 36 zone I
Canadian Border stations were located in Washington, New York,
Vermont, and Maine, and had 158 agents, or 74 percent of the agents
on the Canadian Border.  The number of agents at the 36 zone I
Canadian Border stations ranged from 1 agent in Grand Marais,
Minnesota, to 17 agents in Champlain, New York.  The average number
of agents at each station was 6, and 22 of the 36 stations had fewer
than 6 agents.  Thirteen of these 22 stations had 4 or 5 agents, and
9 stations had 3 or fewer agents. 

The Border Patrol had 17 stations along the coastal borders, with a
total of 332 agents, representing 11 percent of the Border Patrol
agents in zone I.  Staffing at the 17 zone I coastal border stations
ranged from 3 agents at the Salinas, California, station to 93 at the
San Clemente, California, station.  Three stations--San Clemente (93)
and Temecula (73), California; and Kingsville (48), Texas--accounted
for 65 percent of the agents at the coastal stations.  The average
number of agents per station was 20.  Eleven stations had fewer than
10 agents. 


      BORDER PATROL AGENTS IN
      ZONES II AND III
---------------------------------------------------------- Letter :4.3

In zone II, the Border Patrol had 701 of the 3,911 agents (18
percent) at 41 stations (see table 3).  The zone II stations ranged
in size from 2 agents in Malta, Montana, to 73 agents in Tucson,
Arizona.  Twenty-two of the 41 zone II stations are located in
Arizona, New Mexico, and Texas, and accounted for 577 (82 percent) of
the agents in zone II. 

In zone III, the Border Patrol had 122 of the 3,911 agents (3
percent) at 19 stations.  The zone III stations ranged in size from 1
agent in Llano, Texas, to 38 agents in San Angelo, Texas.  Seven of
the 19 stations were in Texas. 


   BORDER PATROL ENFORCEMENT
   ACTIVITIES
------------------------------------------------------------ Letter :5

During fiscal year 1994, INS data showed that the Border Patrol's
agents spent 63 percent of their 5.3 million enforcement hours
patrolling the borders by sea, land, and air to prevent the entry of
aliens.  The remaining 37 percent of the agents' enforcement activity
was spent apprehending aliens after entry (see fig.  1).  However,
the time spent patrolling the border varied significantly among zones
and among stations within zones.  (See app.  III for the Border
Patrol's enforcement activities for the Southwest, Canadian, and
coastal borders, and zones II and III.)

In doing our analysis of the Border Patrol's enforcement activities,
we used fiscal year 1994 data because it was the most recent data
available.  After completing our audit work, we obtained fiscal year
1995 data.  We compared the data for 10 selected stations to identify
differences between the years.\8 Our analysis for the 10 stations
showed that the total enforcement hours decreased between fiscal
years for 7 stations and increased for the other 3 stations.  Also,
to a lesser degree the proportion of time spent on the various
enforcement activities changed.  However, for 7 of the 8 stations
that patrol the border, the proportional difference in the time the
agents at the stations spent preventing the entry of aliens and
apprehending aliens after entry was 5 percent or less. 

   Figure 1:  Border Patrol
   Enforcement Activities for
   Fiscal Year 1994

   (See figure in printed
   edition.)

Note:  The total enforcement hours spent on boat patrol and air
patrol accounted for less than 1 percent and are included in "patrol
the border." "Crewman/stowaway" was less than 1 percent and does not
appear in the figure. 

Source:  GAO analysis of INS data. 


--------------------
\8 We selected the 5 stations in zone I on the Southwest Border with
the most enforcement hours in fiscal year 1994--Yuma, Arizona; Brown
Field and Imperial Beach, California; and El Paso and Laredo North,
Texas--which all had over 200,000 enforcement hours.  The next
largest had 167,782 hours.  For coastal stations in zone I, we
selected the 2 largest stations in fiscal year 1994--San Clemente and
Temecula, California--which had over 80,000 enforcement hours.  The
next largest had 60,649 hours.  We selected Tucson, Arizona, and
Hebbronville, Texas, which were the 2 largest stations in zone II for
fiscal year 1994.  The next largest was about 20 percent smaller. 
The largest zone III station was San Angelo, Texas, which was almost
4 times larger than the next biggest station.  We did not select any
Canadian stations in zone I because they had relatively few
enforcement hours in fiscal year 1994; the largest had 23,755 hours. 


      TIME SPENT ON ENFORCEMENT
      ACTIVITIES
---------------------------------------------------------- Letter :5.1

As shown in table 3, our analysis of INS data shows that agents in
zone I stations generally spent most of their enforcement time
preventing alien entry while, as could be expected, stations in zones
II and III spent a greater proportion of their time apprehending
aliens after entry. 



                                     Table 3
                     
                        Proportion of Enforcement Activity
                        Within Zones for Fiscal Year 1994

                                                                       Apprehend
           Number of      Number of    Enforcement  Prevent entry    after entry
Zone        stations         agents          hours      (percent)      (percent)
-----  -------------  -------------  -------------  -------------  -------------
Zone I
--------------------------------------------------------------------------------
South             32          2,543      3,377,221            83%            17%
 west
Canad             36            213        305,155             67             33
 ian
Coast             17            332        380,785             14             86
 al
================================================================================
Subto             85          3,088      4,063,161             76             24
 tal
Zone              41            701      1,077,118           25\a             75
 II
Zone              19            122        164,393              0            100
 III
================================================================================
Total            145          3,911      5,304,672            63%            37%
--------------------------------------------------------------------------------
Note:  Percentages were calculated using the time agents charged to
enforcement activities. 

\a Agents at some stations over 25 miles from the border spent time
patrolling the border. 

Source:  GAO analysis of INS data. 

INS officials said that they consider traffic checks on roads and
highways, and transportation checks at bus stations, airports, train
stations, and aboard freight trains, to be part of their border
enforcement strategy to deter aliens from illegally entering the
country.  Consequently, INS would include these activities with
patrolling the border when calculating the percentage of enforcement
time the Border Patrol spends preventing the entry of aliens. 
Including these activities would increase the time spent preventing
entry nationwide from 63 to 86 percent--19 percent for traffic checks
and 4 percent for transportation checks. 

While traffic and transportation checks may have a deterrent effect
on illegal entry across the Southwest Border, we consider them to be
more appropriately included with the activities associated with
apprehending aliens after entry.  Our analysis of INS fiscal year
1994 data and station locations showed that in almost all cases
aliens who were apprehended during these checks had already entered
the country, and these apprehensions occurred at locations that are
over 25 miles from the border.  For example, the Las Cruces, New
Mexico, station is 53 miles from the Southwest Border and had 70
agents who spent 75 percent of their 79,233 enforcement hours
conducting traffic checks.  Further, the Las Cruces station is one of
the 17 stations that spent at least half of their enforcement hours
checking traffic to support Southwest Border enforcement activities. 
These 17 stations had 703 agents and range from 9 miles (El Centro,
California) to 352 miles (Amarillo, Texas) from the Southwest Border. 
Only 2 of the 17 stations are within 25 miles of the Southwest
Border, and 12 stations are over 50 miles from the Southwest Border. 

Within zone I, the time agents spent patrolling the border varied
significantly among the stations.  The agents at stations on the
Southwest Border spent 83 percent of their time preventing entry by
patrolling the border.  This figure compared with 67 percent for
agents on the Canadian Border and 14 percent for agents on the
coastal borders. 

Agents at the 32 Southwest Border stations spent 83 percent of their
3.4 million enforcement hours patrolling the border, and the
percentage of time patrolling the border ranged from 25 to 98
percent.  Agents at 6 Southwest Border stations--Brown Field,
Imperial Beach, and Chula Vista, California; El Paso and Laredo
North, Texas; and Yuma, Arizona--that accounted for 51 percent of the
Southwest Border enforcement hours spent from 60 to 96 percent of
their time patrolling the border.  Agents at another 11 stations
spent less than 83 percent of their time patrolling the border.  For
example, the Harlingen, Texas, station is 12 miles from the Southwest
Border, and the 56 agents at this station recorded 78,630 enforcement
hours.  Sixty percent of this time was spent patrolling the border,
and 40 percent was primarily spent checking transportation, jails,
and employers for illegal aliens. 

Along the Canadian Border, there was considerable variation across
the 36 stations in the amount of enforcement time that was spent
patrolling the border.  Our analysis of INS data shows that agents
spent 67 percent of their 305,155 hours patrolling the border at the
36 stations.  For those agents at stations that spent less than 67
percent, agents at 11 stations spent between 50 and 66 percent of
their 66,762 hours patrolling the border, and agents at another 10
stations spent less than 50 percent of their 57,699 hours patrolling
the border.  The agents at these 21 stations generally spent their
time patrolling the interior, checking jails for criminal aliens,
checking public transportation or freight trains, or doing
antismuggling work.  The time agents spent patrolling the border
ranged from 97 percent of their 16,454 hours in Swanton, Vermont, to
none of their 10,089 hours in Bellingham, Washington. 

Agents at the 17 coastal patrol stations spent 14 percent of their
380,785 hours patrolling the border.  Agents at 13 of these stations
spent less than 14 percent of their 289,718 hours patrolling the
border.  At 11 of the 13 stations, agents spent no time patrolling
the border.  Most of these agents spent their time checking traffic
at highway checkpoints,\9 patrolling the interior, checking jails for
illegal aliens, or checking employers to determine if they had hired
illegal aliens.  The percentage of time agents spent patrolling the
border ranged from 93 percent of their 31,753 hours at the Ramey,
Puerto Rico, station to none at 11 stations.  For example, the 6
Border Patrol agents at the Tampa, Florida, station principally spent
their 8,142 hours patrolling the interior and checking local jails. 

Agents at the 41 stations in zone II spent 25 percent of their time
patrolling the border, with wide variation in activity across
stations.  For the agents at zone II stations, the time spent
patrolling the border ranged from 77 percent of their 22,686 hours at
the Ajo, Arizona, station to 1 percent or less at 19 stations. 
Agents at the 19 stations who spent 1 percent or less of their
431,002 hours patrolling the border principally spent their time
operating traffic check points, patrolling the interior, or checking
employers and local jails for illegal aliens.  For example, the 4
agents in Roseburg, Oregon, spent 78 percent of their 4,654 hours
checking local jails and employers for illegal aliens.  Within zone
II, the agents at 8 stations spent over half of their 273,466 hours
patrolling the border. 

The agents at the 19 zone III stations generally spent no time
patrolling the border, as could be expected.  The agents at these
stations principally spent their time patrolling the interior to
search for illegal aliens, checking employers' records, or checking
local jails for illegal aliens.  For example, the 9 Border Patrol
agents at the Dallas, Texas, station spent 98 percent of their 11,677
hours patrolling the interior and checking local jails. 

Overall, agents located at the 32 Southwest Border stations spent
562,926 enforcement hours apprehending aliens after entry. 


--------------------
\9 The San Clemente and Temecula, California; and Kingsville, Texas,
stations are highway checkpoints that are included as coastal
stations because of their proximity to the Pacific Ocean or the Gulf
of Mexico. 


