T5 B55 DOS Budget Requests FDR - Entire Contents - Briefs and Tables - 1998-2004

TABLE 58.
DEPORT ABLE ALIENS LOCATED BY STATUS AT ENTRY

AND REGION AND COUNTRY OF NATIONALITY
FISCAL YEAR 2002—Continued
' ln
Other Entry
Tem- non- without
Region and country All Crew- Immi- Stow- : trar|sit
Visitor Student porary immi- inspection
located man grant ; away without
of nationality worker grant : visa (EW1)
Asia i 9,331 3,303 120 459 122 1,007 1,284 i 11 6 3,019

Afghanistan 85 29 17 16 i - - 23
Bahrain 8 \ - 2 : - . i - - 2
Bangladesh 129 54 - 21 1 10 10 ; - i - 33
Bhutan 2 2 - - - - -
Burma 19 3 1 1 •> , i 12
Cambodia 123 i 7 I 3 61 49 ! - - 3
China, People's Republic 1,753 241 8 ; 13 7 57 58 1 5 - 1,364
Christmas Island 3 3 - - - - ! - -
Cyprus 4 1 1 - 1 - 1 - 1
Hong Kong ; 34 9 - - - 3 10 - - 12
India 909 324 7 i 32 36 51 84 1 - i 374
Indonesia 213 122 16 < 15 10 19 1 1 - : - 1 30
Iran 161 54 - 17 13 38 - - 39
Iraq 110 4 - 2 i 1 48 45 - - 10
Israel 350 263 - 7 1 11 15 - - 53
Japan 66 27 11 3 6 8 - | 11
Jordan 524 ! 275 2 46 6 35 63 1 2 94
Korea 533 223 1 10 ; 2 80 ; 73 1 3 140
Kuwait 36 19 - 5 4 ; - 8
Laos : 217 9 - 1 1 108 89 ! - 9
Lebanon 190 67 1 18 20 22 - : 62
Malaysia 125 86 - 6 1 4 5 23
Mongolia 32 22 - ; 8 1 - . 1
Nepal 12 6 - 4 : 2
Oman ., 8 4 - 4
Pakistan 1444 671 22 101 13 150 72 415
Philippines ; 720 235 36 5 34 39 300 - 71
Qatar 7 1 4 1 ' - . 1
Saudi Arabia 122 59 1 ; 46 - 5 4 i 1 : 6
Singapore 16 9 - i 3 1 1 : - • 2
Sri Lanka 207 113 5 6 - 21 5 i - : 57
Syria 122 i 53 - 9 ; 9 10 - ; 41
Taiwan 48 19 5 1 7 8 - - 8
Thailand 149 39 2 6 1 44 35 - i 22
Turkey 280 155 17 32 - 17 17 2 i 1 39
United Arab Emirates 12 3 - 1 9 - - - -
Vietnam 437 : n 1 i 2 1 158 228 - I 34
Yemen 121 i 75 - 8 - 11 10 | - | 17
Africa i 2,606 1,243 20 278 14 313 242 18 478

Algeria 68 37 1 1 1 4 3 3 : 18
Angola 18 i 6 - 1 - z 1 1 i 7
Benin 6 2 - ! 1 - - 2 - I 1
Botswana 4 3 1
Burkina Faso 6 4 1 1
Burundi 3 2 - - - - 1
Cameroon 2"i 10 - 3 6 4
Cape Verde 47 12 - - - 3 25 2 : 5
Central African Republic 4 3 - - 1
Chad 8 7 - - , I
Congo, Democratic Rep. .. 20 4 - 1 - 5 5 3 2
See footnotes at end of table.
11
Immigration Courts:
Proceedings Completed for Detained Cases
Under the Immigration and Nationality Act, INS has authority to detain an alien
pending a decision on whether or not the alien is removable. Immigration courts conduct
hearings for both detained and non-detained aliens, and EOIR maintains data on the
custody status of aliens in proceedings.
Detention locations include INS Service Processing Centers (SPCs), INS contract
detention facilities, state and local government jails, and Bureau of Prisons (BOP)
institutions. For the purpose of this Year Book, Institutional Hearing Program (IMP) cases
are considered detained cases (IMP is discussed further in Tab P). Figure 20 below
provides a comparison of detained completions to total proceedings completed. For the
period FY 1998 - FY 2002, detained completions ranged from 31 to 35 percent of total
completions.
Immigration Court Proceedings

Completed: Detained and Total
FY02
FY01
FYOO
FY99 *<si " -
FY98 ,1 , V"., * . -*-*- 1
0 50000 100000 150000 200000 250000

I-:!!! Proceedings for Detained Aliens Hi Total Proceedings Completed I
Figure 20
Immigration Court (Proceedings) Completions

Proceedings Completed for Detained Aliens (Including IHP)
Proceedings Total Proceedings Percent
for Detained Aliens Completed Detained
FY02 77,648 229,385 34%
FY01 75,225 218,645 34%
FYOO 70,664 215,612 33%
FY99 67,194 217,077 31%
FY98 80,922 233,378 35%
Executive Office for Immigration Review Office of Planning and Analysis

FY 2002 Statistical Year Book April 2003
01
TABLE 58. DEPORTABLE ALIENS LOCATED BY STATUS AT ENTRY
AND REGION AND COUNTRY OF NATIONALITY
FISCAL YEAR 2001—Continued
Temporary worker In | Entry

All Crew- Immi- Stow- transit without
Region and country Visitor Student
located man grant away without inspection
of nationality Agricul-
Other visa (EWI)
ture
Asia 6,813 1,846 101 184 82 819 1,419 6 8 2,348

Afghanistan 45 6 1 7 8 23
Bahrain 2 2
Bangladesh 109 47 3 6 5 17 31
Bhutan 1 1
1 1
Burma 17 6 6 1 3 1
Cambodia 159 5 2 74 70 1 7
China, People's Republic 1,297 189 7 26 4 104 69 1 3 894
Cyprus 6 3 2 1
Hong Kong 35 15 1 _ 2 11 6
India 711 181 11 13 6 24 77 399
Indonesia 362 232 22 20 18 8 62
Iran 169 40 10 1 22 39 57
Iraq 74 5 2 4 30 26 7
Israel 250 186 6 7 11 40
Japan 81 45 4 1 4 9 18
Jordan 225 74 15 13 49 2 1 71
Korea 451 138 9 30 80 1 1 192
Kuwait 17 1 2 1 3 1 6
Laos 246 2 119 121 4
Lebanon 133 48 1 4 10 20 50
Macau 1 1
Malaysia 72 44 1 7 4 1 15
Maldives 1 1
Mongolia 8 7 1
Nepal 9 6 1 2
6 1 1 3 1
Pakistan 440 196 13 14 3 27 33 154
Philippines 611 115 16 3 39 43 331 1 1 62
Qatar 7 1 6
Saudi Arabia 36 19 1 11 2 1 2
Singapore 9 4 3 1 1
Sri Lanka 204 89 2 4 7 7 6 89
Syria 87 22 3 8 5 14 35
Taiwan 54 14 1 4 4 8 23
Thailand 122 23 2 25 64 8
Turkey 124 43 17 8 5 12 1 38
United Arab Emirates 3 2 1
Vietnam 594 15 1 4 219 318 37
Yemen 33 16 2 5 5 5
2,090 860 17 190 17 209 290 8 1 498

Algeria ! 21 9 1 1 4 6
Angola 44 26 1 - 2 15
Benin 5 i 2 1 1 1
Botswana 1 1
Burkina Faso 7 2 1 4
Burundi 3 1 2
Cameroon 39 21 5 1 1 2 9
i
Cape Verde 84 20 2 5 52 2 3
See footnotes at end of table.
11
Item 8: The documents setting forth the Department's budget requests overall and for the
Consular Affairs, Diplomatic Security, and Intelligence and Research and amounts
appropriated by Congress for fiscal years 1998-2004.
The documents provided include the following:
• United States Department of State Budget in Brief Fiscal Year 1998 \ United States Department of State B
• United States Department of State Budget in Brief Fiscal Year 2000

• Budget Chart - Department of State Request FY 1998 - FY 2004
• Budget Chart - Department of State Actual FY 1998 - FY 2002
Please note that the budget chart details in a summary form (1) Department of State budget
requests for the appropriations and fee accounts that fund Consular Affairs, Diplomatic Security
and Intelligence and Research as well as budget requests specifically for those bureaus and (2)
Department of State actual appropriations and allocations.
Items No. 8
and 9
Item 8: Documents setting forth the State Department's budget requests overall
and for Consular Affairs, Diplomatic Security, and Intelligence and Research (INR),
and the amounts appropriated by Congress and signed into law by the President for
those entities for fiscal years 1998 - 2004.
The following documents represent budget materials presented to Congress for the fiscal
years 1998 through 2004. Each document sets forth the budget request for the Bureau of
Intelligence and Research.
Congressional Presentation Document, budget fiscal year 1998

Congressional Presentation Document, budget fiscal year 1999
Congressional Presentation Document, budget fiscal year 2000 <~,4 £
Congressional Presentation Document, budget fiscal year 2001 f ^ if $
Congressional Presentation Document, budget fiscal year 2002 £ 'J £
Congressional Presentation Document, budget fiscal year 2003 / •-/ y
Congressional Presentation Document, budget fiscal year 2004 ,-, ;„ y
Item request no. 8; Documents setting forth the State
Department's budget requests overall and for Consular Affairs,
Diplomatic Security, and Intelligence and Research (INR), and
the amounts appropriated by Congress and signed into law by the
President for those entities for fiscal years 1998-2004
Item request no. 9; Documents describing the State Department's
Border Security Program for the period fiscal years 1995-2004,
including resources devoted to the program, clearance processes,
and automated consular system support
• Border Security Program - Budget in Brief FY 9 7 - 0 4

Item 8: The documents setting forth the Department's budget requests overall and for the
Consular Affairs, Diplomatic Security, and Intelligence and Research and amounts
appropriated by Congress for fiscal years 1998-2004.
The documents provided include the following:

• Budget Chart - Department of State Request FY 1998 - FY 2004
• Budget Chart - Department of State Actual FY 1998 - F Y 2002
Please note that the budget chart details in a summary form (1) Department of State budget
requests for the appropriations^nd.fce accounts that fund Consular Affairs, Diplomatic_S£Curity
and MelligencejmolR&sjejrj^lajs^^ those bureaus and (2)
D^panffienTof State-actual appropriations and allocations. ~~~
V
Department of State Request ($000) FY1998 FY1999 FY 2000 FY 2001 FY 2002 FY 2003 I FY 2004
Diplomatic and Consular Programs 2,175,090 2,177,400 2,583,772 2,691,325 3,217,405 3,466,023 ^516,843
Consular Affairs 72,156 42,764 33,283 41,420 42,787 47,383 2,438

Diplomatic Security 235,238 226,859 215,784 222,952 225,989 230,008 239,152
Intelligence and Research 26.622 32,333 35,518 36,862 40,331 43,114 44,512
Worldwide Security Upgrades 0 0 254,000 410,000 487,735 553,000 646,701

Diplomatic Security 0 0 0 0 0 0 596,019
Border Security Program 198,609 296,003 316,715 373,453 414,174 642,731 736,013

Diplomatic Security 10,700 11,150 15,592 18.070 19,068 23,038 24,242
Intelligence and Research 0 0 1,050 1,050 1,400 3.360 3.460
Diversity Lottery Fees

Consular Affairs 0 6,500 6,500 4,755 4,400 4,400 4,400
FBI Fingerprint Fees

Consular Affairs 0 0 72 120 350 1,300 850
Affadavit of Support Fees

Consular Affairs 0 0 0 0 9,000 0 8,000
i
Total Requests K
Diplomatic Security 245,938 238,009 231,376 241,022 245,057 253,046 263,394
Worldwide Security Upgrades 0 0 254,000 410,000 487,735 553,000 646,701
Intelligence and Research 26,622 32,333 36,568 37,912 41,731 46,474 47,972
Total 444,301 509,459 759,962 987,516 1,114,870 1,279,166 1,456,426
Department of State Actual ($000) FY1998 FY1999 FY 2000 FY 2001 FY 2002 FY 2003 FY 2004
Diplomatic and Consular Programs 2,000,706 1,998,487 2,569,825 2,758,076 3,245,427
Consular Affairs 73,642 35,520 38,331 43,727 45,936

Diplomatic Security 220,776 191,114 210,805 215,118 231,154
Intelligence and Research 25,833 27,194 35,339 37,150 40,489
Worldwide Security Upgrades 0 785,700 254,000 409,098 535,635

Diplomatic Security 481,021
Border Security Program 253,279 296,003 322,064 390,938 440,212
Consular Affairs 156,185 195,972 201,373 262,461 285,244

Diplomatic Security 11,581 14,660 17,366 18,341 21,185
Intelligence and Research 0 1,101 849 1,450 4,125
Diversity Lottery Fees

Consular Affairs 3,716 3.855 4,322 3,199 4,200
FBI Fingerprint Fees

Consular Affairs 2,746 120 1,180 217 350
Total Actuals
Consular Affairs 236.289 235.467 245.206 309.604 335,730
Diplomatic Security i 232,357 205,774 228,171 233,459 252,339
Worldwide Security Upgrades * 0 785,700 254.000 409,098 535,635
Intelligence and Research 25.833 28,295 36,188 38,600 44,614
Total 494,479 1,255,236 763,565 990.761 1,168,318
Item request no. 8; Documents setting forth the State
Department's budget requests overall and for Consular Affairs, /
Diplomatic Security, and Intelligence and Research (INR), and
the amounts appropriated by Congress and signed into law by the
President for those entities for fiscal years 1998-2004
Item request no. 9; Documents describing the State Department's
Border Security Program for the period fiscal years 1995-2004,
including resources devoted to the program, clearance processes,
and automated consular system support
• Border Security Program - Budget in Brief FY 97 - 04

THE BUDGET-IN-BRIEF - FISCAL YEAR 1997
STATE PROGRAMS
General Services Administration is funding the massive renovation of the existing

electrical and mechanical systems as well as alterations that wtff result in increased space
utilization and reduced energy and maintenance costs. The/renovation will also correct
serious life and fire safety deficiencies and remove asbestos. Department of State funding
will provide for systems furniture, public space furniture, computer and security wiring and
equipment, and computer and file room construction which GSA does not fund. The
Columbia Plaza renovation is an integral part of the Department's plan to renovate Main
State allowing the Department to consolidate: ts annexes and locate virtually all
Washington, D.C. area desk employees within easy walking distance to Main State.
Additionally, it will ensure a safe and/productive working environment, reduce time lost on
shuttle busses, avoid duplication o/'services, and provide support services including the
Department's child care center./
D Overseas Equipment Replacement: $8,900,000. The condition of furniture, furnishings,
and equipment and our rtfotor vehicle fleets at our overseas posts has deteriorated due to
reduced funding levelând requirements to apply existing resources to address emergent
foreign policy needs such as post openings, crises, overseas inflation, and exchange rate
fluctuations rather than replacing aging equipment. The Department and our overseas posts
have been unable to replace office and residential furniture, furnishings and equipment and
motor verifies within their useful life or as more efficient and cost effective technology
become/available. For example, the motor vehicle replacement program continues to
operate at about a nine year worldwide replacement cycle. Aging equipment hinders
operational efficiency and quality of life for Department employees and restricts our
Overseas posts' ability to use infrastructure modernization to streamline. The requested
funding will help to address the deterioration of our overseas infrastructure and take
advantage of new technology to reduce costs and streamline.
Border Security Program. The Department of State plays a vital role in securing the borders of
the United States against travel here by terrorists, international organized crime members, or
persons who may wish to remain here in violation of their immigration status. The Department
implements a comprehensive and coordinated strategy to improve consular systems and enhance
the Department's contribution to the U.S. border security system. Funding for this program
currently is generated by a $20 per person application fee from persons seeking non-immigrant
visas at posts issuing Machine Readable Visas (MRVs). The Department has used MRV fee
revenue to finance major improvements in U.S. border security including enhancements to the
technology backbone...Here are some of the accomplishments of that program:
D By the end of FY 1995, the Department provided every visa issuing post with an
automated namecheck system. Major improvements continue to be made to that system so
that it can more effectively screen out terrorists, drug traffickers, or others whose presence
here could be a threat to U.S. national interests.
D Over 210 posts now issue Machine Readable Visas. This compares to only 41 MRV
issuing posts when the fee retention legislation was enacted. By the end of FY 1996, every
visa issuing post will utilize the more secure MRV process.
32
STATE PROGRAMS
Q The Department is about to test the production of a new passport which addresses the
major remaining vulnerability in the U.S. passport which is "photosubstitution" of the
picture of an unauthorized user for that of the real bearer of the passport.
D Major investments in automated and telecommunications infrastructure have been made in
order to establish communications connectivity with posts that is vital to the strengthening
of U.S. border security.
In FY 1996 and FY 1997, the Border Security Program will build on these accomplishments
while pursuing the following goals to:
D Provide personnel responsible for issuing nonimmigrant visas with the technology
necessary to perform their responsibilities in the most cost effective and secure means
possible, including modernizing the Machine Readable Visa adjudication and production
system.
D Invest in new technology to improve the automated namecheck process, and to provide
officers responsible for visa adjudication with comprehensive information about persons
who may represent a threat to U.S. security, including sharing more data more effectively
with other U.S. Government agencies.
D Enhance the integrity of the U.S. passport by introducing photodigitization and other new
technology and operating processes.
D Ensure that vital staff and support functions for the Border Security Program, in the U.S.
and abroad, are maintained so-that consular operations abroad can meet peak season
demands, thus preventing the creation of border security vulnerabilities; that visa and
passports are adjudicated properly and fraud investigations can be carried out as required;
and that the technological infrastructure (e.g., telecommunications, data processing) needed
to support these programs can be maintained and enhanced to meet increased requirements.
The following chart summarizes the major activities of the Border Security Program. In FY 1996
and F Y 1997, these activities will be financed in their entirety by MRV fee revenue.
33
STATE PROGRAMS
Border Security Program Summary