   SOME BORDER PATROL ACTIVITIES
   PARALLELED INVESTIGATIONS AND
   INSPECTIONS AND WERE OF LOWER
   PRIORITY THAN INVESTIGATIONS
------------------------------------------------------------ Letter :6

When not patrolling the border, the Border Patrol, along with
Investigations and Inspections, is responsible for carrying out four
parallel enforcement activities:  (1) identifying criminal and
illegal aliens, (2) reviewing employers' records to ensure that only
authorized workers are employed, (3) investigating alien smuggling,
and (4) inspecting crewmen and passengers aboard ships. 
Investigations has lead responsibility for the first three
activities, and Inspections has lead responsibility for the last
activity.  The Border Patrol is to carry out these activities in the
same geographical areas with Investigations and Inspections and is to
coordinate its activities with them.  However, in carrying out some
of the similar activities, the Border Patrol generally performed
lower priority work than Investigations.  In most locations, the
district directors told us they relied on the Border Patrol to carry
out these enforcement activities because no other district resources
were available to do them. 


      IDENTIFYING AND REMOVING
      CRIMINAL OR ILLEGAL ALIENS
---------------------------------------------------------- Letter :6.1

INS has assigned a higher priority to removing criminal aliens than
to removing illegal aliens from the country.  According to an INS
official, criminal aliens are generally housed in state and federal
prisons, where they serve their sentences after conviction for
deportable crimes.\10 Local jails generally house individuals
awaiting trial or serving sentences for lesser crimes.  Consequently,
only a portion of the aliens in local jails will become deportable
criminal aliens.  Thus, interviewing aliens in local jails is a lower
priority within INS because fewer of these aliens are likely to be
identified as deportable criminal aliens. 

Investigators have lead responsibility for interviewing aliens who
are incarcerated in federal and state prisons to determine if they
may be deportable.  Border Patrol agents primarily visit local jails
and some state prisons where investigators are not available. 


--------------------
\10 Aliens can be deported if they have been convicted of crimes such
as drug trafficking.  These aliens are referred to as "criminal
aliens."


         IDENTIFYING CRIMINAL
         ALIENS
-------------------------------------------------------- Letter :6.1.1

Border Patrol agents are to visit local jails to identify illegal
aliens either on a periodic basis or in response to calls from local
law enforcement officers.  In some cases, Border Patrol agents
visited state prisons because, according to district directors,
investigators were not available.  In fiscal year 1994, Border Patrol
agents at the 145 Border Patrol stations spent 4 percent of their
enforcement hours visiting local jails or state prisons to identify
criminal aliens.  For example, we accompanied a Border Patrol agent
from the Dallas station to the Tarrant County jail in Fort Worth,
Texas.  The agent reviewed arrest records to determine if any
individuals in the jail might be illegal aliens.  The agent
identified two illegal aliens and obtained copies of their arrest
records.  He took the aliens into custody and returned to the Dallas
station with them to make arrangements for their removal from the
country.\11 According to the agent, he usually visited the jail every
day to identify illegal aliens. 

In some cases, district directors said that they did not have enough
investigators to visit all state prisons.  For example, California
has 42 state prisons or facilities.  Investigators are responsible
for 33, and Border Patrol agents are responsible for 9.  According to
the San Francisco District Director, he relies on Border Patrol
agents from the Bakersfield and Fresno, California, stations to
interview aliens in three state prisons because he does not have
investigators available in those areas to visit these state prisons. 


--------------------
\11 We did not determine the basis upon which the aliens were
released into INS custody. 


         REMOVING ILLEGAL ALIENS
-------------------------------------------------------- Letter :6.1.2

INS considers the identification of aliens who entered illegally or
remained here illegally (e.g., overstayed their visa) to be a lower
priority than the identification of criminal aliens.  For fiscal year
1994, 136 of the Border Patrol's 145 stations apprehended 888,994
illegal aliens.\12 Of these, 844,335 (95 percent) were voluntarily
removed, 34,190 (4 percent) were placed in deportation proceedings,
and 11,469 (1 percent) were released with instructions to leave the
country.  Data were not available on the number of illegal aliens who
were placed in deportation proceedings and then released on bond or
their own recognizance. 

INS data also showed that for 15 Border Patrol stations, 65 percent
(5,744) of the illegal aliens they apprehended (8,778) were released
and were given written instructions to leave the country.\13 Further,
each of the 15 stations released over half of the apprehended illegal
aliens.  These 15 stations are widely dispersed geographically from
Washington to New York to Florida.  According to INS officials, the
stations that release a significant portion of the aliens they
apprehend do not have removal funding for INS buses to remove illegal
aliens.\14 Except for the 32 Southwest Border stations,\15 the other
zone I stations' proximity to the border did not affect their ability
to remove illegal aliens.\16

Some zone I stations released many of the illegal aliens they
apprehended.  For example, the Sierra Blanca, Texas, station is 16
miles from the Southwest Border.  In fiscal year 1994, the agents at
that station apprehended 3,302 illegal aliens and released 1,485 or
45 percent of them. 

In contrast, some zone II and III stations released none of the
illegal aliens they apprehended.  For example, the Dallas, Texas,
station is 250 miles from the nearest border.  In fiscal year 1994,
the agents at that station apprehended 5,441 illegal aliens and
released none.  According to the Dallas District Director, this was
because the district and the Dallas Border Patrol station jointly
operate a 52-passenger bus 5 days per week for the express purpose of
transporting illegal aliens to Laredo, Texas, where they are removed
from the country. 

Border Patrol stations that are in close proximity to the Southwest
Border generally removed the aliens that were apprehended.  For
example, the Fabens, Texas, station is 5 miles from the border.  In
fiscal year 1994, the agents at that station apprehended 4,597
illegal aliens and released none.  According to the
Patrol-Agent-in-Charge of the station, its proximity to the Fabens
port of entry allows it to readily remove illegal aliens from the
country. 


--------------------
\12 Data were not available for the nine stations in the Tucson
Sector:  Naco, Ajo, Nogales, Douglas, Casa Grande, Willcox, Phoenix,
Sonoita, and Tucson, Arizona. 

\13 The 15 stations are Roseburg, Oregon; Port Angeles and Spokane,
Washington; Grand Rapids, Michigan; Fulton and Buffalo, New York;
Jacksonville, Tampa, and Orlando, Florida; Mobile, Alabama; Little
Rock, Arkansas; Baton Rouge, Louisiana; Fort Stockton and Van Horn,
Texas; and Miami, Oklahoma. 

\14 We did not determine how alien removal funding was allocated
among Border Patrol stations. 

\15 Data for 4 of the 32 Southwest Border stations were not
available. 

\16 Mexican nationals are the largest group of people entering the
United States illegally at the Southwest Border.  The Border Patrol
can more easily remove apprehended Mexican nationals because they do
not need travel documents (e.g., airline tickets and visas) that
illegal aliens from other countries would need. 


      REVIEWING EMPLOYERS' RECORDS
---------------------------------------------------------- Letter :6.2

Investigations has lead responsibility for enforcing employer
sanctions.  Its investigators are responsible for conducting
investigations of employers who are believed to be employing
unauthorized workers.  The Border Patrol also is responsible for
enforcing employer sanctions in some of the same locations and
generally has responsibility for outdoor employment activities, such
as construction, forestry, and agriculture.  Investigations generally
has responsibility for indoor employment activities, such as hotels
or restaurants.  INS fiscal year 1994 data showed that Border Patrol
agents spent 133,392 of their 5,304,672 enforcement hours (3 percent)
enforcing employer sanctions. 


      INVESTIGATING ALIEN
      SMUGGLING
---------------------------------------------------------- Letter :6.3

Investigations has lead responsibility for identifying and
investigating alien smugglers.  Both Investigations and the Border
Patrol investigate alien smuggling cases.  These cases are
categorized by the Investigations case management system on the basis
of the severity and complexity of the case.  The highest priority
cases, level 1, involve complex criminal organizations that
frequently smuggle large numbers of aliens into the country and
require handling by investigators.  The lowest priority cases, level
3, generally involve individuals who occasionally smuggle aliens into
the country. 

INS fiscal year 1994 data showed that Border Patrol agents spent
89,575 of their 5,304,672 enforcement hours (2 percent) doing
antismuggling work.\17 According to an INS official, investigators
assigned to the Border Patrol generally investigate high priority
antismuggling cases, while Border Patrol agents work lower priority
cases.  For example, in the Miami Sector, the investigators assigned
to the Border Patrol performed the highest priority alien smuggling
cases, while the agents performed low priority cases.  The
investigators assigned to the Border Patrol in the Blaine Sector in
Washington performed both high and lower priority investigations.  In
Buffalo, New York, the district and the Buffalo and Swanton, Vermont,
sectors have memorandums of understanding for handling antismuggling
cases.  According to the agreements, the Swanton Sector did both high
and lower priority cases because it had investigators who could
handle complex cases, while the Buffalo Sector performed only lower
priority antismuggling cases because it did not have investigators. 
Buffalo District investigators handled high priority cases. 
According to the Portland, Maine, District Director, he relied on
Border Patrol agents to perform antismuggling work in those areas
where he did not have investigators. 


--------------------
\17 Investigators who are assigned to the Border Patrol are under the
operational control and supervision of the Chief Patrol Agent for
each sector; however, their enforcement time is recorded with
Investigations and was not readily available. 


      INSPECTING CREWMEN AND
      PASSENGERS ABOARD VESSELS
---------------------------------------------------------- Letter :6.4

In fiscal year 1994, 20 Border Patrol stations reported that they
inspected crewmen and passengers on vessels.  The two most active
stations were Miami, Florida, and New Orleans, Louisiana.  In two
locations that we visited, Border Patrol agents and immigration
inspectors performed parallel activities in the same geographic
areas.  For example, in New Orleans a Border Patrol agent conducted
an unannounced inspection to determine if nonadmissible crew members
had left a ship.  The New Orleans district had inspectors at the port
who could perform this task. 

Similarly, Border Patrol agents from the Orlando, Florida, station
responded to a report from a shipping agent concerning a crewman who
had not returned to his ship at Port Canaveral.  The agents traveled
about 55 miles to the ship, picked up the crew member's passport, and
searched his quarters.  Inspectors stationed at the port could
perform this task.  In another case, Border Patrol agents from the
Port Angeles, Washington, station occasionally inspect arriving ferry
passengers from Victoria, British Columbia, Canada.  However,
according to the Seattle District Director, immigration inspectors
located in Victoria, Canada, inspect passengers before they board the
ferry. 


      INS COMMISSIONER'S AND
      DISTRICT DIRECTORS' VIEWS OF
      THE IMPACT ON ENFORCEMENT
      ACTIVITIES OF AGENT
      RELOCATION OR REDIRECTION
---------------------------------------------------------- Letter :6.5

The INS Commissioner and district directors pointed out that if
Border Patrol agents were relocated to the border, additional
resources would be needed to perform the enforcement activities they
currently do.  District directors said that the agents contributed to
their districts' enforcement efforts.  Some district directors added
that they would not use replacement resources to carry out some lower
priority work that the agents are doing. 

During a hearing before a subcommittee of the House Committee on
Appropriations, in response to questions regarding the assignment of
agents to interior stations, the Commissioner of INS said, "Our
Border Patrol needs to be first and foremost devoted to border
enforcement at the border."\18 She favored redeploying interior
agents to the border if INS could get additional resources to do the
work presently being done by the agents (e.g., employer and jail
checks and the removal of illegal aliens).  A Continuing Resolution
provides funding for INS enforcement programs through the end of
fiscal year 1996 at the resource level provided in the conference
report.\19 The resource level includes $12 million for the
reallocation of 200 Border Patrol positions from interior stations to
the front lines of the border.  INS expects to relocate these 200
agent positions to the Southwest Border.  INS had 1,368 agents who
were not located on the Southwest Border at the end of fiscal year
1994. 