(dollars in thousands,)
•* 5 m* 1995 19% . iwn

aeawu : ' ' Actual Aeftr*! i Estimate &&3tM$l
Border Security Initiatives
Consular Affairs Project Initiatives
Machine Readable Visa and Distributed $10,471 S20,799 $11,850 $11,850
Namecheck Systems
Overseas Consular Systems 3,276 6,817 15,919 15,919
Modernization
Automated Namecheck Systems 1,000 3,920 5,275 5,275
Enhancements
MRV Support Costs 516 3,133 11,500 11,500
Embedded Biometric Identification — 500 500
—
Electronic Visa File Retention and ~ ~ 1,250 1,250
Retrieval
Passport Security Enhancements 4,106 10,200 10,200
—
International Terrorist Namecheck —_ 565 600 600
System and Data Exchange
Information Management
Computer Systems Upgrades and 8,080 7,980 7,480
Enhancements, Maintenance, and
Remote Management
Diplomatic Telecommunications
Service
Telecommunications Connectivity and ~ 2,844 9,034 9,034
Network Management
Subtotal, Project Initiatives 15,263 50,264 74,108 73,608
Border Security Staff and *•••=-*•"" -
Support Costs
Border Securitv Visa & Passport
Anti-Fraud Programs
Consular Affairs — 4,974 13,286
—
Diplomatic Security 9,491
— — —
Overseas Anti-Fraud Coordinators — — 15,504 16,126
Border Securitv Systems Support
Consular Affairs — 4,522 5,153
—
Information Management — 5,944
— —
Subtotal, Staff and Support Costs 25,000 50,000
— —
Total, Border Security Program $15,263 $50,264 $99,108 $123,608
Note: FY 1994 and FY 1995 totals include $9,976,000 in appropriated Diplomatic and Consular Program funds for the Bureau of
Consular Affairs.
34
STATE PROGRAMS
During FY 1997, the Department will continue its aggressive efforts to enhance U.S. border
security by investing in the following initiatives:
O Machine Readable Visas (MRV) and Distributed Name Check (DNC) Installations
and Operations. Even though every post will have an MRV installation by the end of
FY 1996, major investments to maintain and modernize this visa production system will
continue in FY 1997 and beyond. A major initiative will be to begin widespread
installation of a modernized MRV system as part of the Department of State's required
migration away from proprietary technology to open systems technology. The modernized
MRV system will offer real advantages in terms of ease of use and functionality. In
addition, the Department will be faced with the ongoing need to train overseas personnel in
the operations and maintenance of the MRV system including periodic update training to
acquaint personnel with evolving system functionalities. The Distributed Name Check
(DNC) system is a major element of the Department of State's border security program.
DNC is used to provide namechecks against a CD-ROM based data base at many smaller
posts. DNC is also used as a backup means of providing namechecks at large posts
whenever they lose communications connectivity with the Washington-based data bases
which support the namecheck process. These funds also will finance the purchase of
expendable supplies (Teslin foils and laminates) used in the MRV process and other related
expenses.
D Overseas Consular Systems Modernization. Beginning in FY 1996, the Department
financed all investments in consular automated systems support from MRV fees. During
FY 1997, the Department will continue to invest in a variety of new automated systems
intended to facilitate the provision of consular services to Americans traveling abroad and
their family members here in the United States. In addition, the Department is committed
to re-engineering both the Non-Immigrant and Immigrant Visa systems. This is a complex
initiative which offers — over time — the promise of visa issuance systems which are
simultaneously more productive and more secure. In addition, the Department will
continue to finance the systems-related expenses of operating the MRV system including,
for example, the on-going need to offer "help desk" support for the more than 140 hours
(out of 168 total hours) each week that posts around-the-world are providing visa services
to persons wishing to travel to the United States.
D Automated Namecheck Systems Enhancements. The Consular Lookout and Support
System (CLASS) is a key element in preventing visa issuance to persons whose presence
in the United States could be contrary to our national interests. CLASS currently contains a
data base of more than 4 million records on people who have either been denied a visa or
who may be excludable from the United States for other reasons, such as involvement in
terrorism or international drug trafficking. Managing such a complex data base, and one
that is growing as federal agencies improve their data sharing arrangements, is a complex
undertaking. Furthermore, many of the names in the database must be transliterated from
other languages and complex algorithms must be applied in order to identify possible
matches. During FY 1997, the Department will continue its efforts to improve namechecks
against the CLASS database, including the development of new namecheck algorithms and
35
STATE PROGRAMS
the continued migration of the CLASS database onto a more modern and functional
operating environment.
D MRV Support. In choosing to introduce the MRV system, the Department of State
decided that the inherent security advantages of the MRV system outweighed the clear
increase in workload that resulted from this visa issuance system and the associated
requirements for automated namechecks. Additional staff and contract costs resulting from
the MRV programs are funded with the proceeds of MRV fee collections.
D Biometric Identification/Electronic Visa File Retention. The Department of State will
pursue several other significant border security initiatives in FY 1997 including efforts to
digitize the vast domestic and overseas paper file holdings of the Department concerning
visa denials. This initiative should offer real benefits to consular personnel worldwide as
they adjudicate visa applications. In addition, the Department will continue to examine the
potential benefits to U.S. border security from introducing biometrics, or personal
identification features, that will help ensure that the user of a travel document issued by the
U.S. is, in fact, the authorized bearer.
D Passport Security Enhancements. The Department's major investments in enhancing
U.S. border security extend as well to improvements in both the physical design and
security of the U.S. passport as well as the development of various automated systems to
help ensure the continued integrity and international acceptability of that document. During
FY 1997, for example, the Department will complete its migration to producing a
photodigitized passport. This will help eliminate a major remaining vulnerability in the
U.S. passport by eliminating the ability to substitute photographs.
Q International Terrorist Namecheck System. In cooperation with the U.S. intelligence
community, the Department of State manages a number of initiatives, including the
TIPOFF system, which serve to strengthen U.S. border security against travel here by
persons involved in international terrorism. The TIPOFF system serves as an interface
between the highly classified holdings of the U.S. intelligence community regarding
international terrorists and the operational need to have that information in a form that-can
be used to adjudicate visa applications.
D Technology Backbone. The Department of State will continue in FY 1997 to finance the
technology backbone costs required to support the Border Security Program from revenue
generated from MRV fee collections. Among the initiatives which will be pursued are:
° Information Management The Department acquired in FY 1995 a sophisticated new
computer processor to manage the CLASS (automated namecheck system) database. As
that database grew in both volume and complexity in FY 1996, the computer was
upgraded. In FY 1997, the Department will continue to finance the costs of hardware
and software enhancements required to support the Border Security Program.
o Telecommunications. The second critical technology backbone issue regarding border
security is communications connectivity between the central CLASS database and all
visa-issuing posts. There are real advantages to posts abroad in performing namechecks
against the centralized database held in Washington. These namechecks are only made
36
STATE PROGRAMS
possible through adequate communications connectivity. The most important is that this
data base is continually updated and, therefore, includes the latest possible information
on persons potentially excludable from the United States. The Distributed Name Check
(DNC) system, on the other hand, is based on CD-ROM which will be at least several
weeks out of date when received by an overseas post. The Border Security Program also
has significant long-term implications regarding telecommunications. The additional
costs of providing telecommunications bandwidth adequate to exchange data files with
the Immigration and Naturalization Service in support of the overall effort to strengthen
U.S. border security will be financed with MRV fees.
D Border Security Staff and Support Costs. In FY 1996 and continuing in FY 1997, the
Department will begin to fund staff and operations that directly support the Border Security
Program with the proceeds of MRV fees. This is consistent with the terms of the enacted
and pending legislation which allows the Department of State to retain MRV fees and will
help ensure these vital functions are maintained. During FY 1997, the Border Security
Program will provide for:
° Efforts to prevent passport and visa fraud, both domestically and overseas. Beginning
in FY 1996, the Border Security Program will fund, by applying MRV fees, American
salaries and benefits and bureau operating costs required to coordinate visa and passport
anti-fraud efforts both domestically and overseas, develop advisory opinions regarding
certain visa applications, support the passport file miniaturization process, and provide
for photodigitized passport books. This funding will be expanded in F Y 1997 to include
all passport books as all passport book issuances migrate to photodigitized passports.
0 Investigations by Diplomatic Security personnel of possible violations of U.S. law
involving passport and visa fraud. Beginning in FY 1997, American salaries and
benefits and operating costs required to support this vital function will be funded as part
of the Border Security Program by applying MRV fees.
° Computer systems applications for both passport and consular' applications. Beginning
in FY 1996, American salaries and benefits required to enhance and maintain Border
Security applications will be funded by MRV fees. Bureau operating costs for these
systems were shifted to MRV fee funding as part of the Department's FY 1996 budget
request.
0 Managing the CLASS-related aspects of the Department's information management
system. Beginning in FY 1997, American salaries and benefits and bureau operating
costs required to manage the CLASS-related aspects of the Department's information
management system will be funded by MRV fees.
37
s o&o <*<{
i'*j*
[ | STATE PROGRAMS
Border Security Program
i The Department of State plays a vital role in securing the borders of the United States
against travel here by terrorists, international organized crime members, or persons whose
presence here may otherwise violate U.S. immigration laws. The Department implements
1 a comprehensive and coordinated strategy to improve consular systems and enhance the
Department's contribution to the U.S. border security system. Funding for this program
1 currently is generated by a $20 per person application fee from persons seeking
non-immigrant visas at posts issuing Machine Readable Visas (MRVs). The Department
has used MRV fee revenue to strengthen U.S. border security including enhancements to
I its technology infrastructure. The objectives of the program are:

° Information. Enhance data sharing initiatives with other agencies and increase the
I effectiveness and efficiency of name check systems by obtaining information on aliens

who have had contacts with U.S. law enforcement during previous visits to the U.S.
° Infrastructure. Strengthen consular services by introducing automated applications and
providing business quality equipment.
° Connectivity. Provide worldwide connectivity in support of passport and visa issuance,
secure sufficient bandwidth to support activities such as data sharing or remote system
management, and ensure communications redundancy.
• ° Human Resources. Meet MRV workload, address seasonal workload peaks and the
increasing demand for consular and passport services, and expand the training of
consular and supporting personnel.
i The program has already demonstrated significant accomplishments including:
° Every visa issuing post can perform automated name checks;
I o Every visa issuing post has the Machine Readable Visa system,installed;
1 o The namecheck system for visa applicants has been strengthened by introducing both a
date-of-birth algorithm and a custom-designed system for checking names which are of
Arabic origin;
1 ° Beginning an initiative to produce a more secure Machine Readable Visa system

(MRV-2) with improved functionality;
1 ° Passport systems have been upgraded through a wide-area network installation, multiple
issuance verification system implementation, and field systems modernization;
i ° Major investments in mainframe computers and telecommunications infrastructure have

been made to provide automation support and ensure communications connectivity with
overseas posts that issue visas; and,
1 ° Diplomatic Security investigations of visa and passport fraud have been supported.
1 33
1
STATE PROGRAMS
The following chart summarizes the major activities of the Border Security Program. In
FY 1998, these activities continue to be financed in their entirety by MRV fee revenue including
new fee collections of $140,000,000 in FY 1998 and MRV fee revenue balances of $58,609,000
carried forward from prior years. Using current fee revenue projections, FY 1998 program levels
will consume totally existing MRV fee carry forward balances.

(dollars in thousands)
Border Security Initiatives FY 1996 FY 1997 FY1998

Actual Estimate Request
Consular Project Initiatives
Consular Systems Installation and Operations $12,886 '- ' $24,000 $32,000
Overseas Consular Systems 13,206 i- 20,500 20,500
Modernization/Support
Automated Namecheck Systems Enhancements (CLASS) 6,959 7,650 7,650
MRV Support Costs 7,088 9,500 10,000
Document Integrity and Anti-Fraud Initiative/Electronic Visa 596 v- 1,050 1,050
Retrieva
Passport Security and Modernization 5,037 9,100 8,000
TIPOFF- Terrorism and Crime 600 ^: 1,050 1,050
Diplomatic Security
Passport and Visa Fraud Investigative Support 911 1,613 850
Technology Backbone
Information Management: Computer Systems Upgrades and 6,591 15,108 13,900
Enhancements, Maintenance, and Remote Management
Diplomatic Telecommunications Service: Telecommuni- 5,619 8,780 10,600
cations Connectivity and Network Management
Subtotal, Project Initiatives 59,493 98351 105,600
Border Security Staff and Support
Border Security Staff .;.*£.*• .-^-. ...
Consular Affairs 7,012 7,393 7,694