The conferees agreed that effective border control is the most
important means of controlling illegal immigration and that INS must
use its Border Patrol resources in a way that ensures that
apprehension of illegal aliens at the border is its first priority. 
They agreed that INS can no longer use Border Patrol resources on
functions not directly related to border control.  However, the
conferees recognized the importance of an INS enforcement presence in
parts of the country that have significant illegal immigrant
populations.  Rather than close any of these offices, the conferees
directed INS to restaff these offices with criminal investigators to
ensure that interior enforcement activities currently performed in
these locations can continue.\20

On January 29, 1996, INS told us that it is continuing to develop and
review options for the relocation of interior Border Patrol agent
positions and plans to present to the Appropriations Committees an
integrated plan addressing the entire relocation issue in mid-March. 

Fourteen of the 15 district directors with whom we met said that the
Border Patrol contributed to their districts' enforcement efforts. 
Thirteen district directors said that if agents were redeployed or
redirected, their districts would perform some of the work currently
being performed by the Border Patrol if they received additional
enforcement officers.  The number and specific types of replacement
immigration enforcement officers that they said would be needed
varied depending on the work being performed by the Border Patrol
within the various districts we visited.  Eight district directors
said that INS is currently hiring investigative aides to interview
aliens in local jails and check employers' records, the same type of
work that is currently performed by Border Patrol agents.  However,
INS has not determined whether the aides will supplement or replace
Border Patrol agents. 

Thirteen district directors generally said that they would use
replacement resources to continue to perform the inspections,
detention, deportation, and employer and jail checks that the Border
Patrol currently performs.  They added that they would not use
replacement resources to perform some lower priority enforcement work
currently performed by the Border Patrol, such as patrolling the
interior and randomly checking traffic, public transportation, and
freight trains.  In their districts, only the Border Patrol routinely
conducted these types of activities.  In doing so, the agents
contributed to fulfilling the districts' enforcement responsibilities
for apprehending and removing illegal aliens. 

Fourteen district directors said that in carrying out their
enforcement activities, they relied on the Border Patrol because of
their limited resources.  For example, the Detroit District Director
said that she relied on the Border Patrol to respond to complaints in
western Michigan because she had no resources in that area.  The San
Francisco District Director said he relied on Border Patrol agents at
the Bakersfield and Fresno stations to interview aliens at three
state prisons.  The Los Angeles District Director said he relied on
Border Patrol agents from the Oxnard station to inspect about 15
ships per month at Port Hueneme.  The Dallas District Director said
that he relied on the Border Patrol to transport deportable aliens
from Dallas to Laredo.  The Helena District Director said that he
relied on the Border Patrol to apprehend aliens who had received
final orders of deportation, most of whom were in the Twin Falls,
Idaho, area. 


--------------------
\18 Departments of Commerce, Justice, and State, the Judiciary, and
Related Agencies Appropriations for 1996, Hearings before a
Subcommittee of the Committee on Appropriations, House of
Representatives, 104th Cong., 1st Sess., pt.  7, at 770, 771 (1995). 

\19 The January 6, 1996, Continuing Resolution, as amended by the
Continuing Resolution passed on January 26, 1996, funded INS
enforcement activities to the extent and in the manner and at a rate
for operations as provided for in the conference report and joint
explanatory statement of the Committee of Conference (H.R.  104-378)
on the Departments of Commerce, Justice, and State, the Judiciary,
and Related Agencies Appropriations Act, 1996 (H.R.  2076), as passed
by the House of Representatives on December 6, 1995.  P.L.  104-91,
110 Stat.  7, as amended by P.L.  104-99, 110 Stat.  26 (1996). 

\20 H.R.  104-378, 104th Cong., 1st Sess.  at 88, 89 (1995). 


      SOME COST FACTORS PERTAINING
      TO RELOCATING AGENTS
---------------------------------------------------------- Letter :6.6

According to INS' fiscal year 1995 budget data, it costs almost twice
as much to hire, train, and equip a new Border Patrol agent as it
does to redeploy an agent.  The average cost in fiscal year 1994--the
most recent year for which data were available--was $59,638 to
redeploy agents.  In comparison, the budget data showed that the cost
to hire, train, and equip one agent in fiscal year 1995 ranged from
$107,840 to $115,716, depending on the agent's grade level. 

The cost information necessary to estimate all potential redeployment
costs was not available.  A complete cost analysis would require
information on the number and types of replacement staff to be hired
(their numbers, training costs, and salaries), the salary levels of
agents to be moved compared to those of new agents, and other factors
beyond the scope of this review. 

According to an INS official, the relocation of agents could result
in INS closing some of its Border Patrol stations.  Should this
occur, INS could reduce some of its lease costs.  For example, if INS
were to close the Miami, Oklahoma, station, INS estimated that it
would result in lease and other cost savings of $13,180 per year. 
(See app.  IV for INS data on Border Patrol facility leasing costs.)


   CONCLUSIONS
------------------------------------------------------------ Letter :7

Most (79 percent) of the Border Patrol's 3,911 agents who were
located at 145 stations were within 25 miles of the border (zone I),
and the majority (65 percent) of these agents were on the Southwest
Border.  While 63 percent of all the agents' time was spent
patrolling the border, the amount of time varied among zones and
among stations within zones.  Most agents at stations on the coastal
borders and in zones II and III did not principally spend their time
patrolling the border.  While agents in zone I spent 76 percent of
their time patrolling the border, the agents at the Southwest Border
stations spent 83 percent of their time patrolling the border. 
Conversely, the agents on the Southwest Border spent 17 percent of
their time (or 562,926 hours) apprehending illegal aliens after
entry.  These agents who are already located at the Southwest Border
could have their time redirected to patrolling the border. 

Redeploying agents to the border or redirecting the enforcement time
of agents on the border would affect the districts' enforcement
capability.  In some locations, Border Patrol agents are performing
activities that parallel those carried out by Inspections or
Investigations.  In some cases, Border Patrol agents were performing
activities that INS considers to be lower priority.  However, the
district directors generally said that the Border Patrol made a
positive contribution to the districts' enforcement efforts and that
redirecting agent time or redeploying agents, without replacing them,
would diminish the districts' enforcement capabilities. 

INS budget data indicated that relocating agents to the border was
less costly than hiring new agents.  However, information was not
available to fully estimate the potential costs for replacing agents
with other INS enforcement officers.  Information, such as how many
redeployed or redirected agents would be replaced and what type of
replacement staff would be used, would be needed to determine all
relocation and redirection costs. 

The INS Commissioner favors redeploying Border Patrol agents to the
border, if replacement enforcement officers are provided to carry out
the work being performed by the agents at these interior locations. 
INS' fiscal year 1996 Continuing Resolution provided funding to
relocate 200 Border Patrol agent positions to the front lines of the
border and directs INS to restaff interior offices with criminal
investigators.  INS plans to relocate these 200 agent positions to
the Southwest Border.  In fiscal year 1994, INS had 1,368 agents who
were not on the Southwest Border. 


   AGENCY COMMENTS
------------------------------------------------------------ Letter :8

On January 29, 1996, we met with Department of Justice officials,
including the Counsel to the Deputy Attorney General and the INS
Assistant Commissioner for Budget.  The officials agreed with the
material in the report.  They emphasized that our review focused on
enforcement activities but did not evaluate the deterrent effect the
Border Patrol agents' activities have in nonborder locations (i.e.,
stations located over 25 miles from the land borders).  The focus of
our review was on the activities and location of Border Patrol
agents.  We recognize that the presence of agents could have a
deterrent effect in nonborder areas.  We also recognize the
importance of having agents directly on the border.  We also agree
that the transfer of agents would have an impact on enforcement
activities in their previous locations unless they were restaffed. 


---------------------------------------------------------- Letter :8.1

We are sending copies of this report to the Attorney General; the INS
Commissioner; the Director, Office of Management and Budget; and
other interested parties.  Copies will also be made available to
others upon request. 

Major contributors to this report are listed in appendix V.  If you
have any questions about this report, please contact me on (202)
512-8777. 

Laurie E.  Ekstrand
Associate Director, Administration
 of Justice Issues


TABLE AND MAPS SHOWING BORDER
PATROL LOCATIONS, NUMBER OF
AGENTS, AND THEIR TIME SPENT
PATROLLING THE BORDER
=========================================================== Appendix I



                                    Table I.1
                     
                        Border Patrol Stations, Number of
                      Agents, and Activities in Fiscal Year
                                       1994


                                                       Percentage
                                      Miles    Number     of time
            Station                from the        of  patrolling  Principal
Map number  name           State     border    agents  the border  activities\a
----------  -------------  ------  --------  --------  ----------  -------------
1           Mobile         AL             3         6        0.0%  Patrol the
                                                                   interior,
                                                                   employer
                                                                   sanctions

2           Little Rock    AR           325         5         0.0  Patrol the
                                                                   interior,
                                                                   criminal
                                                                   aliens

3           Ajo            AZ            33        14        77.1  Patrol the
                                                                   border

4           Casa Grande    AZ            73         8         0.1  Traffic
                                                                   check, patrol
                                                                   the interior

5           Douglas        AZ             7        55        93.8  Patrol the
                                                                   border

6           Naco           AZ            11        17        83.6  Patrol the
                                                                   border

7           Nogales        AZ             8        79        87.4  Patrol the
                                                                   border

8           Phoenix        AZ           120         4         1.3  Criminal
                                                                   aliens

9           Sonoita        AZ            24         8        69.5  Patrol the
                                                                   border

10          Tucson         AZ            57        73        26.6  Traffic check

11          Wellton        AZ            35        18        18.6  Traffic check

12          Willcox        AZ            85         9         0.0  Traffic check

13          Yuma           AZ             4       127        90.5  Patrol the
                                                                   border

14          Bakersfield    CA            70        11         0.0  Criminal
                                                                   aliens

15          Blythe         CA            59        19         0.0  Traffic check

16          Brown Field    CA             1       299        94.3  Patrol the
                                                                   border

17          Calexico       CA             3        77        91.6  Patrol the
                                                                   border

18          Campo          CA             8        58        95.9  Patrol the
                                                                   border

19          Chula Vista    CA             5       295        96.0  Patrol the
                                                                   border

20          El Cajon       CA            15        62        72.8  Patrol the
                                                                   border

21          El Centro      CA             9        75        24.9  Traffic check

22          Fresno         CA           103         4         0.0  Criminal
                                                                   aliens

23          Imperial       CA             1       298        90.5  Patrol the
            Beach                                                  border

24          Indio          CA            77        14         0.3  Patrol the
                                                                   interior,
                                                                   traffic check

25          Livermore      CA            15         5         0.0  Criminal
                                                                   aliens,
                                                                   patrol the
                                                                   interior

26          Oxnard         CA             3         5         0.0  Criminal
                                                                   aliens,
                                                                   patrol the
                                                                   interior

27          Riverside      CA            41        11         0.5  Patrol the
                                                                   interior