Information Management — ' 2,265 2,353
Diplomatic Security 8,691 9,028
—
Overseas Staff 16,052 17,046 57,693
Border Security Support
Information Management — 3,679 3,778
Diplomatic Security — 800 822
Subtotal, Staff and Support Costs 25,000 50,719 93,009
Total, Border Security Program $84,493 $149,070 $198,£09
34
STATE PROGRAMS
During FY 1998, the Department will continue its aggressive efforts to enhance U.S. border
security by investing in the following initiatives:
o Consular Systems Installation and Operations. Most of the Department's overseas
consular systems were originally developed to operate on proprietary hardware that has
reached the end of its useful life. The Department has developed and completed the
pilot testing of a new version of the Machine Readable Visa (MRV) application called
MRV-2, which operates in an open systems local area network environment. From F Y
1997 to FY 1999, the application and necessary hardware will be installed at all visa
issuing posts. In FY 1998, this system will be installed at 100 posts. The new systems
environment is integral to solving Year 2000 problems. Both consular and support
personnel will be trained in this new application. The Department will implement a life
cycle equipment replacement program to prevent widespread technological
obsolescence for Border Security systems equipment.
o Overseas Consular Systems Modernization/Support. In FY 1998, the Department will
install new consular applications to support American Citizen Services and the
Immigrant Visa function. These applications are currently undergoing pilot testing and
will replace applications that were originally developed in the mid-1980s. The
Department will also establish a Consular Affairs Corporate Database. This database
will receive electronically information from overseas visa issuing posts and then make
that data available to other border security and law enforcement agencies, particularly
the Immigration and Naturalization Service and the Customs Service. This "data share"
initiative will strengthen information sharing among agencies, which is a key element to
enhance U.S. Border Security.
o Automated Namecheck Systems Enhancements (CLASS). A vital element in the U.S.
border security system is the Consular Lookout and Support System {CLASS),
containing the names and other biographical information on more than five million
aliens who may be excludable from the U.S. owing to links to international terrorism,
crime, and narco-trafficking activities or whose admission to the U.S. may violate other
provisions of U.S. immigration law. In addition, CLASS contains information on more
than 300,000 other persons who may be ineligible for a U.S. passport. Every person
seeking a passport .or visa is checked against CLASS. The Department will continue to
make investments in developing new algorithms to search the CLASS database.
Currently, all names are checked against date-of-birth and name checking algorithms.
In addition, names of Arabic origin are checked against a specialized algorithm. Efforts
will also continue to develop sophisticated name checks against other language groups
which present translation complexities. The Department will also continue in FY 1998
its on-going efforts to strengthen the capabilities of the Distributed Namecheck system
which serves as a backup system at overseas posts to the CLASS application.
o MRV Support Costs. The Department will utilize a small portion of its MRV revenue
to finance border security related expensess such as additional staff and operating
operati costs
35
STATE PROGRAMS
in support of passport and visa issuance. The Department will also fund expenses such
as bank fees which are incurred when overseas financial institutions collect MRV fee
revenues. Even with all of the major investments and advances made in automated
systems, people are still the key element in the U.S. border security system. The
Department is committed to train the users of its consular systems including operators,
consular managers, support personnel, and systems managers.
Document Integrity and Anti-Fraud Initiative/Electronic Visa File Retrieval Project. In
FY 1998, the Department will continue to make targeted investments to detect, combat
and counter document fraud. These efforts will involve both domestic and overseas
operations, and will be aimed at fraud in both the passport and visa functions. Paper
files provide essential background material regarding many visa denials, especially
those involving security-related decisions. Storing, retrieving and forwarding this
material to other posts are growing and expensive problems. The Department will
continue efforts to implement electronic data storage and retrieval systems as a means of
beginning to address this problem.
Passport Security and Modernization (Photodigitization and Passport Modernization).
The U.S. passport has a worldwide reputation as a highly secure document in terms of
both the adjudication process prior to issuance and in terms of the physical security of
the document. One of the few vulnerabilities in the current document is
photosubstitution in which the photograph of the legitimate bearer is replaced. To
counter photosubstitution, the Department plans to replace the physical photograph of
the bearer with a digitized image. The digitized image will be printed directly into the
data page of the passport. During FY 1998, the Department will complete pilot testing
of photodigitization equipment and will begin the installation of such equipment at
domestic passport agencies. The Department of State also will continue in FY 1998 to
utilize the proceeds of the MRV fee to finance other border security related expenditures
in support of the passport issuance process. Systems such as Multiple Issuance
Verification which will prevent the unauthorized issuance of multiple passports to the
same recipient will be completed.
TTPOFF - International Terrorist and Criminal Namecheck System and Data Exchange.
The Department will continue its TIPOFF systems which serve as an interface between
the highly classified holdings of the U.S. intelligence and law enforcement communities
concerning terrorists and international organized crime members, and consular
personnel abroad and port-of-entry inspectors.
Diplomatic Security: Passport and Visa Criminal Investigations. Investigating visa and
passport fraud is essentiaLto maintain the security of the underlying consular functions.
The Bureau of Diplomatic Security has an aggressive program to carry out such
activities. The costs associated with those activities are financed through the Border
Security program.
36
STATE PROGRAMS
Technology Backbone
° Information Management: Computer Systems Upgrades and Enhancements,
Maintenance and Remote Management. The State Department's Border Security
Program depends on sophisticated and robust information management services. The
Department will continue to make targeted investments in its information management
systems and hardware to support enhanced border security and to finance the operating
costs associated with these systems. The Department is committed to the worldwide
installation of unclassified local area networks in embassies and consulates. This
modernization effort (ALMA) provides critical information management infrastructure
upon which consular applications such as the MRV-2 system are installed. MRV
revenue is used to help support the consular-related aspects of the ALMA program.
° Diplomatic Telecommunications Service: Telecommunications and Network
Management. Another key element of the Border Security Program is effective
telecommunications between the Department and overseas visa issuing posts. Such
telecommunications are essential for performing namechecks and supporting electronic
data sharing with other border security agencies. As in past years, the funds expended
for this enhanced capability is in addition to funds budgeted for the Diplomatic
Telecommunications Service separately.
Border Security Staff and Support Costs
° People and related operating costs are the final key element of the U.S. Border Security
Program. The staff and operating costs of the Border Security program that will be
funded with MRV fees include efforts to prevent passport and visa fraud domestically
and overseas; personnel and operating costs for developing and maintaining consular
computer systems applications related to the Border Security Program including
managing the CLASS-related aspects of the Department's infonna'troninanagement
system; support for the passport file miniaturization process; the printing of all passport
books; and investigations by Diplomatic Security personnel of possible violations of
I U.S. law involving passport and visa fraud. This is consistent with current law which
I allows the Department of State to retain MRV fees and will help to ensure that these
! vital functions are maintained. In FY 1998, the Department will use MRV fees to fund
! the American salaries and benefit costs of an additional 432 overseas American
I """ "^""S
: positions who provide border security and consular services. The,$40,000,000 cost of
f these positions overseas was previously borne by the Diplomatic and Consular
Programs appropriation.
37
STATE PROGRAMS
Border Security Program I

The Department of State is the nation's first line of defense against travel here by terrorists,
international organized crime members, or persons whose presence here may otherwise violate I
U.S. immigration laws. Consistent with this mission, the Department has implemented a
comprehensive strategy to improve automated consular systems and enhance U.S. border .
security. Funding for this program currently is generated by the Machine Readable Visa (MRV) I
application fee paid by persons seeking non-immigrant visas. The Department uses MRV fee
revenue to strengthen U.S. border security and to finance consular operations. The objectives of i
the border security program are: |
Q Information. Enhance data sharing initiatives with other agencies and increase the
effectiveness and efficiency of name check systems by providing consular officials I
responsible for adjudicating passport or visa applications with any information the U.S. holds
regarding applicants. .
Q Infrastructure. Strengthen consular and passport services by providing business quality I
equipment, ensuring Year 2000 compliance, developing modernized software and
implementing an effective equipment replacement program. I
Q Connectivity. Provide worldwide and redundant connectivity in support of passport and visa
issuance, including sufficient bandwidth to support data sharing or remote system
management. I
Q Human Resources. Meet MRV workload, address seasonal workload peaks for consular and
passport services, and expand the training of consular and supporting personnel. I
As of January 1998, the Border Security Program had the following accomplishments: .
Q Every visa-issuing post can perform automated name checks; ~=»-- |
Q Sophisticated algorithms to match Arabic and Hispanic language names have been .
developed; |
Q Major investments have been made to support the TIPOFF program which serves as an
interface between officers responsible for visa adjudication and classified information about I
individuals with -ties to international terrorism or crime;
Q Every visa issuing post has the Machine Readable Visa system installed; I
Q Posts.providing over 40 percent of non-immigrant visa adjudications are utilizing the
modernized MRV-2 program; . _
Q The Border Crossing Card (BCC) program mandated by Section 104 of the Illegal I
Immigration Reform and Immigrant Responsibility Act (IIRIRA) of 1996 is being
implemented; I
Q Passport systems and operations have been upgraded to help meet record demand;
38
I
I
I STATE PROGRAMS
I Q Major investments in mainframe computers and telecommunications infrastructure have been
made to provide automation support and ensure communications connectivity with overseas
posts that issue visas;
I Q Diplomatic Security investigations of visa and passport fraud have been supported; and
Q Training operations have been expanded for officers and support personnel responsible for
I the delivery of consular services, domestically as well as overseas.
The following chart summarizes the major activities of the Border Security Program. FY 1998
I and FY 1999 activities will continue to be financed in their entirety by MRV fee revenue
including MRV fee carry-forward balances of $57 million from FY 1997, an estimated $235
million in new FY 1998 fee collections, and an estimated $293 million in new FY 1999 fee
I collections. Carry-forward balances at the end of FY 1999 are projected to be less than $15
million, the minimum level necessary to support on-going activities in the beginning of FY 2000.
I
I
A
I
I
I
I
I
I
I
39
I
STATE PROGRAMS

Border Security Initiatives FY1997 FY1998 FY 1999

: •-•••' • .. ' ' ' "•-.," : .
Consular Systems Installation and Operations $24,000 $52,500 $40,000
Overseas Consular Systems
Modernization/Support 20,500 19,000 23,500
Automated Namecheck Systems Enhancements (CLASS) 7,650 9,000 8,500
Border Crossing Card Project 763 20,000 15,000
Consular Management 4,100 7,000
Document Integrity /Training/
Electronic Visa Retrieval 1,400 2,150 4,000
Passport Security and Modernization 7,417 12,300 16,500
Passport Photodigitization 2,900 17,960 3,000
TIPOFF- Terrorism and Crime 635 900 1,000
Diplomatic Security
Passport and Visa Fraud Investigative Support 1,613 850 1,000
Technology Backbone
Information Management:
Computer Systems and Operations 16,116 20,267 18,250
Diplomatic Telecommunications Service: 7,046 7,203 10,250
Telecommunications Support
Subtotal, Project Initiatives 599,009 $176,230 $159,000
Border Security Staff
Information Management 2,265 2,353 2,500
Diplomatic Security 8,691 '—---9,028 9,300
Overseas Staff 17,077 57,693 60,000
Border Security Support ,

Diplomatic Security 800 822 850
Subtotal, Staff and Support Costs 50,750 98,726 137,003
-
Total, Border Security Program $149,759 $274,956 $296,003
The Department will pursue the following objectives during FY 1999 as part of its continuing
effort to improve U.S. border security and to finance consular personnel and operating costs with
user fees:
40
STATE PROGRAMS
^"^ Consular Project Initiatives

"* Q Consular Systems Installation and Operations. In FY 1999, the Department will complete the
migration of its overseas consular systems from a mix of out-dated hardware and interim
(1 systems to a modernized, local area network structure with business-quality hardware and
software. The Department will do so by installing its new architecture at the remaining 100
visa-issuing posts. The completion of this aggressive installation project will mean that all of
0 the Department's consular systems will be Year 2000 compliant. In addition, extensive
training will be provided to overseas staff to ensure their proficiency with the Modernized
0 Non-Immigrant, Immigrant, and American Citizens Services applications. The Department,

consistent with its commitment to prevent technological obsolescence in the equipment and
systems that help secure the U.S. borders, will also implement a comprehensive life- cycle
equipment replacement program.
0 Q Overseas Consular Systems Modernization/Support. The Department of State depends upon
a series of sophisticated systems to help deliver consular services to both American citizens
0 and foreign nationals. Such software, which supports visa issuance and overseas citizen
services, requires frequent updates and modifications in light of continuing changes in the
p underlying computer technology upon which the applications operate. In addition, the
Department will continue in FY 1999 to make significant investments in the Consular Affairs
Corporate Database. This database will receive information electronically from overseas visa
~! issuing posts and then make that data available to other border security and law enforcement
/^ agencies, particularly the Immigration and Naturalization Service and the Customs Service.
This "data share" initiative will strengthen information sharing among agencies, which is key
1 to continuing to improve border security. Finally, the Department will continue to pursue
~< other initiatives, such as improvements in overseas passport production, which will also help
improve the nation's security.
Pi Q Automated Namecheck Systems Enhancements (CLASS). The Cojasijlar Lookout and
Support System (CLASS) contains the names and other biographical information on more
~~: than five million aliens who may be excludable from the U.S. due to links to international
rd terrorism, crime, and narco-trafficking activities or whose admission to the U.S. may violate
other provisions of U.S. immigration law. In addition, CLASS contains information on about
2 million Americans who may be ineligible for a U.S. passport (e.g., most of these names are
"-i included in response to legislation that tries to prevent the international flight of "deadbeat"
parents by denying such persons a U.S. passport). Every person seeking a passport or visa is
checked against CLASS. The Department will continue in FY 1999 to make targeted
investments to improve the namechecking capabilities of CLASS. In FY 1999, we plan to
continue our effort to introduce language-specific algorithms by implementing an algorithm
tailored to check Russo-Slavic names. In addition, the Department plans to begin to develop
algorithms that will check Chinese and other Asian names.
Q MRV Support Costs. The Department utilizes a small portion of its MRV revenue to finance
r- border security related expenses such as additional staff and operating costs in support of
41
STATE PROGRAMS
passport and visa issuance. The Department will also fund expenses such as bank fees that
are incurred when overseas financial institutions collect MRV fee revenues.
Q Border Crossing Cards (BCC). In FY 1999, the Department will continue to implement the
BCC project for Mexico, as mandated by Section 104 of the Illegal Immigration Reform and
Immigrant Responsibility Act of 1996. Section 104 requires that the Executive Branch be
issuing BCCs by April 1, 1998, and that anyone seeking to enter the United States as of
October 1,1999 with a BCC must present one of the new, machine readable documents. The
BCC project involves a close working relationship with the Immigration and Naturalization
Service (INS), as the Department of State will assume responsibility from INS for
adjudication of all BCC applications and INS will be responsible for card production. The
Department of State expects to adjudicate more than 1.5 million applications for either first
time BCC cards or re-adjudicated cards in accordance with the terms of Section 104. This
project will require the expansion of physical facilities in Mexico including establishing a
new consulate in Nogales, the hiring of additional staff, including contract personnel, and
significant investments in automated systems and communication services. All costs for this
project will be recovered from fees charged to BCC applicants.
Q Consular Management. The Department of State is committed to recovering the cost of most
consular operations through user fees. Consistent with that objective, the Department will
shift the cost of some consular operations to the Border Security program beginning in F Y
1999. This includes the cost of providing limited furnishings and fixtures for consular offices
as well as the cost of supporting consular agents. In addition the Department intends to
develop a "Consular Fellows" initiative to augment consular staffing. "Consular Fellows"
will be American contract personnel, recruited through time-limited contracts to provide
certain limited consular services.
Q Document Integrity/Training/Electronic Visa File Retrieval Project. In FY 1999, the
Department will continue to make targeted investments to detect and combat document fraud.,
In addition, the Department will expand its efforts to train, at the "Foreign Service Institute, its
personnel in the operations and direction of modernized consular applications. Lastly, the
Department will begin to install overseas equipment and processes to store and retrieve
electronically those files which document visa adjudication decisions.
Q Passport Modernization. For the past several years, the Department of State has confronted
record passport demand. The number of citizens applying for passports has nearly doubled
since 1993, and this trend shows no signs of abating. Consequently, continued investment in
modernized and customer-service friendly facilities is needed. Furthermore, in FY 1999 it
will be necessary to make major investments to provide additional passport production
capacity. Absent such a major investment, the current passport agencies will not be able to
serve the expected customer demand in the FY 2000 and beyond period. This budget
initiative also helps finance improvements to the automated systems, communications
networks, and human resource programs that support passport adjudication and management. _
Q Photodigitization. In FY 1999 the Department will complete the implementation of the
passport photodigitization project. This initiative will address one of the few security
42
fl STATE PROGRAMS
weaknesses in the U.S. passport—its potential vulnerability to photosubstitution.

a Photodigitization will replace the bearer's physical photograph in a U.S. passport with a
digitized image that will be printed directly into the passport's data page. The
a photodigitization initiative will also allow passport production to migrate to modern printer
technology. This step is critical since existing passport book printing technology is nearly
twenty years old and is beyond its useful and maintainable life. New passport book printing
a technology will also help deal with the continuing growth in demand for U.S. passports.
That demand is expected to increase by at least five percent in FY 1999.
a Q TIPOFF - International Terrorist and Criminal Namecheck System and Data Exchange. The
Department of State's TIPOFF systems play a pivotal role in U.S. border security by serving
as an interface between the highly classified holdings of the U.S. intelligence and law
enforcement communities concerning terrorists and international organized crime members,
3 and consular personnel abroad and port-of-entry inspectors. In FY 1999 the Department
plans to continue to focus on additional international organized crime syndicates and other
threats to U.S. national security.
Q Diplomatic Security: Passport and Visa Criminal Investigations. The Bureau of Diplomatic
Security has an aggressive program to investigate visa and passport fraud. Such
investigations are essential to maintain the security of the underlying consular functions.
Costs associated with these activities are financed through this program.
Technology Backbone
Q Information Management: Computer Systems and Operations. Effective and sophisticated
information management systems are essential elements of the Department's Border Security
Program. During FY 1999, the Department will continue to finance additional mainframe
computer capacity, as growth in the CLASS database and its set of language-specific
algorithms and software requires. In addition, the Department will finance support services
to CLASS, including the cost of operating systems and telecommunications enhancements.
A second key element of the Border Security information rhanagement strategy is to support
the consular portion of the Department's overseas systems modernization strategy (ALMA).
That infrastructure is essential to support the automated systems being installed in overseas
consular facilities. MRV revenues will help finance the consular-related aspects of the
ALMA program.
Q Diplomatic Telecommunications Service: Telecommunications Support. Without effective
and worldwide telecommunications circuits, the Border Security program would be crippled.
Namechecks could not be run. Fingerprint files in support of the Border Crossing Card
program would not be transmitted. The "DataShare" initiative with other border security
agencies would fail. MRV revenues finance circuit lease costs and related support activities
directly related to the workload imposed by the Border Security program. As in past years,
the funds expended for this enhanced, unique capability are in addition to funds budgeted for
the Diplomatic Telecommunications Service separately.
43
STATE PROGRAMS