28          Sacramento     CA            52         6         0.0  Patrol the
                                                                   interior

29          Salinas        CA             8         3         0.0  Criminal
                                                                   aliens,
                                                                   patrol the
                                                                   interior

30          San Clemente   CA             3        93         0.0  Traffic check

31          San Luis       CA             5         3         0.0  Patrol the
            Obispo                                                 interior,
                                                                   criminal
                                                                   aliens

32          Stockton       CA            52         8         0.0  Criminal
                                                                   aliens,
                                                                   traffic check

33          Temecula       CA            23        73         0.0  Traffic check

34          Jacksonville   FL            15         6         6.4  Patrol the
                                                                   interior

35          Miami          FL             7        26        34.5  Patrol the
                                                                   border,
                                                                   patrol the
                                                                   interior

36          Orlando        FL            39         8         0.1  Patrol the
                                                                   interior

37          Tampa          FL             1         6         0.0  Patrol the
                                                                   interior,
                                                                   criminal
                                                                   aliens

38          West Palm      FL             3         5         5.3  Patrol the
            Beach                                                  interior

39          Bonners Ferry  ID            14         3        46.2  Patrol the
                                                                   border,
                                                                   patrol the
                                                                   interior

40          Twin Falls     ID           466         4         0.1  Criminal
                                                                   aliens

41          Baton Rouge    LA            41         4         0.0  Patrol the
                                                                   interior,
                                                                   criminal
                                                                   aliens

42          Lake Charles   LA            36         5         0.0  Patrol the
                                                                   interior

43          New Orleans    LA             8         8         0.0  Patrol the
                                                                   interior,
                                                                   employer
                                                                   sanctions

44          Calais         ME             3         8        85.8  Patrol the
                                                                   border

45          Fort           ME             3         5        92.4  Patrol the
            Fairfield                                              border

46          Houlton        ME             7         7        77.4  Patrol the
                                                                   border

47          Jackman        ME             7         6        68.1  Patrol the
                                                                   border

48          Van Buren      ME             4         5        83.5  Patrol the
                                                                   border

49          Detroit        MI             1         9        30.5  Patrol the
                                                                   interior,
                                                                   patrol the
                                                                   border

50          Grand Rapids   MI           160         4         0.0  Criminal
                                                                   aliens,
                                                                   patrol the
                                                                   interior

51          Port Huron     MI             1         4        25.7  Antismuggling
                                                                   , patrol the
                                                                   border

52          Sault Ste      MI             9         4        62.3  Patrol the
            Marie                                                  border

53          Trenton        MI             5         5        49.8  Patrol the
                                                                   border,
                                                                   patrol the
                                                                   interior

54          Duluth         MN            97         3         0.2  Patrol the
                                                                   interior,
                                                                   antismuggling

55          Grand Marais   MN            22         1        11.3  Patrol the
                                                                   interior,
                                                                   antismuggling

56          International  MN             7         2        52.3  Patrol the
            Falls                                                  border

57          Warroad        MN             7         2        49.7  Patrol the
                                                                   border,
                                                                   antismuggling

58          Gulfport       MS             3         4         0.0  Employer
                                                                   sanctions,
                                                                   patrol the
                                                                   interior

59          Billings       MT           232         2         0.0  Criminal
                                                                   aliens

60          Eureka         MT            15         2        58.0  Patrol the
                                                                   border

61          Havre          MT            30         4        39.3  Patrol the
                                                                   border,
                                                                   patrol the
                                                                   interior

62          Malta          MT            47         2        33.9  Traffic
                                                                   check, patrol
                                                                   the border

63          Plentywood     MT            14         4        47.6  Patrol the
                                                                   border,
                                                                   antismuggling

64          Scobey         MT            18         2        53.9  Patrol the
                                                                   border

65          Shelby         MT            34         3        42.6  Patrol the
                                                                   border,
                                                                   traffic check

66          St. Mary       MT             6         2        50.6  Patrol the
                                                                   border

67          Sweetgrass     MT             2         3        43.2  Patrol the
                                                                   border,
                                                                   criminal
                                                                   aliens

68          Whitefish      MT            34         4         5.5  Employer
                                                                   sanctions,
                                                                   patrol the
                                                                   interior

69          Bottineau      ND            11         4        36.7  Patrol the
                                                                   border,
                                                                   antismuggling

70          Grand Forks    ND            77         4        41.4  Patrol the
                                                                   border,
                                                                   criminal
                                                                   aliens

71          Pembina        ND             2         4        56.5  Patrol the
                                                                   border

72          Portal         ND             4         4        31.0  Antismuggling
                                                                   , patrol the
                                                                   border

73          Alamagordo     NM            75        49         0.0  Traffic check

74          Albuquerque    NM           234        10         0.4  Patrol the
                                                                   interior,
                                                                   criminal
                                                                   aliens

75          Carlsbad       NM           110        10         0.0  Patrol the
                                                                   interior

76          Deming         NM            28        41        77.1  Patrol the
                                                                   border

77          Las Cruces     NM            53        70         0.5  Traffic check

78          Lordsburg      NM            52        13        36.6  Patrol the
                                                                   border,
                                                                   traffic check

79          Truth or       NM            98        12         0.0  Traffic check
            Consequences

80          Boulder City   NV           221         2         0.0  Transportatio
                                                                   n and traffic
                                                                   checks

81          Buffalo        NY             5        12        49.6  Patrol the
                                                                   border

82          Burke          NY             5        11        92.5  Patrol the
            (Malone)                                               border

83          Champlain      NY             3        17        85.8  Patrol the
                                                                   border

84          Fulton         NY            30         4        56.0  Patrol the
                                                                   border

85          Massena        NY             3         3        58.1  Patrol the
                                                                   border

86          Niagara Falls  NY             2         8        67.0  Patrol the
                                                                   border

87          Ogdensburg     NY             3         5        58.6  Patrol the
                                                                   border

88          Watertown      NY            25         4        66.7  Patrol the
                                                                   border

89          Miami          OK           478         2         0.0  Patrol the
                                                                   interior

90          Roseburg       OR            47         4         0.2  Criminal
                                                                   aliens,
                                                                   employer
                                                                   sanctions

91          Ramey          PR             1        22        93.0  Patrol the
                                                                   border

92          Alpine         TX            42        24        14.5  Traffic check

93          Amarillo       TX           352         3         0.0  Traffic
                                                                   check, patrol
                                                                   the interior

94          Brackettville  TX            24        31        71.1  Patrol the
                                                                   border

95          Brownsville    TX             4        62        82.0  Patrol the
                                                                   border

96          Carizzo        TX            29        26        60.6  Patrol the
            Springs                                                border

97          Comstock       TX            13        12        93.7  Patrol the
                                                                   border

98          Corpus         TX             5        15        43.6  Patrol the
            Christi                                                border,
                                                                   antismuggling

99          Cotulla        TX            59        21        57.0  Patrol the
                                                                   border

100         Dallas         TX           250         9         0.0  Patrol the
                                                                   interior

101         Del Rio        TX             5        75        72.7  Patrol the
                                                                   border

102         Eagle Pass     TX             8        58        88.6  Patrol the
                                                                   border

103         El Paso        TX             5       274        90.7  Patrol the
                                                                   border

104         Fabens         TX             5        19        98.2  Patrol the
                                                                   border

105         Falfurrias     TX            33        49         0.0  Traffic check

106         Fort Hancock   TX            20        11        98.3  Patrol the
                                                                   border

107         Fort Stockton  TX            63         3         2.9  Employer
                                                                   sanctions,
                                                                   transportatio
                                                                   n check

108         Freer          TX            59        34        55.3  Patrol the
                                                                   border

109         Harlingen      TX            12        56        59.7  Patrol the
                                                                   border

110         Hebbronville   TX            38        52        38.8  Traffic check

111         Kingsville     TX             4        48         0.0  Traffic check

112         Laredo North   TX            21       116        59.6  Patrol the
                                                                   border

113         Laredo South   TX            22        75        84.2  Patrol the
                                                                   border

114         Llano          TX           159         1         0.0  Employer
                                                                   sanctions,
                                                                   patrol the
                                                                   interior

115         Lubbock        TX           258         7         0.0  Traffic
                                                                   check, patrol
                                                                   the interior

116         Marfa          TX            40        17         5.3  Traffic
                                                                   check, patrol
                                                                   the interior

117         McAllen        TX             4        66        81.3  Patrol the
                                                                   border

118         Mercedes       TX             7        30        87.8  Patrol the
                                                                   border

119         Midland        TX           141         4         0.5  Employer
                                                                   sanctions,
                                                                   patrol the
                                                                   interior

120         Pecos          TX            93         5         3.1  Patrol the
                                                                   interior,
                                                                   employer
                                                                   sanctions

121         Port Isabel    TX            11        16        55.8  Patrol the
                                                                   border

122         Presidio       TX            12        12        89.5  Patrol the
                                                                   border

123         Rio Grande     TX            16        31        94.1  Patrol the
            City                                                   border

124         Rocksprings    TX            59         6         0.0  Patrol the
                                                                   interior,
                                                                   traffic check

125         San Angelo     TX           122        38         0.0  Patrol the
                                                                   interior

126         San Antonio    TX           126         9         0.0  Patrol the
                                                                   interior,
                                                                   transportatio
                                                                   n check

127         Sanderson      TX            18         6        71.9  Patrol the
                                                                   border

128         Sierra Blanca  TX            16        28        24.8  Traffic check

129         Uvalde         TX            51        26        51.8  Patrol the
                                                                   border

130         Van Horn       TX            30         7        14.3  Traffic
                                                                   check,
                                                                   employer
                                                                   sanctions

131         Ysleta         TX             6       111        91.4  Patrol the
                                                                   border

132         Zapata         TX             9         4        93.2  Patrol the
                                                                   border

133         Beecher Falls  VT             1         5        93.9  Patrol the
                                                                   border

134         Newport        VT             6         9        90.9  Patrol the
                                                                   border

135         Richford       VT             4         5        81.7  Patrol the
                                                                   border

136         Swanton        VT             3        10        97.1  Patrol the
                                                                   border

137         Bellingham     WA             1         8         0.0  Criminal
                                                                   aliens,
                                                                   patrol the
                                                                   interior

138         Blaine         WA             2        15        85.7  Patrol the
                                                                   border

139         Colville       WA            31         3        62.7  Patrol the
                                                                   border

140         Lynden         WA             4         8        83.8  Patrol the
                                                                   border

141         Oroville       WA             5         7        36.3  Patrol the
                                                                   border,
                                                                   criminal
                                                                   aliens

142         Pasco          WA           178         2         0.0  Patrol the
                                                                   interior,
                                                                   employer
                                                                   sanctions

143         Port Angeles   WA            10         4        54.0  Patrol the
                                                                   border

144         Spokane        WA            86         7         0.6  Patrol the
                                                                   interior,
                                                                   criminal
                                                                   aliens

145         Wenatchee      WA           110         2         3.0  Criminal
                                                                   aliens,
                                                                   patrol the
                                                                   interior

================================================================================
Total                                           3,911
number
of agents
--------------------------------------------------------------------------------
\a The principal activity or activities accounted for at least half
of the agents' total enforcement hours at each station. 

Source:  GAO analysis of INS data. 