Q People and related operating costs are the final key element of the U.S. Border Security
Program. In FY 1999, the Department of State will finance the salaries and benefits of 1,783
full-time American positions which provide consular and related services, either domestically
or overseas. These positions prevent and investigate passport and visa fraud domestically
and overseas and develop and manage consular and passport computer systems, including
CLASS. In addition, direct operating costs related to passport production, such as the
printing of the highly-secure U.S. passport books as well as file miniaturization and storage
are financed with MRV fees. The Border Security Program also funds support provided by
the other bureaus and offices which play a vital role in strengthening the nation's border
security.
Using fees for these purposes is consistent with current law that allows the Department of
State to retain MRV fees to finance consular operations. Without these fees, it would be
impossible for the Department to continue to provide these vital services to American
citizens and foreigners desiring to visit or immigrate to the United States. In FY 1999, the
cost of these staff and support services will total $137 million. Financial support for these
positions overseas was previously bome by the Diplomatic and Consular Programs and
Salaries and Expenses appropriations.
44
STATE PROGRAMS

The Department of State is the Nation's first line of defense against travel here by terrorists,
international organized crime members, or persons whose presence here may otherwise violate
comprehensive strategy to improve automated consular systems and enhance U.S. border
security. Funding for this program is generated by the Machine Readable Visa (MRV)
application fee paid by persons seeking non-immigrant visas. The Department uses MRV fee
collections to strengthen U.S. border security and to finance consular operations. The objectives
of the border security program are:
effectiveness and efficiency of name check systems by providing consular officials
responsible for adjudicating passport or visa applications with any information the U.S.
holds regarding that applicant.
Q Infrastructure. Strengthen consular and passport services by providing business quality
equipment, ensuring Year 2000 compliance, developing modernized software and
implementing an effective equipment replacement program.
^-^ Q Connectivity. Provide worldwide and redundant connectivity in support of passport and
visa issuance, including sufficient bandwidth to support data sharing or remote system
management.
Q Human Resources. Meet MRV workload, address seasonal workload peaks for consular
and passport services, and make systematic and major investments in our consular,
passport, and support personnel by providing them training on the systems and processes
that will support consular operations into the next century.
Q Integrity. Ensure the integrity of the passport and visa issuance processes and products,
including through improvements to the documents themselves, enhancements in
information storage and retrieval, expanded training of anti-fraud personnel and a
comprehensive program to investigate any allegations of fraud.
The Border Security Program continues to demonstrate significant accomplishments. As of

January 1999, accomplishments included:
Q Installed the Year 2000 compliant MRV-2 system at 133 posts that service 90 percent of
the worldwide non-immigrant visa (NTV) adjudication workload.
Q Achieved Y2K compliance for the namecheck system. This modernized system (called
CLASS-Enhanced or CLASS-E) now supports visa adjudication at all overseas posts.
CLASS-E now supports passport adjudication at all domestic passport agencies.
x-v Q Launched the Border Crossing Card program on April 1,1998 as required by Section 104
of the Illegal Immigration and Immigrant Responsibility Act of 1996. The program now
I
51
r
STATE PROGRAMS
operates in Mexico at the U.S. consulates in Ciudad Juarez, Nuevo Laredo, Matamoros,
Merida, Nogales, and Tijuana.
Q Continued to make progress with the passport photodigitization program. Thirty percent
of US domestic passport production capacity (the capacity at the National Passport Center
in Portsmouth, NH) has been converted to the photodigitization systems.
Photodigitization will be installed and operational at the Passport Agency in New Orleans
by April, 1999. In addition, significant improvements are being made to the Travel
Document Issuance System (TDIS), the precursor to photodigitization, to ensure that
passport production will be Year 2000 compatible.
Q Processed and issued a record number of 6.55 million passports in FY 1998 and expects to
issue 6.9 million in FY 1999.
Q Supported the worldwide installation of the ALMA system and the acquisition of
additional communications bandwidth to support overseas consular operations.
Q Financed the salaries of nearly 1,900 Department employees in FY 1999. In addition the
program financed the implementation of such consular best practices as bank collection
and appointment systems. The program also provided more than 16 person years of
temporary duty support to overseas posts to help address consular workload or staffing
gap issues.
Q Supported Diplomatic Security investigations of visa and passport fraud.
Q Expanded training for officers and support personnel responsible for the delivery of
consular services, domestically and overseas.
FY 1999 and beyond, these activities continue to be financed in their entirety by MRV fee
collections, including estimated new fee collections of $310 million and estimated carry-forward
MRV fee revenue balances of $52 million. In FY 2000, the Department projects MRV fee
collections of another $310 million, and a carryforward into FY 2000 of $50 million from
FY 1999. This carryforward level is barely adequate to begin FY 2000 programmatic
requirements, including American Salaries of Department employees. The carry-forward
balances projected to begin FY 2001 are the minimum needed to continue consular operations
and avoid disruptions in program operations in FY 2001.
52
"i^&ii^^^^^^^^^^^^^^^^^^^^^^îi^î^^^^^^î^9^îy^î^^^
Border-SefcuntyijSW^
Cons ulgr^roject Initiatives
Modernization/Support 19,000 24,000 22,500
Automated Namecheck Systems (CLASS) 9,000 8,000 8,500
Border Crossing Card (BCC) 20,000 20,450 17,690
Consular Management 0 0 3,000
Document Integrity/Training/ 2,150 1,475 1,850
Passport Security, Modernization and Workload 11,419 12,000 14,550
Charleston Passport Center 0 5,500 2,900
TIPOFF - Terrorism and Crime 750 900 1,050
Visa Processing - Affidavit of Support 0 Z3»5 3,050
•' Diplomatic Security
Passport and Visa Fraud Investigative Support 1,731 2,186 2,350
Technology Backbone
Information Management:
Computer Systems and Operations -13,077 8,927 11,980
Diplomatic Telecommunications Service:
Telecommunications Support 4,862 8,881 10,000
Subtotal, Project Initiatives $154,989 $158,964 $152,470
Border Security Staff
Information Management 2353 2,500 2,610
Diplomatic Security 9,028 11,479 12,392
Overseas Stafl 57,693 62,110 67,030
Subtotal, Staff and Support Costs $98,290 $153,865 $164,245
53
STATE PROGRAMS
The Department will pursue the following objectives during FY 1999 and FY 2000 as part of its
continuing effort to improve U.S. border security and to finance consular personnel and
operating costs with user fees:
Q Consular Systems Installation and Operations. In FY 1999 the Department will
complete the migration of its overseas consular systems from a mix of out-dated
hardware and interim systems to a modernized, local area network structure with
business-quality hardware and software. The Department will do so by installing its
new architecture at all remaining visa-issuing posts. The completion of this
aggressive installation project will mean that all of the Department's consular systems
will be Year 2000 compliant. In addition, extensive training will be provided to
overseas staff to ensure their proficiency with the modernized Non-Immigrant,
Immigrant and American Citizens Services applications. The Department, consistent
with its commitment to prevent technological obsolescence in the equipment and
systems that help secure the U.S. borders, will also implement a 36-48 month
equipment replacement cycle that will be augmented by more frequent visits to
upgrade software and to provide on-scene training assistance at overseas posts.
Q Overseas Consular Systems Modernization/Support. The Department of State
depends upon a series of sophisticated systems to help deliver consular services to
both Americans citizens and foreign nationals. Such software, which supports visa
issuance and overseas citizen services, requires frequent updates and modifications in
light of continuing changes in the underlying computer technology upon which the
applications operate. For example, changes to software such as Oracle database
products require that applications utilizing that product be tested and, if necessary,
modified in order to work effectively with the new releases. All of the software that
supports consular operations has been developed to meet Y2K specifications and is
undergoing Y2K certification. In addition, the Department will begin in FY 1999 to
develop a database of "lost and stolen" US passports in order to strengthen further the
security of the US passport. In the FY 2000 period the Department expects to make
significant investments in Consular Affairs Corporate Database. This database will
receive electronically information from overseas visa issuing posts and then make that
data available to other border security and law enforcement agencies, particularly the
Immigration and Naturalization Service and the Customs Service. This "DataShare"
initiative will strengthen information sharing among agencies, which is key to
continuing to improve border security. The Bureau of Consular Affairs will continue
to support such essential operations as a "Help Desk" and remote management
practices that help to support worldwide consular operations. Finally, the Department
will pursue in FY 2000 other initiatives, such as improvements in overseas passport
production, which will also help improve the Nation's security.
54
STATE PROGRAMS
Q Automated Namecheck Systems (CLASS). The Consular Lookout and Support

System-Enhanced (CLASS-E) contains the names and other biographical information
on more than five million aliens who may be excludable from the U.S. owing to links
to international terrorism, crime, and narco-trafficking activities, or whose admission
to the U.S. may violate other provisions of U.S. immigration law. In addition,
CLASS-E contains information on about 2 million Americans who may be ineligible
for a U.S. passport. Most of the names of American citizens are included in response
to requirements of U.S. law that makes international flight of "deadbeat parents" more
difficult by denying such persons a U.S. passport. Every person seeking a passport or
visa will be checked against CLASS-E. The Department will continue to make
targeted investments in FY 2000 to improve the namechecking capabilities of
CLASS-E. In FY 2000 the testing and final development of algorithms tailored to
check Russo-Slavic and Hispanic names will begin.
Q MRV Support Costs. The Department utilizes a small portion of its MRV revenue to
finance border security related expenses such as additional staff and operating costs in
support of passport and visa issuance. The Department will also fund expenses such
as bank fees that are incurred when overseas financial institutions collect MRV fee
revenues. Efforts to reduce crowds around overseas consular sections have
significant security and customer service advantages. Accordingly, the Department
will increase its spending on these activities in the current and next fiscal year. In
addition in FY 2000 the Bureau of Consular Affairs will need to finance another cost-
of-service study in order to ensure that consular fees are set at a level consistent with
the principles of full cost recovery.
Q Border Crossing Cards (BCC) . As required by Section 104 of the Illegal
Immigration Reform and Immigrant Responsibility Act of 1996, the Department of
State began to adjudicate "laser visas" on April 1,1998. As of January, 1999, laser
visa applications are being accepted at the U.S. consulates in Ciudad Juarez, Nuevo
Laredo, Matamoros, Merida, Nogales and Tijuana. Expansion of this program to
other sites in Mexico has been delayed owing to laser visa production difficulties
encountered by the Immigration and Naturalization Service (INS). The Department
of State expects that INS will overcome its production problems during FY 1999, thus
allowing for the expansion of this program to all consulates in Mexico plus the
embassy in Mexico City. The Department of State expects to adjudicate more than
1.5 million applications for either first time laser visas or re-applications in both FY
1999 and FY 2000. The Border Security Program will finance the expansion of
physical facilities in Mexico, the hiring of additional staff, including contract
personnel, and significant investments in automated systems and communication
services. All costs for this project, including those for card production, will be
recovered from fees charged to BCC applicants. Last year, the Congress has passed
legislation that will provide Mexican applicants an additional two years in which to
renew their existing BCC cards. This extension is needed in order to process the
renewal of the 5 million existing BCC cards, especially in light of the problems
55
STATE PROGRAMS
encountered by the INS in fulfilling its agreement to produce these cards as its part of
a joint agreement with the Department of State on program implementation. The
legislation also provided that certain visas be provided at a reduced cost, with that
cost being recovered from the overall worldwide MRV collections.
Q Consular Management. In F Y 2000 the Department will finance the cost of consular
agents through the Border Security program. Consular agents are overseas American
citizens who provide limited consular support in areas where there is a significant
U.S. citizen population but no U.S. consulate or embassy is nearby. Support to
consular agents includes a modest salary and, in some cases, the provision of office
space, support personnel and automated systems needed to help ensure the effective
delivery of consular services to American citizens. In addition, the Department will
begin to finance the cost of furnishings and furniture utilized in consular sections
through this program.
Q Document Integrity/Training. In FY 2000, the Department will continue to make
targeted investments to detect, combat and counter document fraud. In addition, the
Department will expand its efforts to train its personnel through the Foreign Service
Institute concerning both the operations and direction of modernized consular
applications.
Q Passport Security, Modernization and Workload. The Department of State is
confronted each year with record passport demand. The number of citizens applying
for passports has nearly doubled since 1993. Total domestic passport issuances
reached 6.55 million in FY 1998 and are expected to reach 7.2 million by FY 2000.
This growth in passport demand requires additional production facilities, as well as
systematic renovations and improvements to existing facilities. Such improvements
are especially important in order to meet enhanced domestic security standards and to
meet the legitimate needs of customers. This initiative also helps finance
improvements to the automated systems, communications networks and human
resource programs, including contract personnel and services, that support passport
adjudication and management
Q Charleston Passport Center. Consistent with the objectives stated above, the
Department will begin in FY 1999 to renovate and outfit the National Passport Center
in Charleston, S.C. This process will be completed in FY 2000. In addition to
meeting final outfitting costs in FY 2000, the Department will use MRV funds to
finance the long-term maintenance and support costs of the Charleston Passport
Center.
Q Passport Photodigitization. In FY 1999 the Department will begin the field
installation of the passport photodigitization project. This initiative, which is also key
to ensuring that the passport production system will be Y2K compliant, will address
one of the few security weaknesses in the U.S. passport—its potential vulnerability to
photosubstitution. Photodigitization will replace the bearer's physical photograph in
a U.S. passport with a digitized image that will be printed directly into the passport's
56
STATE PROGRAMS
c
o
«
5
o
c
t
process All such costs will be met as part of this budget
S cSfocus'or,additiona!' international organized crime syndicates and other

threats to U.S. national security.
quantify the petitioner's income and assets.
adjudication.
57
STATE PROGRAMS
The Department will begin a pilot AOS project in FY 1999 involving a small number
of very high-volume immigrant visa posts (such as Ciudad Juarez, Mexico and
Manila, Philippines). This program will be expanded in FY 2000 to all posts that
process more than 8,000 immigrant visas per year.
Diplomatic Security
Q Diplomatic Security: Passport and Visa Fraud Investigative Support. The Bureau of
Diplomatic Security has an aggressive program to investigate visa and passport fraud.
Such investigations are essential to maintain the security of the underlying consular
functions. Costs associated with these activities are financed through this program.
Technology Backbone
Q Information Management: Computer Systems and Operations. Effective and
sophisticated information management systems are essential elements of the
Department's Border Security Program. In FY 2000, expected growth in the CLASS-
E databases and algorithms will generate the need for additional mainframe computer
capacity. Such capacity, as well as associated software requirements, will be funded
through this budget initiative.
Q Diplomatic Telecommunications Service: Telecommunications Support. Without
effective and worldwide telecommunications circuits, the Border Security program
would be crippled: Namechecks could not be run; fingerprint files in support of the
Border Crossing Card program would not be transmitted; and the "DataShare"
initiative with other border security agencies would fail. MRV revenues finance
circuitry lease costs and related support activities directly related to the workload
imposed by the Border Security program. As in past years, the funds committed to
this activity are in addition to funds budgeted separately for the Diplomatic
Telecommunications Service.
Q People and related operating costs are the final key element of the U.S. Border
Security Program. In FY 2000 the Department of State will finance the salaries and
benefits of nearly 2,000 American employees who provide consular and related
services, either domestically or overseas. As part of this initiative, the Border
Security program will finance personnel, including an increase of 49 overseas
consular positions for worldwide consular workload, and operating costs associated
with efforts to prevent and investigate passport and visa fraud domestically and
overseas and to develop and manage consular and passport computer systems,
including CLASS. In addition, direct operating costs related to passport production,
such as the printing of the highly secure U.S. passport books, file miniaturization and
storage, and other operating expenses in support of the passport management,
adjudication and production processes are financed with MRV fees. Support is also
58
STATE PROGRAMS 1
provided to the other bureaus and offices that play a vital role in strengthening the
\l|
Nation's border security. 5
Using fees for these purposes is consistent with current law that allows the ;:
Department of State to retain MRV fees to provide consular services. Without these ;
fees, it would be impossible for the Department to continue to provide these vital :
services to American citizens and foreigners desiring to visit or immigrate to the
United States. The cost of providing this support in FY 2000 is estimated at $164.2 '.
million. FY 2000 levels reflect anticipated payroll increases, along with an increase j
in the level of consular staffing required to meet workload increases, as discussed ;
above, ;
59
f STATE PROGRAMS
I Border Security Program

The Department of State is the Nation's first line of defense against travel here by terrorists,
international organized crime members, or persons whose presence here may otherwise violate
comprehensive strategy to improve automated consular systems and enhance U.S. border
security. The Machine-Readable Visa (MRV) application fee paid by persons seeking non-
immigrant visas generates funding for this program. The Department uses MRV fee collections
to strengthen U.S. border security and to finance consular operations. The objectives of the
border security program are:
effectiveness and efficiency of namecheck systems by providing consular officials
responsible for adjudicating passport or visa applications with any relevant information the
U.S. holds regarding that applicant.
equipment, developing modernized software, implementing an effective equipment
replacement program, and instituting a comprehensive program of data replication and data
warehousing between overseas posts and the Department of State. We also plan to provide
American citizens the service they expect and demand by improving facilities and services to
meet growing workload and the legitimate demand of our customers.
management.
Q Human Resources. Meet the growing demand for overseas and domestic consular and
passport services, address seasonal workload peaks, make systematic and major investments
in our consular, passport, and support personnel by providing them training on the systems
and processes that will support consular operations into the next century.
through improvements to the documents themselves, enhancements in information storage
and retrieval, expanded training of anti-fraud personnel and a comprehensive program to
investigate any allegations of fraud.
December 1999, accomplishments include:
Q Completing the worldwide installation of Year 2000 compliant MRV-2 system at all visa-
issuing posts that are currently operating.
Q Strengthening the CLASS-Enhanced (CLASS-E) namecheck system by completing the
linguistic design needed to develop algorithms that will improve searches of Russo-Slavic
and Hispanic names, making targeted investments to improve the mainframe computer
system upon which CLASS-E operates, and implementing the capability to check for
passport numbers of lost/stolen passports by foreign governments.
39
STATE PROGRAMS
Q Implementing effectively the Border Crossing Card (BCCs) as demonstrated by issuing more |
than 1 million biometric and machine-readable BCCs by the end of 1999 . This program
will continue until at least 2003 by which time every Mexican visitor to the US will enter the _
US by using this highly secure travel document. |
Q Introducing successfully the passport photodigitization program. Photodigitization now
accounts for more than forty percent of the passports produced each week. In addition, •
significant improvements were made to the Travel Document Issuance System (TDIS), the '
precursor to photodigitization, to ensure that all passport production was Year 2000
compatible. I
Q Processing and issuing a record total of 6.8 million passports in FY 1999 with expectations
that passport issuance will exceed 7.0 million in FY 2000. We project 7.3 million issuances g
in FY 2001. •
Q Increasing the productive capacity for Passport Services by developing the Charleston .
Passport Center. This facility will enable the Department of State to meet expected passport |
demand through the 2005 period. This facility will begin operations in the spring of 2000.
Q Supporting the worldwide installation of the ALMA system and the acquisition of additional §
communications bandwidth to support overseas consular operations.
Q Financing the salaries of nearly 2,000 Department employees. In FY 1999 the program •
financed the implementation of such consular best practices as bank collection and |
appointment systems. The program also provided more than 16 person years of temporary
duty support to overseas posts to help address consular workload or staffing gap issues. We |
plan to do the same in FY 2000 and FY 2001. •
Q Supporting Diplomatic Security investigations of visa and passport fraud. «
Q Expanding training for officers and support personnel responsible for the delivery of consular I
services, domestically and overseas.
Q Supporting the Border Crossing Card project in Mexico by financing renovations of the |
Monterrey and Guadalajara consulates.
FY 2000 and beyond, these activities continue to be financed in their entirety by MRV fee
collections. Estimated new fee collections are $350 million in FY 2000 and $367.5 million in |
FY 2001. Estimated carry-forward MRV fee revenue balances at the beginning of the respective
fiscal years are $78.7 million and $97.3 million. Carry-forward balances are essential to ensure .
smooth financial operations, especially at the beginning of the fiscal year. |
I
I
40
STATE PROGRAMS
Border Security Program Summary Statement

„ . - . , . . , . FY 1999 FY 2000 FY 2001

Border Security Initiatives . , „ ,. _,

^ _i> Modernization/Support 22,500 32,350 36,450
v-"0 ',-'• '"'
Automated Namecheck Systems (CLASS) 8,000 9,500 11,000
Border Crossing Card (BCC) 5,100
Public Information Support 7,000 10,000
Document Integrity/Training/Anti-Fraud 1,475 1,2'15 4,600
Programs
Passport Operations 10,613 16,948 21,901
Passport Facilities 4,405 1,512
Charleston Passport Center 6,887 2,016 817
TIPOFF - Terrorism and Crime 1,101 1,050 1,050
Visa Processing - Affidavit of Support 1,665 2,350 2,350
Diplomatic Security
Passport and Visa Fraud Investigative 2,331 4,124 4,322
Support/Agency Guards
Technology Backbone
Information Resource Management:
Computer Systems and Operations 8,777 19,550 17,500
Diplomatic Telecommunications Service:
Telecommunications Support 7,032 „
Subtotal, Project Initiatives $140,081 $152,107 $178,448
Border Security Staff and Support Border Security 121,199 130,902 137,709
Staff
Information Resource Management 2,500 2,610 2,710
Overseas Staf 64,074 68,901 72,752
Border Security Support 47,646 53,422 S6£39 56;

Information Resource Managemen 4,000 4,000 4,084
Western Hemisphere Affairs 3,380 3,700 3,900
Foreign Building Operations 3,000
Subtotal, Staff and Support Cost $168,926 $184,146 $195,005
41
STATE PROGRAMS
The Department will pursue the following objectives during FY 2000 and FY 2001 as part of its I
continuing effort to improve U.S. border security and to finance consular personnel and
operating costs with user fees: " _
Consular Project Initiatives: S153,626,000
Q Consular Systems Installation and Operations. During FY 1999 the Bureau of Consular |
Affairs completed a major worldwide program to update consular systems that secured Y2K
compatibility. In FY 2000 the Department will migrate its efforts towards a sophisticated I
equipment replacement program that will be augmented by regular on-site training programs. I
The objective of this activity is to ensure that worldwide consular sections are equipped with
the business-quality hardware needed by consular personnel to deliver effectively and I
efficiently worldwide consular services. This program will prevent technological *
obsolescence in the equipment and systems that help secure the U.S. borders by replacing
such equipment on a 36-month cycle. In addition, extensive training will be provided to I
overseas staff to ensure their proficiency with the modernized Non-Immigrant, Immigrant
and American Citizens Services applications. Finally, this program will support such _
important initiatives as a limited local Border Crossing Card (BCC) production project. I
Q Overseas Consular Systems Modernization/Support. The Department of State depends upon
a series of sophisticated systems to help deliver consular services to both American citizens I
and foreign nationals. Such software, which supports visa issuance and overseas citizen "
underlying computer technology upon which the applications operate. For example, changes I
to software such as Oracle database products require that applications utilizing that product
be tested and, if necessary, modified in order to work effectively with the new releases. In the
FY 2000 period and beyond, the Department expects to make significant investments in the I
Consular Affairs Corporate Database. This database will receive electronically information
from overseas visa issuing posts and then make that data available to other border security •
and law enforcement agencies, particularly the Immigration and Naturalization Service and
the Customs Service. This "DataShare" initiative will strengthen information sharing among
agencies, which is key to continuing to improve border security. The Bureau of Consular I
Affairs will continue to support such essential operations as a "Help Desk" and remote I
management practices that help to support worldwide consular operations. Finally, the
Department will also pursue in FY 2000 and FY 2001 other initiatives, such as improvements I
in overseas passport production, which will also help improve the Nation's security. "
Q Automated Namecheck Systems (CLASS). The Consular Lookout and Support System- •
Enhanced (CLASS-E) contains the names and other biographical information on more than I
six million aliens who may be excludable from the U.S. owing to links to international
terrorism, crime, and narco-trafficking activities, or whose admission to the U.S. may violate I
other provisions of U.S. immigration law. In addition, CLASS-E contains information on I
about 2 million Americans who may be ineligible for a U.S. passport. Most of the names of
American citizens are included in response to requirements of U.S. law that makes I
international flight of "deadbeat parents" more difficult by denying such persons a U.S. '
passport. Every person seeking a passport or visa is checked against CLASS-E. The
42 '
STATE PROGRAMS
I Department will continue to make targeted investments in FY 2000 to improve the
namechecking capabilities of CLASS-E. In FY 20.00 the testing and final development of
^"^ algorithms tailored to check Russo-Slavic and Hispanic names will begin. Furthermore, and
III consistent with the requirements of PDD-63, the Department of State intends to make major
investments to secure redundancy in the mainframe computer capability required to support
CLASS-E. We will enhance CLASS with the capability to create a database of lost and
I stolen U.S. passports and check this as part of the reissuance of passports.
Q MRV Support Costs. The Department utilizes a small portion of its MRV revenue to finance
I border security related expenses such as additional staff and operating costs in support of
passport and visa issuance. The Department also funds expenses such as bank fees that are
incurred when overseas financial institutions collect MRV fee revenues. This practice of
( "off-site" fee collection reduces crowding around overseas consular sections and thus offers
significant security and customer service advantages. The Department expects that "off-site"
fee collection will cover approximately 80 percent of non-immigrant visa applications by the
I end of FY 2001. Requirements to cover the bank fees resulting from "off-site" fee collection
will rise accordingly. In FY 2000 the Bureau of Consular Affairs is financing a cost-of-
• service study to ensure that consular fees are set at a level consistent with the principles of
* full cost recovery. This will enable the Department to maintain an acceptable level of
customer service, which requires a combination of American citizen staffing as consular
associates as well as other staffing efforts to increase the effectiveness of foreign national
I support personnel. These efforts are also funded as part of the Border Security Program.
Finally, the Department will begin to finance the cost of furnishings, furniture and facilities
in selected consular activities through this program during FY 2000.
Q Border Crossing Card. The Border Crossing Card program is an integral and ongoing
responsibility of the Department of State. Funding for this program is distributed within this
I budget request on a functional basis. For example, Information Technology equipment for
this program will be funded as part of the Consular Systems Installation and Operations
budget activity. In the same fashion, salaries and benefits for American staff providing BCC
I services are now funded as part of the Border Security Staff activity.
Q Public Information Support. This program is key to improving overseas and domestic
customer service. In FY 2000 the Department is seeking to convert the existing 1-900
passport information system to a 1-800 system. This change is in response to repeated public
and congressional criticism of the use of 1-900 service by a government agency to provide
I basic information to the public. In addition, the Department will launch an effort to expand
its efforts to provide interested parties information on American Citizen Services and the visa
I function with call centers. These systems will utilize user-funded incoming telephone calls
and government-funded IVR systems and operators to respond to inquiries. Another element
of our effort to improve customer service overseas includes centralized financing of the
consular agents program under the Bureau of Consular Affairs. Consular agents are overseas
American citizens who provide limited consular support in areas where there is a significant
U.S. citizen population but no U.S. consulate or embassy is nearby. Support to consular
agents includes a modest salary and, in some cases, the provision of office space, support
43
STATE PROGRAMS "
personnel and automated systems needed to help ensure the effective delivery of consular I
services to American citizens. *
Q Document Integrity/Training/Anti-Fraud Programs. In FY 2000 and FY 2001, the i
Department will continue to make targeted investments to detect, combat and counter I
document fraud. We will continue efforts to train its personnel through the Foreign Service
Institute concerning both the operations and direction of modernized consular applications. |
Q Passport Operations. The Department of State is confronted each year with a steadily
increasing demand for passports. In FY 2000 the Department projects that passport demand i
may exceed 7.0 million and that total demand will increase to 7.3 million in
FY 2001. Consistent with the Administration's commitments to public/private partnerships
and controlling federal employment, virtually all production employees resulting from this I
growth in demand will be obtained through contractual means. I
Q Passport Facilities. A nationwide array of passport facilities generates a continuing *
requirement to cover renovations, maintenance, utility costs and rents. However, overall I
needs in this area have decreased considerably since F Y 1999 as the Bureau of Consular
Affairs completes a series of infrastructure and security enhancements at the passport
agencies. I
Q Charleston Passport Center (CPC). Construction of the CPC will be completed early in
calendar year 2000. Passport production is slated to begin in the second quarter CY 2000. It I
is important to note, however, that this facility will be brought "on line" over time and
consistent with increasing demand for passport production. «
Q Passport Photodigitization. As of December 1999, the two largest passport production I
agencies (National Passport Center and New Orleans) have had photodigitization installed
successfully. Further enhancements to certain software features of this system are currently I
underway. Serial installation of this highly secures production system at the remaining 14 '
sites resumed early this year. In order to avoid significant disruptions to passport
production, and thus adverse effects on customer service, installation of photodigitization I
will extend throughout all of FY 2000 and much of FY 2001. Furthermore, please note that a
significant portion of the costs of photodigitization were funded in FY 1999 using proceeds .
of the Passport Expedite Fee program and consistent with legislation enacted as part of the I
FY 1999 authorization bill for the Department.
Q TIPOFF. The Department will continue to serve as a critical interface between the I
intelligence and law enforcement communities in order to strengthen U.S. border security. '
This is done through the TIPOFF program that makes available to overseas consular officers
and inspectors at ports-of-entry highly sensitive information concerning terrorists and I
international organized crime members.
Q Visa Processing - Affidavit of Support. The Illegal Immigration and Immigrant j
Responsibility Act of 1996 imposed a variety of new procedures. One of these is the '
Affidavit of Support (AOS). The AOS procedure means that the petitioner who is sponsoring
an alien's immigration must have income and assets that amount to more than 125 percent of I
the federal poverty guidelines for a family that includes both the petitioner's and the alien's. '
The objective of this procedure is to reduce utilization of public assistance by immigrants by
44 I
STATE PROGRAMS
making the petitioner legally responsible for the alien and his/her family. The AOS is a form
developed by the INS that seeks to quantify the petitioner's income and assets.
The AOS procedure has had a dramatic effect on overseas immigrant visa processing. Some
posts are now denying immigrant visas to as many as 90 percent of the applicants, owing
either to errors in the AOS or an inability to meet the 125 percent test. Such denials of
immigrant visas are time consuming for both Foreign Service national employees and the
officers who adjudicate the immigrant visa application.
To help reduce the overseas staffing implications of the AOS, the Department is beginning to
perform much of the AOS processing at the National Visa Center (NVC) in Portsmouth, NH.
In addition, the Department is working with the INS and the Internal Revenue Service to
make changes to the AOS procedure that should make it easier for petitioners to complete the
AOS and for Department of State personnel to review the form. This pilot program will
continue throughout FY 2000. In the FY 2000-2001 authorization and FY 2000
appropriation, the Congress authorized the Department of State to implement a new cost-
based fee to recover the cost to the Department of the AOS process, and to collect and retain
AOS fees. We plan to implement that fee in the spring. By the end of FY 2001 , we
anticipate this program to be fully supported by the new AOS fee.
Diplomatic Security: 54,322,000

Q Passport and Visa Fraud Investigative Support. The Bureau of Diplomatic Security has an
aggressive program to investigate visa and passport fraud. Such investigations are essential
to maintain the security of the underlying consular functions. Costs associated with these
activities are financed through this program.
Q Passport Agency Guard Program. In the aftermath of the Oklahoma City bombing, the
Bureau of Consular Affairs, working in conjunction with the Bureau of Diplomatic Security,
began to make fundamental improvements to security at the passport agencies. A key feature
has been increasing the number of guards at each agency and their training. The Bureau of
Consular Affairs reimburses DS for all direct costs associated with this program.
Technology Backbone: $17,500,000