   Figure I.1:  Border Patrol
   Agent Deployment for Fiscal
   Year 1994

   (See figure in printed
   edition.)



   (See figure in printed
   edition.)

   Source:  GAO analysis of INS
   data.

   (See figure in printed
   edition.)

   Figure I.2:  Border Patrol
   Agent Time Spent Patrolling the
   Border by Station for Fiscal
   Year 1994

   (See figure in printed
   edition.)



   (See figure in printed
   edition.)

   Source:  GAO analysis of INS
   data.

   (See figure in printed
   edition.)


FISCAL YEAR 1994 BORDER PATROL
STAFFING BY LOCATION
========================================================== Appendix II

Headquar                                              Detentio  Suppor
ters                Supervisor      BP  Investigator         n       t     Total
name      State          y BPA  agents             s  officers   staff     staff
--------  --------  ----------  ------  ------------  --------  ------  ========
Headquar  DC                 4      13             0         0      17        34
 ters
Special   TX                15       4             1         0      24        44
 Operati
 ons HQ
Artesia   NM                 8       0             0         0       2        10
 Training
 Facilit
 y
Glynco    GA                36       0             0         0      20        56
 Training
 Facilit
 y
Regions   VT, TX,            2       8             0         0      13        23
           CA
================================================================================
Total                       65      25             1         0      76       167

                    Supervisor      BP  Investigator  Detentio  Suppor     Total
 Sector    State             y  agents             s         n       t     staff
 name                      BPA                        officers   staff
Blaine    WA                 2       1             5         0      13        21
 Sector
 HQ
Buffalo   NY                 2       1             0         0      12        15
 Sector
 HQ
Del Rio   TX                10       6             0         6      50        72
 Sector
 HQ
Detroit   MI                 3       2             0         0       9        14
 Sector
 HQ
El        CA                 5       3             3         0      55        66
 Centro
 Sector
 HQ
El Paso   TX                13      14             9         6     108       150
 Sector
 HQ
Grand     ND                 3       2             0         1      10        16
 Forks
 Sector
 HQ
Havre     MT                 3       1             0         1      10        15
 Sector
 HQ
Houlton   ME                 3       1             0         0      12        16
 Sector
 HQ
Laredo    TX                 8       9            11        10      39        77
 Sector
 HQ
Livermor  CA                 5       1             4         3      14        27
 e
 Sector
 HQ
MIami     FL                 3       1             7         0      13        24
 Sector
 HQ
Marfa     TX                 6       6             6         5      18        41
 Sector
 HQ
Mayaguez  PR                 2       1             0        10       7        20
 Sector
 HQ
McAllen   TX                 9      10             6         4      61        90
 Sector
 HQ
New       LA                 3       1             0         1      11        16
 Orleans
 Sector
 HQ
San       CA                 9      84            17         6     145       261
 Diego
 Sector
 HQ
Spokane   WA                 3       3             0         0      12        18
 Sector
 HQ
Swanton   VT                 4       1             3         0      23        31
 Sector
 HQ
Tucson    AZ                 6       3             5         7      54        75
 Sector
 HQ
Yuma      AZ                 5       1             6         3      43        58
 Sector
 HQ
================================================================================
Total                      107     152            82        63     719     1,123

                    Supervisor      BP  Investigator  Detentio  Suppor     Total
 Station   State             y  agents             s         n       t     staff
 name                      BPA                         officer   staff
Mobile    AL                 1       5             0         0       0         6
Little    AR                 1       4             3         1       1        10
 Rock
Ajo       AZ                 2      12             0         0       0        14
Casa      AZ                 1       7             0         1       0         9
 Grande
Douglas   AZ                 9      46             0         0       7        62
Naco      AZ                 3      14             0         0       1        18
Nogales   AZ                12      67             0         0       7        86
Phoenix   AZ                 1       3             0         0       1         5
Sonoita   AZ                 1       7             0         0       0         8
Tucson    AZ                 8      65             0         0       1        74
Wellton   AZ                 3      15             0         0       0        18
Willcox   AZ                 1       8             0         3       1        13
Yuma      AZ                22     105             0         0       3       130
Bakersfi  CA                 2       9             0         5       7        23
 eld
Blythe    CA                 3      16             0         1       1        21
Brown     CA                33     266             0         1       6       306
 Field
Calexico  CA                15      62             0         2       2        81
Campo     CA                 9      49             0         0       1        59
Chula     CA                34     261             0         2       6       303
 Vista
El Cajon  CA                10      52             0         0       4        66
El        CA                12      63             0         3       1        79
 Centro
Fresno    CA                 0       4             0         3       3        10
Imperial  CA                41     257             0         5       7       310
 Beach
Indio     CA                 3      11             0         1       0        15
Livermor  CA                 2       3             0         0       1         6
 e
Oxnard    CA                 1       4             0         1       1         7
Riversid  CA                 1      10             0         1       0        12
 e
Sacramen  CA                 1       5             0         2       2        10
 to
Salinas   CA                 1       2             0         1       1         5
San       CA                16      77             0         0       3        96
 Clemente
San Luis  CA                 1       2             0         1       0         4
 Obispo
Stockton  CA                 1       7             0         2       1        11
Temecula  CA                10      63             0         1       5        79
Jacksonv  FL                 1       5             0         0       0         6
 ille
Miami     FL                 5      21             0         0       1        27
Orlando   FL                 1       7             2         1       1        12
Tampa     FL                 1       5             0         1       0         7
West      FL                 1       4             0         1       0         6
 Palm
 Beach
Bonners   ID                 1       2             0         0       0         3
 Ferry
Twin      ID                 1       3             0         0       0         4
 Falls
Baton     LA                 0       4             0         0       1         5
 Rouge
Lake      LA                 1       4             0         1       1         7
 Charles
New       LA                 1       7             0         0       1         9
 Orleans
Calais    ME                 1       7             0         0       1         9
Fort      ME                 1       4             0         0       0         5
 Fairfie
 ld
Houlton   ME                 1       6             0         0       1         8
Jackman   ME                 1       5             0         0       1         7
Van       ME                 1       4             0         0       1         6
 Buren
Detroit   MI                 1       8             0         0       0         9
Grand     MI                 1       3             0         0       0         4
 Rapids
Port      MI                 1       3             0         0       0         4
 Huron
Sault     MI                 1       3             0         0       0         4
 Ste
 Marie
Trenton   MI                 1       4             0         0       0         5
Duluth    MN                 1       2             0         0       0         3
Grand     MN                 0       1             0         0       0         1
 Marais
Internat  MN                 1       1             0         0       0         2
 ional
 Falls
Warroad   MN                 0       2             0         0       0         2
Gulfport  MS                 1       3             0         1       1         6
Billings  MT                 0       2             0         0       0         2
Eureka    MT                 0       2             0         0       0         2
Havre     MT                 1       3             0         0       0         4
Malta     MT                 0       2             0         0       0         2
Plentywo  MT                 1       3             0         0       0         4
 od
Scobey    MT                 0       2             0         0       0         2
Shelby    MT                 1       2             0         0       0         3
St. Mary  MT                 0       2             0         0       0         2
Sweetgra  MT                 0       3             0         0       0         3
 ss
Whitefis  MT                 1       3             0         0       0         4
 h
Bottinea  ND                 1       3             0         0       0         4
 u
Grand     ND                 1       3             0         0       0         4
 Forks
Pembina   ND                 1       3             0         0       0         4
Portal    ND                 1       3             0         0       0         4
Alamagor  NM                 7      42             0         0       1        50
 do
Albuquer  NM                 1       9             0         1       1        12
 que
Carlsbad  NM                 1       9             0         0       1        11
Deming    NM                 6      35             0         1       2        44
Las       NM                 7      63             2         2       3        77
 Cruces
Lordsbur  NM                 2      11             0         0       0        13
 g
Truth or  NM                 1      11             0         0       1        13
 Consequ
 ences
Boulder   NV                 1       1             0         0       0         2
 City
Buffalo   NY                 2      10             0         0       0        12
Burke     NY                 1      10             1         0       1        13
 (Malone)
Champlai  NY                 3      14             0         0       1        18
 n
Fulton    NY                 2       2             0         0       1         5
Massena   NY                 0       3             1         0       0         4
Niagara   NY                 1       7             0         0       0         8
 Falls
Ogdensbu  NY                 1       4             0         0       0         5
 rg
Watertow  NY                 1       3             0         0       0         4
 n
Miami     OK                 0       2             0         0       0         2
Roseburg  OR                 1       3             0         0       0         4
Ramey     PR                 5      17             0         1       0        23
Alpine    TX                 5      19             0         0       0        24
Amarillo  TX                 0       3             0         2       0         5
Brackett  TX                 6      25             0         0       1        32
 ville
Brownsvi  TX                 7      55             6         3       4        75
 lle
Carizzo   TX                 5      21             0         0       1        27
 Springs
Comstock  TX                 3       9             0         0       1        13
Corpus    TX                 3      12             2         1       1        19
 Christi
Cotulla   TX                 4      17             0         0       1        22
Dallas    TX                 1       8             0         0       0         9
Del Rio   TX                11      64             5         0       2        82
Eagle     TX                10      48             4         0      15        77
 Pass
El Paso   TX                28     246             0         0       1       275
Fabens    TX                 2      17             0         0       1        20
Falfurri  TX                 5      44             0         0       1        50
 as
Fort      TX                 0      11             0         0       0        11
 Hancock
Fort      TX                 0       3             0         0       0         3
 Stockton
Freer     TX                 4      30             0         0       1        35
Harlinge  TX                 6      50             0         0       2        58
 n
Hebbronv  TX                 6      46             0         0       1        53
 ille
Kingsvil  TX                 5      43             0         1       2        51
 le
Laredo    TX                15     101             0         0       1       117
 North
Laredo    TX                13      62             0         0       1        76
 South
Llano     TX                 0       1             0         0       0         1
Lubbock   TX                 1       6             0         2       1        10
Marfa     TX                 2      15             0         0       0        17
McAllen   TX                11      55             0         0       3        69
Mercedes  TX                 2      28             0         0       2        32
Midland   TX                 1       3             2         2       0         8
Pecos     TX                 1       4             0         1       0         6
Port      TX                 2      14             0         0       2        18
 Isabel
Presidio  TX                 2      10             0         0       1        13
Rio       TX                 5      26             0         0       2        33
 Grande
 City
Rockspri  TX                 2       4             0         0       1         7
 ngs
San       TX                 6      32             3         3       2        46
 Angelo
San       TX                 1       8             0         0       1        10
 Antonio
Sanderso  TX                 1       5             0         0       1         7
 n
Sierra    TX                 5      23             0         0       0        28
 Blanca
Uvalde    TX                 4      22             0         0       1        27
Van Horn  TX                 1       6             0         0       1         8
Ysleta    TX                11     100             0         0       1       112
Zapata    TX                 1       3             0         0       0         4
Beecher   VT                 1       4             0         0       0         5
 Falls
Newport   VT                 1       8             1         0       1        11
Richford  VT                 1       4             0         0       0         5
Swanton   VT                 1       9             0         0       1        11
Bellingh  WA                 1       7             0         0       0         8
 am
Blaine    WA                 3      12             0         2       0        17
Colville  WA                 1       2             0         0       0         3
Lynden    WA                 1       7             0         0       0         8
Oroville  WA                 1       6             0         0       0         7
Pasco     WA                 0       2             0         0       0         2
Port      WA                 1       3             0         0       0         4
 Angeles
Spokane   WA                 1       6             0         0       0         7
Wenatche  WA                 0       2             0         0       0         2
 e
================================================================================
Total                      549   3,362            32        64     154     4,161
--------------------------------------------------------------------------------
BPA = Border Patrol agent
BP = Border Patrol

Source:  GAO analysis of INS data. 


BORDER PATROL ENFORCEMENT
ACTIVITIES BY LOCATION
========================================================= Appendix III

   Figure III.1:  Southwest Border
   Enforcement Activity for Fiscal
   Year 1994

   (See figure in printed
   edition.)

N = 3,377,221 enforcement hours at 32 stations. 

Note:  "Other activities," which were 1 percent or less, include boat
patrol, air patrol, patrol the interior, crewman/stowaway, and
employer sanctions. 

Source:  GAO analysis of INS data. 



                                                                                     Table III.1
                                                                       
                                                                        Southwest Border Enforcement Activity
                                                                           for Fiscal Year 1994 by Station

                                      Prevent     Apprehend
                         Distance       entry   after entry    Patrol      Boat       Air   Traffic  Transportati    Patrol    Crewman/   Employer  Criminal  Antismugglin   Station
Station name    State    in miles   (percent)     (percent)    border    patrol    patrol     check      on check  interior    stowaway  sanctions    aliens             g     total
--------------  -------  --------  ----------  ------------  --------  --------  --------  --------  ------------  --------  ----------  ---------  --------  ------------  --------
Zone I: Southwest Border
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Douglas         AZ              7       93.8%          6.2%    74,080         0         0        67             0         7           0         18     4,759            15    78,946
Naco            AZ             11        83.6          16.4    22,883         0         0     2,437            77         7           0          0     1,671           282    27,357
Nogales         AZ              8        87.4          12.6    82,109         0         0     5,613         1,003       196           0         14     3,913         1,150    93,998
Sonoita         AZ             24        69.5          30.5     8,961         0         0     3,926             0         0           0          1         2             0    12,890
Yuma            AZ              4        90.5           9.5   191,670         0     1,953       287         3,257         0           0      5,179    11,493             0   213,839
Brown Field     CA              1        94.3           5.7   192,222         0         0         0             0         0           0          0     6,760         4,756   203,738
Calexico        CA              3        91.6           8.4    99,478         0         0         0             0         0           0         32     9,098             0   108,608
Campo           CA              8        95.9           4.1    76,202         0         0         0             9        11           0          0        14         3,223    79,459
Chula Vista     CA              5        96.0           4.0   222,277         0         0         0         1,697         4           0         53     7,351            84   231,466
El Cajon        CA             15        72.8          27.2    54,374         0         0        49         1,376    12,357           0         74     5,787           703    74,720
El Centro       CA              9        24.9          75.1    28,891         0         0    85,978           880         0           0          0        33            15   115,797
Imperial Beach  CA              1        90.5           9.5   287,092         0        40         0           322         0           0          0       211        29,747   317,412
Brackettville   TX             24        71.1          28.9    31,387         0         0    10,379         2,133         0           0        134       125            15    44,173
Brownsville     TX              4        82.0          18.0    75,589        65         0        32         9,100         0           0      3,050     4,310            84    92,230
Comstock        TX             13        93.7           6.3    18,417        24         0     1,000           193        34           0          8         0             0    19,676
Del Rio         TX              5        72.7          27.3    73,658       469        33    14,255         7,134         0           0        330        49         6,115   102,043
Eagle Pass      TX              8        88.6          11.4    80,075         0         0     9,406           492         0           0         34        44           369    90,420
El Paso         TX              5        90.7           9.3   496,584         0        80     2,934        32,999         0           0      5,212     9,464           130   547,403
Fabens          TX              5        98.2           1.8    33,216         0         0         0           110         0           0        316       176             0    33,818
Fort Hancock    TX             20        98.3           1.7    21,968         0         0         0            19         0           0        371         0             0    22,358
Harlingen       TX             12        59.7          40.3    46,961         4         0         0        23,639         0           0      2,863     4,368           795    78,630
Laredo North    TX             21        59.6          40.4   124,349         0         0    49,025        31,957         0           0      3,179         0             0   208,510
Laredo South    TX             22        84.2          15.8   120,382         0       124     1,081        16,136         0           0      5,345       121             0   143,189
McAllen         TX              4        81.3          18.7    67,201         0         0         0         9,927         0           0      2,429     3,074             0    82,631
Mercedes        TX              7        87.8          12.2    31,261         0         0         0             4         0           0      2,169     2,140            16    35,590
Port Isabel     TX             11        55.8          44.2     9,552       594         0         0         4,172         0         172      2,366       173         1,157    18,186
Presidio        TX             12        89.5          10.5    17,087         0         0       344           606         0           0      1,052         5             0    19,094
Rio Grande      TX             16        94.1           5.9    43,259         0         0       409            65        24           0         54     2,122            43    45,976
 City
Sanderson       TX             18        71.9          28.1     7,757        44         0     1,099         1,000         0           0        932         0            12    10,844
Sierra Blanca   TX             16        24.8          75.2    12,349         0         0    35,558         1,021        20           0          0        42           846    49,836
Ysleta          TX              6        91.4           8.6   153,419         0         0    12,146             3         0           0      2,142        31            41   167,782
Zapata          TX              9        93.2           6.8     6,006       149         0       394            36         0           0         17         0             0     6,602
====================================================================================================================================================================================
Total                                   83.3%         16.7%  2,810,71     1,349     2,230   236,419       149,367    12,660         172     37,374    77,336        49,598  3,377,22
                                                                    6                                                                                                              1
====================================================================================================================================================================================
Percent                                                         83.2%      0.0%      0.1%      7.0%          4.4%      0.4%        0.0%       1.1%      2.3%          1.5%      100%
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Source:  GAO analysis of INS data. 

   Figure III.2:  Canadian Border
   Enforcement Activity for Fiscal
   Year 1994

   (See figure in printed
   edition.)

N = 305,155 enforcement hours at 36 stations. 

Note:  Activities not shown did not exceed 1 percent and included
boat patrol, air patrol, and crewman/stowaway. 

Source:  GAO analysis of INS data. 



                                                                                     Table III.2
                                                                       
                                                                       Canadian Border Enforcement Activity for
                                                                             Fiscal Year 1994 by Station

                                      Prevent     Apprehend
                         Distance       entry   after entry    Patrol      Boat       Air   Traffic  Transportati    Patrol    Crewman/   Employer  Criminal  Antismugglin   Station
Station name    State    in miles   (percent)     (percent)    border    patrol    patrol     check      on check  interior    stowaway  sanctions    aliens             g     total
--------------  -------  --------  ----------  ------------  --------  --------  --------  --------  ------------  --------  ----------  ---------  --------  ------------  --------
Zone I:
 Canadian
 Border
Bonners Ferry   ID             14       46.2%         53.8%     1,635         0         0       509             0       739           0        449       197            10     3,539
Calais          ME              3        85.8          14.2    10,747       726         0         2           112       568           0      1,090        67            58    13,370
Fort Fairfield  ME              3        92.4           7.6     8,456         0         0        24             4         9           0        636        11            14     9,154
Houlton         ME              7        77.4          22.6     7,519         0         0         0           960        80           4        670        31           453     9,717
Jackman         ME              7        68.1          31.9     6,972         0         0       576            50     1,834           0        778        20             7    10,237
Van Buren       ME              4        83.5          16.5     6,327         0         0       687             6        41           0        505         9             0     7,575
Detroit         MI              1        30.5          69.5     2,941        81         3         9           754     3,169          20        107     1,291         1,559     9,934
Port Huron      MI              1        25.7          74.3     1,173       119         0        30           295       402           0        911       769         1,325     5,024
Sault Ste       MI              9        62.3          37.7     3,600       236         0         0           380       133           0        995       697           115     6,156
 Marie
Trenton         MI              5        49.8          50.2     2,931        36         6       240            83     1,143           0        332       823           371     5,965
Grand Marais    MN             22        11.3          88.7       176        37         0       211            11       755           0         12        20           665     1,887
International   MN              7        52.3          47.7     1,007         0         0         0           108       301           0        111        29           371     1,927
 Falls
Warroad         MN              7        49.7          50.3     1,429         0         0         0            28       241           0         36        23         1,117     2,874
Eureka          MT             15        58.0          42.0     2,004        91         0       173             8       491           0        434       277           137     3,615
Plentywood      MT             14        47.6          52.4     2,111         0         0       319             0       301           0        540       283           882     4,436
Scobey          MT             18        53.9          46.1     1,921         0         3     1,178             3        70           0        353         5            36     3,569
St. Mary        MT              6        50.6          49.4     1,315         0         0       752             2        40           0         22       124           345     2,600
Sweetgrass      MT              2        43.2          56.8     1,310         0         0        25           211        45           0         76       774           594     3,035
Bottineau       ND             11        36.7          63.3     1,610         0         0       812             4       243           0        104       161         1,453     4,387
Pembina         ND              2        56.5          43.5     3,365         0         0       729           635       562           0        173       178           319     5,961
Portal          ND              4        31.0          69.0     1,210         0         0       511             0       369           0        114       210         1,489     3,903
Buffalo         NY              5        49.6          50.4     9,780         8         0       526         8,059         0           0        952       413             0    19,738
Champlain       NY              3        85.8          14.2    20,271       104         0       427           289       214           2        906       431         1,111    23,755
Burke (Malone)  NY              5        92.5           7.5    14,850         0         0       601           242        52           0         49         7           250    16,051
Massena         NY              3        58.1          41.9     3,394       114         0       898           494         1          16        230       318           573     6,038
Niagara Falls   NY              2        67.0          33.0     8,782         0         0       789         2,048         0           0        470     1,020             0    13,109
Ogdensburg      NY              3        58.6          41.4     4,643       233         0     1,221           260        58           0        285       712           907     8,319
Watertown       NY             25        66.7          33.3     3,310       556         0     1,445           153         0           0        298         0            33     5,795
Beecher Falls   VT              1        93.9           6.1     6,494         0         0        60             0       144           0        148        73             0     6,919
Newport         VT              6        90.9           9.1    11,849       105         0         0           334        68           0        294       105           395    13,150
Richford        VT              4        81.7          18.3     5,376         0         0         0             0       192           0        257       586           169     6,580
Swanton         VT              3        97.1           2.9    15,900        77         0        32           199        68           0        167        11             0    16,454
Bellingham      WA              1         0.0         100.0         0         0         0       125         1,866     2,878          46        728     3,891           555    10,089
Blaine          WA              2        85.7          14.3    15,764        29         0         2             6       424           0         63     1,074         1,075    18,437
Lynden          WA              4        83.8          16.2     8,707         0         0        61             0       116           0        262       215         1,030    10,391
Oroville        WA              5        36.3          63.7     4,154         4         0         2           221       899           0        850     3,735         1,600    11,465
====================================================================================================================================================================================
Total                                   67.4%         32.6%   203,033     2,556        12    12,976        17,825    16,650          88     14,407    18,590        19,018   305,155
====================================================================================================================================================================================
Percent                                                         66.5%      0.8%      0.0%      4.3%          5.8%      5.5%        0.0%       4.7%      6.1%          6.2%      100%
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Source:  GAO analysis of INS data. 