Q Information Resource Management: Computer Systems and Operations. Effective and
sophisticated information management systems are essential elements of the Department's
Border Security Program. In FY 2000 the Department plans to secure, consistent with the
requirements of Presidential Decision Directive 63, redundant mainframe computer
processing to support CLASS-E. In FY 2001 projected growth in the CLASS-E databases
and the effects of new namecheck algorithms for Russo-Slavic and Hispanic names will
generate the need for additional mainframe computer capacity on the production system at
the Beltsville Information Management Center. All additional capacity, as well as associated
software requirements, will be funded through this budget initiative.
45
STATE PROGRAMS H
Q Telecommunications Services. Without effective and worldwide telecommunications M
circuits, the Border Security program would be crippled: Namechecks could not be run; •
fingerprint files in support of the Border Crossing Card program would not be transmitted;
and the "DataShare" initiative with other border security agencies would fail. MRV revenues I
finance circuitry lease costs and related support activities directly related to the workload
imposed by the Border Security program. Unlike prior years, however, these funds will no a
longer be provided directed to the Diplomatic Telecommunications Service-Program Office
(DTS-PO). Instead, these funds will be transferred to the Information Resource Management
Bureau that is assuming a central management function on behalf of the Department of State
regarding overseas circuit requirements and associated costs. I
Border Security Staff and Support Costs: $195,005,000 I
Q Border Security Staff. Adequate staff that is well trained and assigned where needed in light _
of workload requirements provide the final key element of the U.S. Border Security Program. |
In FY 2000 the Department of State will finance the salaries and benefits of nearly 2,000
American employees who provide consular and related services, either domestically or •
overseas. These positions provide a variety of services including overseas visa services, |
American citizen services, domestic passport adjudication, consular management,
investigations of passport and visa fraud, and management of information resources. In FY I
2001 the projected number of positions that will be funded as part of the Border Security I
Program will increase to 1,990 positions. This reflects the staffing consequences of projected
workload increases in terms of visa applications, passport adjudications, citizen services and I
associated management issues. •
Q Border Security Support. Direct operating costs related to passport production, such as the •
printing of the highly secure U.S. passport books, expendable supplies associated with |
passport photodigitization, file miniaturization and storage, and other operating expenses in
support of the passport management, adjudication and production processes are financed as I
part of the Border Security Program. Support is also provided to the other bureaus and I
offices that play a vital role in strengthening the Nation's border security. In this regard a
key element of the program in FY 2000 and beyond will be the continuing need to help I
finance the cost of the Border Crossing Card program in Mexico and limited start-up costs '
needed to establish new consular positions overseas where workload requires. Such costs
include initial housing and furnishings, initial post assignment travel to post and per diem for I
new officers trained at the FSI.
During FY 2000 we plan to use some of the MRV fee to help build consular sections in I
Monterrey and Guadalajara which requires expansion of the consular area as a direct result of
the BCC requirements. i
Using fees for these purposes is consistent with current law that allows the Department of
State to retain MRV fees to recover the costs of providing consular services. Without these f
fees, it would be impossible for the Department to continue to provide these vital services to I
American citizens and foreigners desiring to visit or immigrate to the United States. The cost
46 '
STATE PROGRAMS
of providing this support in FY 2000 is estimated at $184 million. The comparable estimate
for FY 2001 is $195 million.
BCC Reimbursement to the INS: $28,000,000

I Q BCC Card Production Costs. The Department of State reimburses INS for the cost of
f producing Border Crossing Cards issued to Mexican nationals consistent with the
requirements of section 104 of the Illegal Immigration and Immigrant Responsibility Act of
1996. This reimbursement arrangement is consistent with a Memorandum of Understanding
1 between the two agencies. The reimbursement is funded from fees paid by Mexican
nationals to obtain a BCC. The Department of State estimates that it will reimburse the INS
approximately $25 million in FY 2000 and $28 million in FY 2001 in exchange for the
( provision of this crucial service. This reimbursement, while obtained from these fees, is
considered for the purposes of the Border Security Program to be a direct transfer to the INS
I and is not included in relevant tables and charts that summarize the Border Security Program.
I
I
47
STATE PROGRAMS
The Department continues its comprehensive strategy to strengthen U.S. border security through
improvements in consular systems and programs. The Machine-Readable Visa (MRV)
application fee paid by persons seeking non-immigrant visas generates funding for this program.
The objectives of the border security program are as follows:
effectiveness and efficiency of namecheck systems by providing consular or passport
officials responsible for adjudicating passport or visa applications with any relevant
information the U.S. holds regarding that applicant.
warehousing between overseas posts and the Department of State. Provide American citizens
the service they expect and demand by improving facilities and services to meet growing
workload and the legitimate demand of our customers.
Q Connectivity. Provide worldwide and redundant connectivity hi support of passport and visa
management.
passport services, address seasonal workload peaks, make systematic and major investments
in our consular, passport, and support personnel by providing them training on the systems
and processes that will support consular operations into the next century.
through improvements to the documents themselves, enhancements hi information storage
investigate any indications of fraud.
December 2000, accomplishments include:
Q Operating successfully at all visa-issuing posts the MRV-2 system. The Department is
initiating a project to add an imaging capability to the system. During FY 2001, we will pilot
this capability, with the scanning of refusal files as our number one priority.
Q Enhancing our CLASS-E namecheck system via the implementation of a tailored algorithm
for Russo-Slavic names. A Hispanic algorithm was developed and implemented in FY 2001.
A new mainframe was installed for CLASS, thus assuring us adequate processing power as
workload and the CLASS database size gradually increase.
Q Implementing the Border Crossing Card (BCCs) as demonstrated by issuing an additional 2.0
million biometric and machine-readable BCCs as of the end of FY 2000. The program to
replace old-style, non-biometric cards will continue until FY 2004, at which time every
Mexican visitor to the U.S. will enter by using this highly secure travel document.
49
STATE PROGRAMS
Q Implementing successfully the passport photodigitization system, TDIS-PD. To date, TDIS-
PD is installed at 10 of our 16 domestic passport agencies; with a targeted completion date of
the end of 2001. Progress continues on the PRISM (Passport Records Information Systems
Management) System, with plans to make passport records available worldwide via our
internal Intranet during FY 2001.
Q Processing and issuing a record total of 7.29 million passports in FY 2000 with expectations
that passport issuance will exceed 7.8 million in FY 2001. We project 8.4 million issuances
in FY 2002.
Q Supporting the worldwide installation of the ALMA system and the acquisition of additional
communications bandwidth to support overseas consular operations.
Q Financing the salaries of over 2,000 Department employees and all consular associates and
consular agents. The program continues to finance off-site bank collections, peak season
staffing as well as consular best practices.
Q Supporting Diplomatic Security investigations of visa and passport fraud.
Q Expanding training for officers and support personnel responsible for the delivery of consular
services, domestically and overseas.
The following chart summarizes the major activities of the Border Security Program. These
activities continue to be financed in their entirety by MRV fee collections. Estimated new fee
collections are $368 million in FY 2001 and FY 2002 respectively. Estimated carryforward
balances are $112 million in FY 2001, and $66 million in FY 2002. Carry -forward balances are
essential to ensure smooth financial operations at the beginning of each fiscal year.
50
STATE PROGRAMS
FY2000 FY2001 FY2002

Border Security Initiatives Actual Estimate Request
sular Project Initiatives
Consular Systems Install & Operations $23,700 $30,000 $30,000
Consular Systems & Modernization/Support 32,350 35,725 34,000
Automated Namecheck Systems: CLASS E-/DNS 9,500 10,000 10,000
Public Information Support 2,000 5,000 5,000
Document Integrity, Training, Anti-Fraud Programs 1,090 5,282 5,111
Passport Facilities 4,405 1,512 2,362
Charleston Passport Center 2,016
Passport Photoditization & Systems Support 2,199 20,941 18,761
TIPOFF-Terrorism and Crime 849 1,050 1,400
Visa Processing 2,350 9,105 7,220
American Citizen Services - 1,111 550
Subtotal, Consular Project Initiatives $1 12,570 $162,500 $168,938
lomatic Security
Passport and Visa Fraud
Investigative Support/Agency Guards 4,124 4,858 5,358
'inology Backbone - Irm
Information Resource Management Computer
Systems and Operations
Diplomatic Telecommunications Support 19,550 17,500 19,000
Total, Project Initiatives $136,244 $184,858 $193,296
r
u security Staff and Support
rseas Staff 68,901 72,102 76,428
Subtotal, Border Security Staff 130,724 137,690 145,940
der Security Support

Diplomatic Security 850 868 868 •>' 7
Western Hemisphere 3,700 5,255 5,518
Foreign Building Operations 3,000 - -
Subtotal, Border Security Support 55,096 68,390, 74,938 ;
Total, Border Security Staff and Support 165,288 ,205,170 --2-247844- 2- ~; o <- '
/ _—— ,- •-,
»1, Border Security Program $322,064 .' $390,938 $414,174
c
; f
t
51
STATE PROGRAMS
continuing effort to improve U.S. border:
Consular Project Initiatives: $168,938,000

Q Consular Systems Installation and Operations. The Department will continue its migration
efforts towards a sophisticated equipment replacement program that will be augmented by
regular on-site training programs. The objective of this activity is to ensure that worldwide
consular sections are equipped with the business-quality hardware needed by consular
personnel to deliver effectively and efficiently consular services. This program will prevent
technological obsolescence in the equipment and systems that help secure the U.S. borders by
replacing such equipment on a 36-month cycle. In addition, regular training of new hires and
refresher training for consular personnel on modernized systems is necessary to maximize the
use and maintenance of the systems. Extensive training will be provided to overseas staff to
ensure their proficiency with the modernized Non-Immigrant, Immigrant and American
Citizens Services applications. This training will require coordination with the National
Foreign Affairs Training Center, and will also involve remote and computer-based training
(CBT) as well as hands-on training by visiting experts.
Q Overseas Consular Systems Modernization/Support. The Department of State depends upon
a series of sophisticated systems to help deliver consular services to both American citizens
and foreign nationals. Such software, which supports visa issuance and overseas citizen
underlying computer technology upon which the applications operate, and continuing
requirements for improvements or new functionality. In FY 2001 and FY 2002, we will
develop a system to track international adoption cases. We will incorporate more electronic
capabilities into our visa processing, such as scanning refusal files and expanded electronic
data capture. We will work toward reengineering of the immigrant visa process and
elimination of some of the paper processing of these cases. In FY 2001 and FY 2002, we
will, in collaboration with the Department of Justice and the Salt Lake Olympic Organizing
Committee, complete development of a electronic visa issuance systems for accredited
members of Olympic teams traveling to Salt Lake City for the Winter Games in 2002. In F Y
2001 we completed the electronic "replication" or copying of all consular data from our 225
overseas posts to our corporate database, the Consular Consolidated Database. In FY 2001
and 2002 we will continue to develop "data mining" tools to draw the greatest benefits from
this data, particularly in fraud prevention and improved management. We plan to make visa
data available to other border security and law enforcement agencies, particularly the
Immigration and Naturalization Service. This "DataShare" initiative will strengthen
information sharing among agencies, which is key to continuing to improve border security.
The Bureau of Consular Affairs will continue to support such essential operations as a "help
desk" and remote management practices to help support worldwide consular operations.
52
STATE PROGRAMS
N Finally, the Department will also pursue improvements in overseas passport production and ~
improvements in machine readable visa design and printing. . 2j
Q Automated Namecheck Systems (CLASS). The Consular Lookout and Support System- >
Enhanced (CLASS-E) contains the names and other biographical information on more than j 3_
six million aliens who may be excludable from the U.S. owing to links to international .3
terrorism, crime, and narco-trafficking activities, or whose admission to the U.S. may violate 2,
other provisions of U.S. immigration law. In addition, CLASS-E contains information on
about 3 million Americans who may be ineligible for a U.S. passport. Most of the names of ^_
American citizens are included in response to requirements of U.S. law that deny certain
"deadbeat parents" a U.S. passport. Every person seeking a passport or visa is checked i ,
against CLASS-E. The Department will continue to make targeted investments to improve i-
the namechecking capabilities of CLASS-E. Furthermore, and consistent with the \
requirements of PDD-63, the Department of State has made major investments to secure [^
redundancy in the mainframe computer capability required to support CLASS-E. We plan to • ,
complete a database of lost and stolen U.S. passports and the capacity to check this database : i
as part of the reissuance of the passport process. In FY 2001 and 2002 we plan to complete :
development of a system to better track U.S. passport fraud lookouts, and make the lookout • i
files available on-line to passport agencies and overseas posts. We also plan to improve our ' j
PC-based back-up namechecking system to provide more robust searches and real-time j ;
updates of the back-up database. : j
• i
Q MRV Support Costs. The Department utilizes a portion of MRV revenue to finance border |
security related expenses such as additional staffing at post, and operating costs in support of \t an
support costs for consular associates and agents as well as bank fees incurred when overseas : |
financial institutions collect MRV fee revenues. This practice of "off-site" fee collection ' j"
reduces crowding around overseas consular sections and thus offers significant security and
customer service advantages. The Department will continue to finance the cost of
furnishings, furniture and facilities at selected overseas consular sections and utility expenses
and maintenance costs for certain domestic facilities through this program during FY 2002.
Q Public Information Support. To improve our customer services, we will continue to enhance
our public information efforts. This program began in FY 2000, with the initiation of a
requirement analysis to identify the type of public information services we should be if
providing. In FY 2001, we plan to establish call centers for all consular services in order to ; |
meet the needs of our customers. These centers will operate through a cost-sharing |
relationship between the caller, who will be responsible for any long distance calling charges, |j
and the Department that will fund all other costs (i.e. customer service representatives, voice J
response systems, e-mail systems) associated with the call centers. *
Q Document Integrity/Training/Anti-Fraud Programs. In FY 2001 and FY 2002, the M
Department will continue to make targeted investments to detect, combat and counter 3,
document fraud. We will continue efforts to train personnel at the Foreign Service Institute »
through anti-fraud programs. %
t/2
tt>
n
53
STATE PROGRAMS
Q Passport Operations. The Department of State is confronted each year with a steadily
increasing demand for passports. In FY 2001 the Department projects that passport demand
may exceed 7.8 million and that total demand will increase to as much as 8.4 million in
FY 2002. These estimates for passport demand are, of course, highly dependent upon
variables such as US economic growth, international air fares and the frequency of major acts
of terrorism or international crime, both of which tend to reduce the demand for international
travel. Consistent with the Administration's commitments to public/private partnerships and
controlling federal employment, virtually all production employees resulting from this
growth in demand will be obtained through contractual means.
Q Passport Facilities. A nationwide array of passport facilities generates a continuing
requirement to cover renovations, maintenance, utility costs and rents. However, overall
needs in this area have decreased considerably as the Bureau of Consular Affairs completes a
series of infrastructure and security enhancements at the passport agencies.
Q Passport Photodigitization. By early in F Y-02 photodigitization will be operational at all
domestic passport production facilities. During FY-02 the Department will expand further its
use of the Passport Records Imaging System Management (PRISM) system to make images
passport application records available electronically to overseas posts in addition to domestic
passport agencies.
Q. TIPOFF. The Department will continue to serve as a critical interface between the
intelligence and law enforcement communities in order to strengthen U.S. border security.
This is done through the TIPOFF program that makes available to overseas consular officers
and inspectors at ports-of-entry digests of highly sensitive information concerning terrorists
and international organized crime members. In accordance with bilateral agreements,
selected biographic watch list information on suspected terrorists is also shared with
corresponding Canadian and Australian consular and port of entry officials.
Q Visa Processing - We will continue to use MRV fees to support legislatively mandated visa
programs such as the Affidavit of Support (AOS) and Legal Immigration Facilitation and
Entry (LIFE) programs. The AOS procedure means that the petitioner who is sponsoring an
alien's immigration must have income and assets that amount to more than 125 percent of
the federal poverty guidelines for a family that includes both the petitioner's and the alien's.
The objective of this procedure is to reduce utilization of public assistance by immigrants by
making the petitioner legally responsible for the alien and his/her family. The AOS is a form
developed by the INS that seeks to quantify the petitioner's income and assets.
a To help reduce the overseas staffing implications of the AOS, the Department began
performing much of the AOS processing at the National Visa Center (NVC) in Portsmouth,
NH. In January 2001, the Department began collecting and retaining a new fee to support the
Affidavit of Support Program. However, sufficient revenues have not been collected to fully
meet all program requirements. Therefore, we plan to continue supplementing this program
with MRV revenues through FY 2002
a The LIFE program is new legislation in 2001 that creates a new visa category. This category
was designed to facilitate the entry the to United States of spouses and children of permanent
54
STATE PROGRAMS
resident aliens. This program will continue in 2002. MRV funding in FY 2001 and 2002 will
be used to implement this program.
a American Citizen Services - American Citizen Services - Funding is required to support the
Bureau of Consular Affairs' Children's Issues Unit and Crisis Management Program.
Funding will support the workload associated with the Hague Convention on International
Adoptions. The Hague Convention on International Adoptions, which has now been ratified
by the US, assigns responsibility to the Department for accreditation of adoption agencies
working internationally. This budget request seeks the resources to meet our treaty
obligations and responsibilities. We are also seeking resources to meet the increasing |
workload of international abductions. Additional staffing will also improve our ability to
assist Americans caught up in crises abroad.
Diplomatic Security: $5358,000

Q Passport and Visa Fraud Investigative Support. The Bureau of Diplomatic Security continues
the aggressive program that investigates visa and passport fraud. These investigations are
essential to maintain the security of the underlying consular functions, and are financed
through this program.
Q Passport Agency Guard Program. The budget for Diplomatic Security is a continuation of
on-going projects and initiatives. A key feature has been providing necessary training and
physical security for our passport agencies the National Visa Center and the Kentucky
Consular Center. The Bureau of Consular Affairs reimburses DS for all direct costs
associated with this program.