   Figure III.3:  Coastal Border
   Enforcement Activity for Fiscal
   Year 1994

   (See figure in printed
   edition.)

N = 380,785 enforcement hours at 17 stations. 

Note:  Air patrol was less than 1 percent and is not shown. 
Percentages do not total 100 percent due to rounding. 

Source:  GAO analysis of INS data. 



                                                                                     Table III.3
                                                                       
                                                                       Coastal Border Enforcement Activity for
                                                                             Fiscal Year 1994 by Station

                                      Prevent     Apprehend
                         Distance       entry   after entry    Patrol      Boat       Air   Traffic  Transportati    Patrol    Crewman/   Employer  Criminal  Antismugglin   Station
Station name    State    in miles   (percent)     (percent)    border    patrol    patrol     check      on check  interior    stowaway  sanctions    aliens             g     total
--------------  -------  --------  ----------  ------------  --------  --------  --------  --------  ------------  --------  ----------  ---------  --------  ------------  --------
Zone I:
 Coastal
 Borders
Mobile          AL              3        0.0%        100.0%         0         0         0     1,005         1,181     3,581         455      1,147       976            86     8,431
Livermore       CA             15         0.0         100.0         0         0         0       131             2       839           0        553     1,412             0     2,937
Oxnard          CA              3         0.0         100.0         0         0         0         5             0     2,584          35      1,357     2,980             1     6,962
Salinas         CA              8         0.0         100.0         0         0         0        50             0     1,168           0        442     1,619             0     3,279
San Clemente    CA              3         0.0         100.0         0         0         0    79,689         6,639     2,336           0          0        41             0    88,705
San Luis        CA              5         0.0         100.0         0         0         0         0           149       829           0        346       796             0     2,120
 Obispo
Temecula        CA             23         0.0         100.0         1         0         0    61,311            14     6,210           0     10,283     3,131            22    80,972
Jacksonville    FL             15         6.4          93.6       281         0         0        25           454     2,876         257         84       391            26     4,394
Miami           FL              7        34.5          65.5    11,212       710        69     1,104           380    10,742       6,083        133     3,573           710    34,716
Tampa           FL              1         0.0         100.0         0         0         0         3         1,067     3,989         938        152     1,701           292     8,142
West Palm       FL              3         5.3          94.7       320         0         0         0             0     3,687         105        327     1,443           109     5,991
 Beach
New Orleans     LA              8         0.0         100.0         0         0         0       212         2,000     3,517       1,662      2,380     1,076           380    11,227
Gulfport        MS              3         0.0         100.0         0         0         0       258            38     1,809          79      2,119       885           721     5,909
Ramey           PR              1        93.0           7.0    22,709     6,809         3       130            38     1,045           0        662       279            78    31,753
Corpus Christi  TX              5        43.6          56.4     8,548       188         0       209         3,533         0           2        626     1,098         5,832    20,036
Kingsville      TX              4         0.0         100.0         0         0         0    54,243         2,949         0           0        137     2,277         1,043    60,649
Port Angeles    WA             10        54.0          46.0     2,462         0         0         0           108       658           2         91     1,241             0     4,562
====================================================================================================================================================================================
Total                                   14.0%         86.0%    45,533     7,707        72   198,375        18,552    45,870       9,618     20,839    24,919         9,300   380,785
====================================================================================================================================================================================
Percent                                                         12.0%      2.0%      0.0%     52.1%          4.9%     12.0%        2.5%       5.5%      6.5%          2.4%      100%
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Source:  GAO analysis of INS data. 

   Figure III.4:  Zone II
   Enforcement Activity for Fiscal
   Year 1994

   (See figure in printed
   edition.)

N = 1,077,118 enforcement hours at 41 stations. 

Note:  Activities not shown did not exceed 1 percent and include boat
patrol, crewman/stowaway, and antismuggling. 

Source:  GAO analysis of INS data. 



                                                                                     Table III.4
                                                                       
                                                                       Zone II Enforcement Activity for Fiscal
                                                                                 Year 1994 by Station

                                      Prevent     Apprehend
                         Distance       entry   after entry    Patrol      Boat       Air   Traffic  Transportati    Patrol    Crewman/   Employer  Criminal  Antismugglin   Station
Station name    State    in miles   (percent)     (percent)    border    patrol    patrol     check      on check  interior    stowaway  sanctions    aliens             g     total
--------------  -------  --------  ----------  ------------  --------  --------  --------  --------  ------------  --------  ----------  ---------  --------  ------------  --------
Zone II
Ajo             AZ             33       77.1%         22.9%    17,501         0         0     5,155             0        29           0          1         0             0    22,686
Casa Grande     AZ             73         0.1          99.9        11         0         0     5,932           128     3,715           0         32     1,386            33    11,237
Tucson          AZ             57        26.6          73.4    27,324         0         0    52,028           777    19,255           0        737     2,684            62   102,867
Wellton         AZ             35        18.6          81.4     6,320         0         0    26,297         1,113         0           0        192         5            96    34,023
Willcox         AZ             85         0.0         100.0         0         0         0     8,886            23     1,841           0          0        54             0    10,804
Bakersfield     CA             70         0.0         100.0         0         0         0     2,478            71     2,195           0      2,025    12,116             0    18,885
Blythe          CA             59         0.2          99.8        44         0         0    16,061           227       731           0      3,809     7,502             0    28,374
Indio           CA             77         0.3          99.7        56         0         0     6,057           389     9,477           0        403     3,359           319    20,060
Riverside       CA             41         0.5          99.5        77         0         0         0             9    11,086           0      1,510     4,069             0    16,751
Sacramento      CA             52         0.0         100.0         0         0         0         0            24     4,324           0        700     3,476             0     8,524
Stockton        CA             52         0.0         100.0         0         0         0     2,481            11     2,295           0      2,054     5,746            25    12,612
Orlando         FL             39         0.1          99.9         0         0        10         5           153     4,475         108        784     2,120           318     7,973
Baton Rouge     LA             41         0.0         100.0         0         0         0       371         1,101     2,211          14        321     1,419             8     5,445
Lake Charles    LA             36         0.0         100.0         0         0         0        13           134     3,538         365        273       693           375     5,391
Duluth          MN             97         0.2          99.8         3         7         0       189           506     1,408         516         38       610           957     4,234
Havre           MT             30        39.3          60.7     1,979         0         6       450           610     1,187           0        169       161           495     5,057
Malta           MT             47        33.9          66.1     1,090         0         0     1,291             1       812           0         21         0             0     3,215
Shelby          MT             34        42.6          57.4     1,261         0         4       554            56       408           0         82       211           393     2,969
Whitefish       MT             34         5.5          94.5       282         0         0       812           517     1,423           0      1,714       368            56     5,172
Grand Forks     ND             77        41.4          58.6     1,964         0         0         0           203       700           0        454     1,006           418     4,745
Alamagordo      NM             75         0.0         100.0         0         0         0    70,339           846     5,607           0        769     2,346             0    79,907
Deming          NM             28        77.1          22.9    46,779         0         0     1,553           169     9,826           0        614     1,575           135    60,651
Las Cruces      NM             53         0.5          99.5       363         0         0    59,237           557    16,807           0        894     1,373             2    79,233
Lordsburg       NM             52        36.6          63.4     6,748         0         0     4,811         4,128     1,443           0        826       203           270    18,429
Truth or        NM             98         0.0         100.0         0         0         0    17,356            12     4,175           0          1     1,530            16    23,090
 Consequences
Fulton          NY             30        56.0          44.0     3,021         0         0       868           936         0           5        256       306             0     5,392
Roseburg        OR             47         0.2          99.8         8         0         0         1            49       866           0      1,486     2,137           107     4,654
Alpine          TX             42        14.5          85.5     5,442         0         0    22,649           106     3,539           0      4,880        22           776    37,414
Carizzo         TX             29        60.6          39.4    22,987         0         0    14,693             3        12           0         94        66            66    37,921
 Springs
Cotulla         TX             59        57.0          43.0    19,466         0         0     5,807         7,044         0           0      1,510       160           149    34,136
Falfurrias      TX             33         0.0         100.0         0         0         0    75,425             0         0           0        120     2,670             0    78,215
Fort Stockton   TX             63         2.9          97.1       131         0         0       711         1,244       560           0      1,684       233            16     4,579
Freer           TX             59        55.3          44.7    37,353         0         0    29,498           384         0           0        206        65             0    67,506
Hebbronville    TX             38        38.8          61.2    38,585         0         0    58,322         1,634         0           0        497       335             0    99,373
Marfa           TX             40         5.3          94.7     1,708         0         0    15,798           280    11,570           0      1,161       119         1,809    32,445
Pecos           TX             93         3.1          96.9       271         0         0       220         2,407     2,580           0      2,420       720           165     8,783
Rocksprings     TX             59         0.0         100.0         0         0         0     2,935             0     3,497           0        536        23           298     7,289
Uvalde          TX             51        51.8          48.2    20,815         0         0     8,331         8,071         0           0        887       935         1,133    40,172
Van Horn        TX             30        14.3          85.7     1,944         0         0     5,821           399     2,394           0      3,017         1             3    13,579
Colville        WA             31        62.7          37.3     3,135         0         0       542             0       808           0        517         0             0     5,002
Spokane         WA             86         0.6          99.4        47         0         0        12           389     3,125           0      1,827     2,747           177     8,324
====================================================================================================================================================================================
Total                                   24.8%         75.2%   266,715         7        20   523,989        34,711   137,919       1,008     39,521    64,551         8,677  1,077,11
                                                                                                                                                                                   8
====================================================================================================================================================================================
Percent                                                         24.8%      0.0%      0.0%     48.6%          3.2%     12.8%        0.1%       3.7%      6.0%          0.8%      100%
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Source:  GAO analysis of INS data. 

   Figure III.5:  Zone III
   Enforcement Activity for Fiscal
   Year 1994

   (See figure in printed
   edition.)

N = 164,393 enforcement hours at 19 stations. 

Note:  Activities not shown did not exceed 1 percent and include
patrol the border, boat patrol, air patrol, and crewman/stowaway. 

Source:  GAO analysis of INS data. 



                                                                                     Table III.5
                                                                       
                                                                       Zone III Enforcement Activity for Fiscal
                                                                                 Year 1994 by Station

                                      Prevent     Apprehend
                         Distance       entry   after entry    Patrol      Boat       Air   Traffic  Transportati    Patrol    Crewman/   Employer  Criminal  Antismugglin   Station
Station name    State    in miles   (percent)     (percent)    border    patrol    patrol     check      on check  interior    stowaway  sanctions    aliens             g     total
--------------  -------  --------  ----------  ------------  --------  --------  --------  --------  ------------  --------  ----------  ---------  --------  ------------  --------
Zone
 III
Little Rock     AR            325        0.0%        100.0%         0         0         0       663           879     3,096           0      1,238     1,458           693     8,027
Phoenix         AZ            120         1.3          98.7        64         0         0       219           218       341           0        988     2,891            63     4,784
Fresno          CA            103         0.0         100.0         0         0         0       131             0     1,242           0      2,638     5,220             0     9,231
Twin Falls      ID            466         0.1          99.9         8         0         0       878             6       698           0        566     3,453           314     5,923
Grand Rapids    MI            160         0.0         100.0         0         1         0         0           145     1,108           0        787     1,526         1,025     4,592
Billings        MT            232         0.0         100.0         0         0         0        85             0       361           0         49       914            59     1,468
Albuquerque     NM            234         0.4          99.6        31         0         0        58           624     4,008           0      1,356     1,909            33     8,019
Carlsbad        NM            110         0.0         100.0         0         0         0       347           383    10,234           0        750     1,086             0    12,800
Boulder City    NV            221         0.0         100.0         0         0         0       813         1,163       175           0        289       641             0     3,081
Miami           OK            478         0.0         100.0         0         0         0       848             0     1,088           0          0         0             0     1,936
Amarillo        TX            352         0.0         100.0         0         0         0     2,330           281     1,458           0        512       118             4     4,703
Dallas          TX            250         0.0         100.0         0         0         0         0             0     7,330           0        220     4,102            25    11,677
Llano           TX            159         0.0         100.0         0         0         0        76             0       300           0        305       121            19       821
Lubbock         TX            258         0.0         100.0         0         0         0     4,479           602     3,528           0      1,033       257           146    10,045
Midland         TX            141         0.5          99.5         0        29         0       114           938     1,623           0      2,143       912           180     5,939
San Angelo      TX            122         0.0         100.0         0         0         0    11,538         4,577    27,030           0      6,603     3,142           252    53,142
San Antonio     TX            126         0.0         100.0         0         0         0     2,341         4,535     6,231           0        426         1           153    13,687
Pasco           WA            178         0.0         100.0         0         0         0        11             0       706           0        668       179             3     1,567
Wenatchee       WA            110         3.0          97.0        88         0         0         0             0       738           0        680     1,432            13     2,951
====================================================================================================================================================================================
Total                                    0.1%         99.9%       191        30         0    24,931        14,351    71,295           0     21,251    29,362         2,982   164,393
====================================================================================================================================================================================
Percent                                                          0.1%      0.0%      0.0%     15.2%          8.7%     43.4%        0.0%      12.9%     17.9%          1.8%      100%
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Source:  GAO analysis of INS data. 


BORDER PATROL ANNUAL FACILITY
LEASING COSTS
========================================================== Appendix IV

                              Sta  Lease
Location                      te    cost  Comments
----------------------------  ---  -----  ----------------------------
Mobile                        AL   $15,8
                                      08

Little Rock                   AR   31,33
                                       0

Ajo                           AZ          Owned

Casa Grande                   AZ   16,68
                                       6

Douglas                       AZ          Owned

Naco                          AZ          Owned

Nogales                       AZ   99,12
                                       4

Phoenix                       AZ   25,32
                                       0

Sonoita                       AZ          Owned

Tucson                        AZ          Included in Sector HQ

Tucson Sector HQ              AZ   110,1
                                      08

Wellton                       AZ          Owned

Yuma                          AZ          Included in Sector HQ

Yuma Sector HQ                AZ   71,64
                                       8

Bakersfield                   CA   26,40
                                       0

Blythe                        CA          Owned

Boulevard Substation          CA   7,260

Brown Field                   CA   35,63
                                       9

Calexico                      CA   83,03
                                       2

Campo                         CA          Owned

Chula Vista                   CA          Owned

El Cajon                      CA          Owned

El Centro                     CA          Owned

El Centro Sector HQ           CA          Owned

Fresno                        CA   95,73
                                       8

Imperial Beach                CA          Owned

Indio                         CA          Owned

Livermore                     CA          Included in Sector HQ

Livermore Sector HQ           CA   23,54
                                       7

Oakgrove Substation           CA          INS-owned trailer

Oxnard                        CA          Owned

Riverside                     CA   94,33
                                       6

Sacramento                    CA   39,24
                                       8

Salinas                       CA   16,26
                                       3

San Clemente                  CA          Owned

San Diego Sector HQ           CA          Owned

San Luis Obispo               CA   20,40
                                       0

San Marcos Substation         CA   12,00
                                       0

Stockton                      CA   83,54
                                       4

Temecula                      CA   98,80
                                       2

Jacksonville                  FL   48,27
                                       2

Miami                         FL          Included in Sector HQ

Miami Sector HQ               FL   558,3
                                      14

Orlando                       FL   44,14
                                       9

Tampa                         FL   51,60
                                       4

West Palm Beach               FL   83,77
                                       1

Bonners Ferry                 ID   6,724

Twin Falls                    ID   40,84
                                       0

Baton Rouge                   LA   19,67
                                       6

Lake Charles                  LA   19,20
                                       0

New Orleans                   LA          Included in Sector HQ

New Orleans Sector HQ         LA   72,84
                                       8

Calais                        ME          GSA space assignment

Fort Fairfield                ME   67,12
                                       2

Houlton                       ME   76,08
                                       8

Houlton Sector HQ             ME   131,9
                                      92

Jackman                       ME          Owned

Rangeley Substation           ME   5,526

Van Buren                     ME          Owned

Detroit                       MI          Included in Sector HQ

Detroit Sector HQ             MI          Shared with District

Grand Rapids                  MI   6,000

Port Huron                    MI          Owned

Sault Ste Marie               MI          Located at Port of Entry

Trenton                       MI          Owned

Duluth                        MN   11,82
                                       8

Grand Marais                  MN          Owned

International Falls           MN          Owned

Warroad                       MN          Owned

Gulfport                      MS   24,80
                                       0

Billings                      MT   4,840

Eureka                        MT   15,12
                                       0

Havre                         MT          Included in Sector HQ

Havre Sector HQ               MT   89,80
                                       4

Malta                         MT   6,063

Plentywood                    MT   8,400

Scobey                        MT   4,892

Shelby                        MT          Owned

St. Mary                      MT          Owned

Sweetgrass                    MT          Owned

Whitefish                     MT          Owned

Bottineau                     ND          Owned

Grand Forks                   ND          Included in Sector HQ

Grand Forks Sector HQ         ND   111,8
                                      60

Pembina                       ND          Located at Port of Entry

Portal                        ND          Owned

Alamagordo                    NM   93,44
                                       0

Albuquerque                   NM   132,0
                                      00

Boulder City                  NM          Space provided by Bureau of
                                          Land Management

Carlsbad                      NM   12,18
                                       8

Deming                        NM   87,22
                                       0

Las Cruces                    NM   291,8
                                      11

Lordsburg                     NM          Owned

Silver City Substation        NM          Space provided by U.S.
                                          Forest Service

Truth or Consequences         NM          Owned

Buffalo                       NY          Included in Sector HQ

Buffalo Sector HQ             NY   157,2
                                      72

Burke (Malone)                NY   70,33
                                       5

Champlain                     NY   91,19
                                       6

Fulton                        NY   11,69
                                       6

Massena                       NY   11,38
                                       0

Niagra Falls                  NY          Owned

Ogdensburg                    NY   25,40
                                       8

Watertown                     NY   1,924

Welleslely Island Substation  NY          Owned

Miami                         OK   12,00
                                       0

Roseburg                      OR   15,00
                                       0

Mayaguez Sector HQ            PR          Owned

Ramey                         PR          Owned

Abilene Substation            TX   6,535

Alpine                        TX   20,66
                                       1

Amarillo                      TX   9,856

Big Bend Nat'l Park           TX          INS-owned trailer
Substation

Brackettville                 TX          Owned

Brownsville                   TX   58,97
                                       5

Carizzo Springs               TX          Owned

Comstock                      TX          Owned

Corpus Christi                TX   26,25
                                       0

Cotulla                       TX          Owned

Dallas                        TX   58,19
                                       4

Del Rio                       TX   85,64
                                       8

Del Rio Sector HQ             TX   107,2
                                      04

Eagle Pass                    TX          Owned

El Paso                       TX          Owned

El Paso Sector HQ             TX          Owned

Fabens                        TX   35,66
                                       8

Falfurrias                    TX       1

Fort Hancock                  TX          Owned

Fort Stockton                 TX          Owned

Freer                         TX   46,07
                                       5

Harlingen                     TX       1

Hebbronville                  TX          Owned

Kingsville                    TX       1

Laredo North                  TX          Included in Sector HQ

Laredo Sector HQ              TX   289,2
                                      68

Laredo South                  TX          Included in Sector HQ

Llano                         TX   6,552

Lubbock                       TX   36,75
                                       6

Marfa                         TX          Included in Sector HQ

Marfa Sector HQ               TX   229,2
                                      12

McAllen                       TX   188,8
                                      52

McAllen Sector HQ             TX   228,7
                                      04

Mercedes                      TX   128,1
                                      40

Midland                       TX   23,66
                                       7

Pecos                         TX   16,22
                                       4

Port Isabel                   TX          Owned

Presidio                      TX   87,18
                                       8

Rio Grande City               TX       1

Rocksprings                   TX   10,32
                                       9

San Angelo                    TX   25,60
                                       9

San Antonio                   TX   50,97
                                       2

Sanderson                     TX          Owned

Sierra Blanca                 TX          Owned

Uvalde                        TX          Owned

Van Horn                      TX   15,72
                                       5

Ysleta                        TX          Owned

Zapata                        TX   5,569

Beecher Falls                 VT          Located at Port of Entry

Newport                       VT   71,83
                                       1

Richford                      VT   31,14
                                       6

Swanton                       VT   37,16
                                       4

Swanton Sector HQ             VT   200,1
                                      88

Bellingham                    WA   164,2
                                      32

Blaine                        WA          Included in Sector HQ

Blaine Sector HQ              WA   134,7
                                      88

Colville                      WA          Owned

Lynden                        WA          Owned

Oroville                      WA          Owned

Pasco                         WA   10,46
                                       0

Port Angeles                  WA   22,88
                                       8

Spokane                       WA          Included in Sector HQ

Spokane Sector HQ             WA   67,04
                                       4

Wenatchee                     WA   8,788
----------------------------------------------------------------------
Source:  INS data. 


MAJOR CONTRIBUTORS TO THIS REPORT
=========================================================== Appendix V

GENERAL GOVERNMENT DIVISION,
WASHINGTON, D.C. 

James M.  Blume, Assistant Director, Administration of
 Justice Issues
Jay Jennings, Evaluator-in-Charge
Wendy C.  Graves, Evaluator
Pamela V.  Williams, Communications Analyst
Katherine M.  Wheeler, Publishing Consultant

RESOURCES, COMMUNITY, AND ECONOMIC
DEVELOPMENT DIVISION, WASHINGTON,
D.C. 

Mitchell B.  Karpman, Senior Operations Research Analyst

OFFICE OF THE GENERAL COUNSEL,
WASHINGTON, D.C. 

Ann H.  Finley, Senior Attorney

DALLAS FIELD OFFICE

Fredrick D.  Berry, Senior Evaluator
Michael H.  Harmond, Evaluator

DETROIT FIELD OFFICE

Robert R.  Readler, Senior Evaluator

LOS ANGELES FIELD OFFICE

Michael P.  Dino, Senior Evaluator
Leah G.  Riordan, Evaluator

NEW YORK FIELD OFFICE

George P.  Cullen, Senior Evaluator
Amy S.  Hutner, Senior Evaluator

*** End of document. ***