Q Information Resource Management: Computer Systems and Operations. Effective and
sophisticated information management systems are essential elements of the Department's
Border Security Program. In FY 2002, the Department plans to continue mainframe systems
support for CLASS-E, support round the clock operations and maintenance, enhance
connectivity and provide systems upgrades.
Q Telecommunications Services. Without effective and worldwide telecommunications
circuits, the Border Security program would be crippled: namechecks could not be run;
fingerprint files in support of the Border Crossing Card program would not be transmitted;
and the "DataShare" initiative with other border security agencies would fail. MRV revenues
finance circuitry lease costs and related support activities directly related to the workload
imposed by the Border Security program.
VI
V-
n
e
55
STATE PROGRAMS
Border Security Staff and Support Costs: $224,814,000
Q Border Security Staff. Adequate staff that is well trained and assigned where needed in light
of workload requirements provide the final key element of the U.S. Border Security Program.
In FY 2001 the Department of State will finance the salaries and benefits of more than 2,059
American employees who provide consular and related services domestically or overseas.
These positions provide a variety of services including overseas visa services, American
citizen services, domestic passport adjudication, consular management, investigations of
passport and visa fraud, and management of information resources. In FY 2002, the
projected number of employees that will be funded as part of the Border Security Program
will increase to 2,130. This reflects the staffing consequences of projected workload
increases in terms of visa applications, passport adjudications, citizen services and associated
management issues.
a Border Security Support. Direct operating costs related to passport production, such as the
printing of the highly secure U.S. passport books, expendable supplies associated with
passport photodigitization, Passport Records Imaging System Management (PRISM), and
other operating expenses in support of the passport management, adjudication and production
processes are financed as part of the Border Security Program. Support is also provided to
other bureaus within the Department that play a vital role in strengthening the Nation's
border security. In this regard a key element of the program is the continuing need to help
finance the cost of the Border Crossing Card program in Mexico and limited start-up costs
and recurring costs associated with hiring additional consular officer positions to meet
increasing workload demands.
BCC Reimbursement to the INS: 526,520,000

Q BCC Card Production Costs. The Department of State reimburses INS for the cost of
producing Border Crossing Cards issued to Mexican nationals consistent with the
requirements of section 104 of the Illegal Immigration and Immigrant Responsibility Act of
1996. This reimbursement arrangement is consistent with a Memorandum of Understanding
between the two agencies. The reimbursement is funded from fees paid by Mexican
nationals to obtain a BCC. The Department of State estimates it will reimburse the INS
approximately $26.5 million in FY 2001 and FY 2002 in exchange for the provision of this
crucial service. This reimbursement, while obtained from these fees, is considered for the
purposes of the Border Security Program to be a direct transfer to the INS and is not included
in relevant tables and charts that summarize the Border Security Program.
56
STATE PROGRAMS

In the aftermath of the tragic events of September 11, the Department continues to implement its
comprehensive strategy to strengthen U.S. border security through improvements in consular
systems and programs. The Border Security program is fully funded from the Machine-Readable
Visa (MRV) application fee paid by persons seeking nonimmigrant visas. This program serves
as one of the key elements in the Department's goal to protect American citizens and safeguard
the nation's borders. The program's objectives are as follows:
effectiveness and efficiency of namecheck systems by providing consular or passport
officials responsible for adjudicating passport or visa applications with any relevant
information the U.S. holds or receives from other governments regarding that applicant.
warehousing between overseas posts and the Department of State. Provide American citizens
the service they expect and demand by improving facilities and services to meet growing
workload and the legitimate demand of our customers. Ensure the redundancy of critical
consular systems and infrastructure. Continue to make targeted investments allowing for
enhanced support to overseas consular operations from U.S. domestic facilities.
issuance, including sufficient bandwidth to support the Consolidated Consular Database and
other data sharing and remote systems management initiatives.
passport services, especially in the aftermath of the events of September 11, address seasonal
workload peaks, make systematic and major investments in our consular, passport, and
support personnel by providing them training on the systems and processes that will support
consular operations, including specialized training on the consular namecheck system.
through improvements to the documents themselves, enhancements in information storage
investigate any indications of fraud.
The following chart summarizes the major activities of the Border Security Program.
48
STATE PROGRAMS

FY2001 FY2002 FY2003

Program Activity Actual Estimate Request
CONSULAR PROJECT INITIATIVES
Overseas Consular Systems Install & Operations $30,000 $32,000 $33,000
Overseas Consular Systems Modernization & Support 35,725 48,950 55,100
Automated Namecheck Systems: CLASS-E 10,000 19,500 18,000
Public Information Support x 5,000 5,000 10,000
Document Integrity/Training/Anti-Fraud Programs / 5,282 5,450 9,667 Cl'
Passport Systems 20,941 22,000 24,500
TIPPOFF-Terrorism and Crime 1,050 4,125 3,360
American Citizen Services 1,111 2,915 2,000
A Bureau Facilities Management-Processing Center 450 4,456 972
Subtotal, Consular Project Initiatives 162,900 224,746 275,755
Diplomatic Security
Passport & Visa Fraud Investigative Support/Agency Guards 4,858 7,475 8,994
Technology Backbone - IRM
Information Resource Management Computer Systems and 17,500 19,910 24,000
Operations/Diplomatic Telecommunications Support
TOTAL, PROJECT INITIATIVES 185,258 252,131 308,749
BORDER SECURITY AND STAFF SUPPORT

Overseas Staff 72,102 76,733 85,162
Subtotal, Border Security Staff 137,690 147,831 159,880
6
Consular Affairs 57,783 58,168 67,150 ul
;'
Western Hemisphere 5,255 2,000 2,000
MRV Fees: Border Security Staff & Support - D&CP Transfer - - 100,000
Subtotal, Border Security Support 67,990 65,120 174,102
TOTAL, BORDER SECURITY STAFF & SUPPORT 205,680 212,951 333,982
TOTAL, BORDER SECURITY PROGRAM $390,938 $465,082 $642,731

Excludes reimbursement to INS for Border Crossing Card Program ($26.52 million).
49
STATE PROGRAMS
continuing effort to improve U.S. borders, especially in order to prevent the entry of terrorists or
others intending to engage in criminal activity in the United States:
Consular Project Initiatives: $275,755,000
Overseas Consular Systems Installation and Operations - $33,000,000:

In FY 2002 and FY 2003, and in response to the evolving domestic and international security
situation, we will continue to make systematic investments in consular systems to ensure that our
personnel in the field have the equipment and training that they need to serve effectively as the
outermost ring of the U.S. border security system.
We will continue our three-year equipment replacement cycle for consular systems, both
domestically and overseas. We will provide regular refresher training visits at all Foreign
Service posts and appropriate domestic offices. The purpose of this training is to ensure that all
consular personnel are knowledgeable and can work effectively with all our consular modernized
systems. Refresher training is conducted on a 12 to 18-month cycle. We will also maintain the
overseas support desk to serve as an interface between the field and domestic support offices.
We have several new equipment needs coming up in the next two fiscal years, including:
scanning equipment and back-up server/workstations for all posts; new computer workstations
for the redesigned automated cash register system (ACRS) and equipment to support the back-up
namechecking system. Consistent with our commitment to provide highly secure and
sophisticated travel documents, we will procure new ink jet printers, as we convert from laser-
printed visa foils to a more secure process that relies on inkjet printer technology. In addition,
new electronic cameras will be needed as we deal with industry-driven changes and plans to
expand the capture of photos to include all nonimmigrant visa cases. To strengthen further U.S.
border security, we will begin during FY 2002 to scan the applications of those aliens who are
refused U.S. visas. In addition, we will also scan all backup files of those aliens whose visas
were refused on the basis of serious ineligibilities (drug trafficking, health, national security,
terrorist activities, fraud, etc.). Integrating this information into the Consolidated Consular
Database, and taking advantage of continued developments regarding facial recognition, should
result in further enhancements to the effectiveness of the U.S. border security system. Finally,
we will begin implementation of a system that will provide Americans abroad with
photodigitized passports.
Overseas Consular Systems Modernization and Support - $55,100,000:
This program activity involves providing automation support to all consular systems overseas
and domestically, as well as conducting the research and development necessary to keep our
systems state-of the-art and to take advantages of the potential border security implications of
newly emerging technologies.
In FY 2002 and FY 2003, we plan to aggressively expand the data in the Consular Consolidated
Database (CCD) the value of which has been repeatedly demonstrated in the aftermath of
September 11. Currently, the CCD contains electronic copies of more than 50 million visas as
50
STATE PROGRAMS
well as the photographs of some 18 million aliens who received visas. This database is now
open for worldwide access and allows for faster exchange of information between Washington
and overseas posts. Data from this corporate database is being shared with the Immigration and
Naturalization Service (INS). In return, we hope to include case materials and other information
relevant to visa processing from these agencies. As a result of the September 11 terrorist attacks,
we plan to accelerate research into facial recognition programs and develop the capability to
compare photographs of suspected terrorists to those of visa applicants. As part of this effort, we
will work with other agencies to expand the pool of photographs available for this use. We are
initiating this effort in FY 2002.
As required under the Hague Convention on International Adoptions, we will add additional
functionality to existing consular systems to monitor all incoming and outgoing international
adoption cases. We also plan to re-engineer the systems that provide support to our American
Citizen Services activities. To make existing visa systems and underlying business processes
more efficient and effective, we plan to integrate overseas and domestic visa systems in a way
that will streamline the process of immigrant visa control and statistical reporting. In addition,
we plan to replace the existing Automated Cash Register System (ACRS) with a new system that
is fully integrated with other modernized consular applications.
We will continue to ensure that all consular systems are in conformance with the Department's
security guidelines. We will have sophisticated testing of the security aspects of our software
undertaken by internationally recognized experts such as the Sandia National Laboratories. We
will continue to ensure the integrity and quality control of our software development efforts
through an independent verification and validation process. We will continue to provide quick
resolution to problems of various technical complexity through our operational support and
maintenance initiative. To provide the controls necessary for organized systems maintenance,
we will continue our configuration management activities. In the next two years, we will
continue to provide domestic system support in the areas of computer security, asset
management, user support, e-mail, domestic systems modernization and maintenance, and
application training.
Automated Namecheck Systems (CLASS) - $18,000,000:
The Consular Lookout and Support System (CLASS) is the centerpiece of the consular Border
Security program. It includes over 5.8 million visa lookout records and over 3 million passport
records. In FY 2002, and consistent with the authorities provided by section 403 of the USA
PATRIOT ACT, we are prepared to receive another 3 million additional lookout records from
the FBI. We also plan to introduce selected photographs into the CLASS database. As a
mission critical system, security regarding the transmission of CLASS data and access to CLASS
service is a major consideration. Therefore, we will implement a fully redundant CLASS
system at a remote location from Washington that will ensure full disaster recovery and systems
availability at all times. In addition, we plan to replace a current field back-up system (the
Distributed Namecheck System) with a real-time Back-up Namecheck System (BNS). The BNS
will use remote telecommunication management tools and techniques that can provide immediate
system support when telecommunication lines are down. We will pilot this system in FY 2002.
51
STATE PROGRAMS
The CLASS system provides the Department with the ability to perform namechecks using
linguistic algorithms. Arabic and Russo/Slavic algorithms are now in place and in FY 2002 we
will complete the worldwide deployment of the Hispanic algorithm. Our next focus is to develop
an algorithm based on Asian languages.
MRV Support Costs - $38,275,000:
The Department will continue to use MRV fees to pay for bank charges associated with off-site
bank collections and temporary staffing needs (such as temporary duty (TDY) assistance and
hiring local personnel) to help posts meet their workload requirements. In FY 2001, the
Department funded 33 work years in TDY assistance. As in previous fiscal years, we will
support those posts facing major productivity or infrastructure issues by funding limited
procurement and installation of furniture and furnishings. In FY 2002 and FY 2003, this budget
will continue to pay for the salaries and benefits of consular associates. We will also continue to
support consular agents by paying their salaries and benefits, purchasing consular agent "tool
kits" (consisting of a personal computer and office equipment, such as a fax machine and cellular
phone) and funding such costs as a portion of their health insurance. In addition, we will provide
support to Mexico, which has experienced a major workload increase as a result of the Border
Crossing Card Program.
Public Information Support - $10,000,000:

We will strengthen our public information efforts. This initiative will be contractor-operated and
will provide improved access to an integrated consular information system that provides
information for visas, passports, and assistance in completing affidavit of support forms. It will
also provide routine and non-Privacy Act information regarding the safety and welfare of
American citizens abroad. This funding will also enhance the operation of the current consular
information program by establishing contractor-operated customer contact centers that provide
information and respond to public inquiries on various consular matters
Document Integrity, Training and Anti-fraud Programs - $9,667,000:
The Department of State is committed to producing world-class quality travel documents that are
based on fraud-resistant consular processes. In response to the increasing sophistication of the
international travel document counterfeiting and forgery industry, the Department plans to
establish a forensic laboratory to detect and counter fraudulent U.S. and foreign travel
documents. This laboratory will provide an organic forensic document capability to the Bureau
of Consular Affairs in support of its international responsibilities.
The Department will also provide training to Foreign Service Nationals (FSN) and Foreign
Service Officers (FSO) assigned to fraud prevention units overseas. We will continue to
conduct workshops, prepare self-instructional guides, and issue publications. In addition, the
National Foreign Affairs Training Center conducts training for consular FSN's, FSO's, consular
agents, passport personnel and systems personnel who support consular systems. As a new
initiative in FY 2002, we will develop an extensive course on the Namecheck system.
52
STATE PROGRAMS
Passport Operations - $41,237,000:

The Department remains committed to meeting passport workload demand on a timely basis,
providing effective agency management and administration, strengthening internal controls and
fraud prevention, and ensuring quality customer service. The demand for U.S. passports is
affected by many factors, including the strength of the U.S. economy and the perception of
travelers about the international security situation. For FY-2002, the Department of State is
anticipating a passport workload of up to 6.9 million domestic applications. In FY 2003, we
expect this workload to increase to as many as 8 million applications. To meet these increases,
we plan to hire additional contract staff, particularly at the Charleston Passport Agency. We will
enhance our anti-fraud capabilities, particularly in the area of lost and stolen passports. We will
undertake an aggressive public service campaign to make citizens aware of the need to report
these passports.
In addition and in response to heightened concerns over the international terrorism situation, we
will take a number of steps to enhance the security of the U.S. passport system. In recognition of
the value to law enforcement and other users of scanned passport applications, the Department of
State will initiate a project to scan passport applications processed prior to the installation of the
photodigitization process into our PRISM database. We will also launch a long-term effort to
help ensure the security of the documents and processes, including those of acceptance agents,
that underpin the adjudication system for U.S. passports. This initiative is designed to strengthen
our defenses against the use of fraudulent documents as a basis for obtaining a U.S. passport.
Finally, we will explore the potential to shift some overseas passport production back to the
United States in order to take full advantage of the security features of the photodigitized U.S.
passport.
Passport Facilities - $17,400,000:
By the end of calendar year 2001, the five year initiative to renovate all passport agencies
concluded. All agencies now have modern security and an infrastructure capable of supporting
photodigitization technology. To protect this investment, we will establish a schedule to repair,
replace, and maintain the infrastructure at our facilities on a regular basis. As in prior years, we
will continue to fund the utility and facility maintenance expenses of the Charleston and
Portsmouth Passport facilities from this budget. In FY 2002, we will also develop plans for a
third passport megacenter to meet expected passport demand in the post 2005 period. We expect
to locate that facility in the western region of the U.S. We expect to begin construction of this
facility in 2003.
Passport Systems -$24,500,000:
In FY 2001, nearly 90 percent of all passports were produced using the photodigitization process.
In early FY 2002, we completed the rollout of photodigitizaton to all domestic passport agencies.
We plan to maintain this system by introducing a three-year replacement cycle of all passport
computer equipment, similar to our current three-year replacement cycle for overseas equipment.
In addition, we will install additional equipment at the Charleston Passport Center as part of our
overall plan to increase the capacity at that facility.
53
Modernization efforts in the next two fiscal years will focus on new and emerging technologies
in computer, communications, and materials handling environments, including the capture of
digital images, and the storing, transporting, and printing of multiple forms of data. Our goals are
to maintain our international leadership role in the technologies of producing the most secure
travel documents; to exceed security standards in both products and production methodologies;
and to meet the production demands of the American public. We plan to improve the image
quality of the digitized photo printout, allow for easier retrieval of information from our Consular
Lost and Stolen Passport database (CLASP), and make images of passport application records
available electronically to overseas posts through the use of the Passport Records Management
System (PRISM).
In compliance with electronic and information technology accessibility standards, we plan to

introduce new systems capabilities in the photodigitized travel document issuance system that
will aid passport employees with disabilities. Using state of the art optical storage technology,
we have replaced the antiquated microfilm process that was 20 years old and replaced it with
new technology that scans, stores and provides online availability of passport application records,
related documentation, and Consular Reports of Birth Abroad. In FY 2002, we intend to make
this data available online worldwide through our PRISM system. Finally, we will improve the
way we maintain, archive and retrieve all passport lookout files by digitizing the image of all
lookout documents. This database would be available throughout the passport files user
community.
TIPOFF-Terrorism Crime - $3,360,000:

The TIPOFF-Terrorism and Crime program is a vital counter terrorism/crime tool that enables
the use of sensitive intelligence to detect known persons of concern as they apply for U.S.,
Canadian or Australian visas. This information is made available to officials adjudicating visa
applications overseas or other personnel who serve at U.S. ports-of-entry. In FY 2002 and FY
2003, we will continue to fund the TIPOFF operation and will establish ties to other agencies
through the intelligence community's INTELINK system.
Visa Processing - $22,244,000:
The U.S. visa process has been under intense scrutiny in the aftermath of the terrorist attacks in
New York, Washington and Pennsylvania. A key element in strengthening further the visa
process is shifting more of the pre-adjudicatory visa process back to the United States where
access to corporate databases and other systems can help ensure that our overseas personnel have
the best information available as they make decisions on visa applications. For example, making
quality decisions on issuing certain employment-related visas may require access to credit
databases in the United States or even direct contact with the firm that is sponsoring the
immigrant. This access is difficult if the visa is being adjudicated from a location many time
zones from the U.S. To help redress this problem, the Department of State plans to shift as much
of the administrative work in the visa process as legal and practical limitations will allow to the
National Visa Center and Kentucky Consular Center. Specifically, we plan to expand the
Kentucky Consular Center and shift work related to the HI-B and student visa programs to that
facility. We plan to employ contract staff to help us implement these initiatives and to manage
54
STATE PROGRAMS
the workload shift. We will also continue to implement the Legal Immigration Family Equity
(LIFE) Act passed by Congress on December 15, 2000. This Act created new nonimmigrant V
and K visa classifications for which as many as half a million aliens may be eligible.
American Citizen Services - $2,000,000:
During FY 2002 and FY 2003, we will provide effective and consistent American Citizen
Services. Among our initiatives are plans to develop a comprehensive global Voting Assistance
Outreach program, to improve the facilities we use to operate Task Forces during a crisis, and to
upgrade our crisis management equipment (such as the purchase of laptops that are capable of
supporting our modernized crisis management software). We will continue to meet our treaty
obligations as the U.S. Central Authority for the Hague Convention on Intercountry Adoption
through informational assistance to prospective parents and adoption agencies and by working
with INS to track international adoption cases. We also plan to continue our efforts to assist
parents whose children have been abducted overseas. Finally, in response to any possible
terrorist threats, the Bureau of Consular Affairs will help finance the consular response capability
that will allow the Department to maintain crisis management operations.
Facilities Management-Processing Center - $972,000:
The Bureau of Administration will use Border Security Program funds for facility maintenance
and utility expenses at the Kentucky Consular Center. Increased funding will be needed in FY
2002 as we expand the Kentucky Consular Center to accommodate visa work that is shifted from
overseas to the U.S.
Diplomatic Security: $8,994,000
The Bureau of Diplomatic Security (DS) provides the necessary physical security for our
passport agencies, the Kentucky Consular Center, and the National Visa Center using Uniformed
Protection Officers. As in prior fiscal years, funding will be provided to DS to conduct criminal
investigations relating to illegal passport and visa issuance and use, and to continue the Russian
Business Investigative Initiative (RBII) which targets Russian organized crime and illegal
trafficking in women and children. In addition, funding will continue to be provided for the
travel of department personnel testifying at criminal trials. As a new initiative, MRV funds will
be used to help to design, develop and implement an integrated worldwide investigations
database to manage all DS criminal cases electronically and provide two-way datasharing with
CA and other U.S. enforcement agencies.

This budget provides the necessary funds for mainframe systems support for the CLASS system.
Support includes 24x7 operations and maintenance, enhanced connectivity, redundancy and
contingency operations and systems upgrades to meet CLASS-E expansion requirements. It also
includes support for redundant CLASS and CCD systems, which we will develop in FY 2002.
In addition, this budget includes funds for the continued telecommunications support, including
circuitry lease costs and other support costs directly related to the Border Security Program.
55
STATE PROGRAMS
Border Security Staff and Support Costs: $333,982,000
Border Security Staff- $159,880,000:

In FY 2002, the Border Security Program will fund the salaries and benefits of 2,157 full time
consular, DS and IRM employees, including 98 new consular positions--62 overseas and 36
domestic. Included in the overseas positions are 20 new officer positions to be hired as a result
of the September attacks. In addition, we plan to hire 50 new Foreign Service Nationals to
support the officer staff. In FY 2003, we propose hiring to fill an additional 98 full-time
positions, consisting of 70 overseas positions and 28 domestic positions. To support the overseas
officer staff, we will hire 63 new Foreign Service Nationals.
Border Security Support - $74,102,000:
Direct operating costs associated with passport and visa production are included in this budget.
These items include passport books and expendable supplies used in producing a photodigitized
passport as well as supplies used in the production of visas. In addition, we provide funds to key
bureaus that help us maintain on-going programs that support the Border Security Program. As
in prior years, the start-up and recurring costs for new consular positions are included in this
program activity, as are direct costs associated with the Border Crossing Card program.
MRV Fees: Border Security Staff and Support - $100,000,000:
In FY 2003, the Department plans to shift $100 million in consular operating expenses, for
overseas posts and the Bureau of Consular Affairs, currently funded by the Department's
Diplomatic and Consular Programs appropriation to funding by MRV fees within the Border
Security Program. This shift will mean that nearly all Consular Relations program activity full-
time American positions and Consular Relations program activity costs will be funded by MRV
fees.
BCC Reimbursement to INS: $26,520,000

Since FY 1999 we have reimbursed the INS for the cost of producing Border Crossing Cards
issued to Mexican nationals. This reimbursement, based on a Memorandum of Understanding
between the two agencies, is consistent with the requirements of section 104 of the Illegal
Immigration and Immigrant Responsibility Act of 1996. The reimbursement is considered a
direct transfer of revenue to INS and is not included in relevant tables and charts that summarize
the Border Security Program. In FY 2002 and FY 2003 we plan to reimburse the INS $26.52
million annually.
56
STATE PROGRAMS
The Department's Border Security Program, funded from the Machine Readable Visa (MRV)
application fee paid by persons seeking non-immigrant visas, is a critical element in the
Department of State's goal to protect American citizens and safeguard the nation's borders.
During FY 2003 and FY 2004, the Department will continue to analyze and review all
consular processes, policies and procedures, and seek ways to better protect the nation's
security in close collaboration with the Department of Homeland Security. Our border
security program strategy is focused on five major objectives:
Q Information. Enhance data sharing initiatives with other agencies and increase
the effectiveness and efficiency of namecheck systems by providing consular or
passport officials responsible for adjudicating passport or visa applications with
any relevant information the U.S. holds regarding that applicant. Information
sharing also facilitates the operations of other agencies by providing them access
to Department of State data.
Q Infrastructure. Strengthen consular and passport services by providing business
quality equipment, developing modernized software, implementing an effective
equipment replacement program, and instituting a comprehensive program of data
replication and data warehousing among overseas posts, the Department of State,
and other federal agencies. Provide American citizens the service they expect and
demand by improving facilities and services to meet growing workload and the
legitimate demand of our customers.
Q Connectivity. Provide worldwide and redundant connectivity in support of
passport and visa issuance, including sufficient bandwidth to support data sharing
and the transmission of electronic images, biometric information and passport
applications.
Q Human Resources. Meet the growing demand for overseas and domestic
consular and passport services, address seasonal workload peaks, make systematic
and major investments in our consular, passport, and support personnel by
providing them training on the systems and processes that will support consular
operations and enhance U.S. homeland security.
Q Integrity. Ensure the integrity of consular processes and products, through
improvements to the documents themselves, enhancements in information storage
and retrieval, expanded training of anti-fraud personnel and a comprehensive
program to investigate any indications of fraud.
The following chart summarizes the major activities of the Border Security Program.
52
STATE PROGRAMS

FY 2002 FY 2003 FY 2004
Program Activity Estimate Estimate Request
Consular Systems Install and Operations 32,000 31,000 36,000
Consular Systems Modernization and Support 43,950 70,100 105,600
Automated Namecheck Systems: CLASS 1 1,990 13,500 14,250
MRV Administrative Support 35,025 39,775 41,225
Public Information Support 1,050 5,000 5,000
Document Integrity/Fraud Programs 500 3,600 1,675
Consular Training 2,706 4,220 4,310
Passport Systems 22,000 28,700 44,500
American Citizen Services 2,915 2,000 2,100
TIPOFF-Terrorism and Crime 4,125 3,360 3,460
Kentucky Processing Center 4,966 1,700 1,750
Diplomatic Security
Investigative Support/Guards 7,475 9,040 9,380
Technology Backbone - IRM
IRM Computer Systems and Operations/Diplomatic 24,910 19,840 19,900
Telecommunications Support
Subtotal: Project Initiatives 231,808 281,075 366,920
Border Security Staff (American Salaries)

Bureau of Administration 54 55
Overseas Staff 77,369 SI, 767 90,515
Subtotal: Border Security Staff 146,881 180,196 192,898

Western Hemisphere Affairs (BCC) 2,000 2,000 2,000
Overseas Support 55,000 55,000
Subtotal: Border Security Support 61,523 155,550 176,195
Total Border Security Program 440,212 616,821 736,013

Excludes reimbursement to INS for Border Crossing Card Program (SI 8 million in FY03 andFY04)
53
STATE PROGRAMS
FY 2003/FY 2004 Border Security Program
Overseas Consular Systems Install and Operations: $36,000,000

In FY 2003 and FY 2004, we will continue our efforts to provide systems equipment and
on-site training to all consular officers worldwide. We will also continue our program of
upgrading both hardware and software on a routine basis. During FY 2003, we will operate
on a four-year equipment replacement cycle consistent with Department of State information
technology guidelines. Training of new hires and refresher training for consular personnel
will continue on an 18 to 24-month training schedule.
During FY 2003 and FY 2004, we plan to complete several major deployments, including the
introduction of a more secure visa, called the "Lincoln" visa. We will install a redesigned
Automated Cash Register System for consular fee collection as well as a new Back-Up
Namecheck system. This system features real-time update of local lookout files from the
Department's Consolidated Consular Database. We will purchase scanning equipment for
posts overseas so that they will be able to electronically capture data elements from selected
visa and passport applicants. In the area of American citizen services, we will support a web
registration application for American citizens. As in prior years, we will continue to operate
the Overseas Support Desk, which provides critical systems support to our overseas
operations on a 24-hour basis.
Overseas Consular Systems Modernization and Support: $105,600,000

Consular operations, which are heavily dependent upon information technologies to
conduct day-to-day business, require a high quality modernization and support effort.
As part of this effort, we will continue to improve access to information by consular
officers responsible for making visa adjudication decisions. A key tool used by visa
officers is the Consular Consolidated Database (CCD). As of January 2003, this
database contains files on more than 53 million applicants and 27 million photographs.
It provides case history records, as well as consular management information, and
plays a key role in the Department's efforts to strengthen U.S. homeland security as
well as its disaster recovery plans. In FY 2003 and FY 2004, we will expand the
CCD's capabilities to include the storage of biometric information. We will also
expand our efforts to share the CCD data with border security partners.
In FY 2003 and FY 2004, we will introduce web-based technologies to our non-

immigrant visa systems as well as those systems that support American citizen
services. We plan to introduce scanning technologies that will enable the Department
to replace paper files with image storage and retrieval. In accordance with the
requirements of the Enhanced Border Security Act and Visa Entry Reform Act, we
will introduce biometrics into the visa. To support the Department's role as the
Central Authority under the Hague Convention on International Adoptions, we will
develop additional functionality to existing systems to support the tracking and
monitoring of all incoming and outgoing international adoption cases. We will
continue to support and enhance the domestic automated systems used in the
processing of immigrant and selected non-immigrant visas at the Department's Visa
54
STATE PROGRAMS
Office, at the National Visa Center in New Hampshire, and the Kentucky Consular
Center.
Finally, we will continue to implement the Department's security guidelines as well as

continue our Independent Verification and Validation (IV&V) program, which is
devoted to testing and validating new software releases and communications interfaces
to other systems within and outside of the Department.
Automated Namecheck Systems: CLASS and BNS: $14,250,000

The Consular Lookout and Support System (CLASS) is the key security element in the visa
and passport adjudication process. The CLASS database consists of biographic information
on aliens who have been denied a U.S. visa or who may be excludable from the United States
because of their ties to international terrorism, drug trafficking, crime or national security
reasons, or owing to prior contact with U.S. enforcement agencies. The database also
includes biographic information on U.S. citizens currently ineligible for a U.S. passport. As a
result, the CLASS database has grown significantly during FY 2002 and now consists of 15
million records. We expect this database to grow during FY 2003 and FY 2004 as we
continue to expand and enhance CLASS. Among the enhancements will be the ability to
conduct identity checks on the basis of photos and other biometric features. The Department
will also continue development on linguistic algorithms against which names can be checked.
We currently have the linguistic algorithms for Arabic, Russo/Slavic and Hispanic names.
The establishment of an Asian algorithm is under review.
CLASS includes a back-up system for times when communications are unavailable between
remote locations and the mainframe database located in the U.S. The Backup Namecheck
System (BNS) will ensure that visa and passport production are uninterrupted. Furthermore,
and consistent with the Department's responsibilities for Critical Infrastructure Protection, a
second mainframe computer to support the CLASS system is being installed at the Kentucky
Consular Center and will be operational early in calendar year 2003.
MRV Support Costs: $41,225,000

The Department will continue to use MRV fees to finance administrative costs associated
with the Machine Readable Visa program and efforts to strengthen homeland security. These
efforts include paying for bank charges associated with off-site bank collections and
expanding data collection requirements associated with efforts to improve U.S. homeland
security. We will also continue to provide temporary staffing, such as temporary duty (TDY)
assistance, to meet staffing gaps, seasonal visa fluctuations, and work resulting from changes
in visa processing procedures. We will also provide funds for posts to hire local personnel to
help them meet their workload requirements. As in previous years, we will fund the limited
procurement and installation of furniture and furnishings for a select number of existing
consular facilities where the infrastructure is inadequate to sustain increased workloads and
staffing. We will also be upgrading microphones and signage in existing consular facilities.
In FY 2003 and FY 2004, this budget will continue to pay the salaries and benefits of consular
associates and Fascell Fellows performing consular-related duties. We will also continue to
support the consular agent program, paying the salaries and benefits of agents and providing a
55
STATE PROGRAMS
basic equipment toolkit to all agencies. We expect to open approximately five new consular
""" agencies in the next two years. Ongoing support to Mexico's Border Crossing Card Program
will continue. In FY 2003, we will conduct a study to examine our fee structure in light of
the changes in our processes, demand for consular services, and new national security
requirements. The purpose of this study is to determine whether our current fee structure
adequately and accurately captures all the costs associated with new security initiatives.
Public Information Support: $5,000,000

During FY 2003 and FY 2004, we will continue to strengthen our public information
efforts. We will enhance the operation of the current consular information program by
establishing customer contact centers, operated by third parties, that provide
information and respond to public inquiries on various consular matters. The call
centers will provide information on visas, passports and also provide routine and non-
Privacy Act information regarding the safety and welfare of American citizens abroad.
Document Integrity and Anti-Fraud Programs: $1,675,000

Recent events have only underscored the Bureau's assessment that document security, and the
detection of false documents, is vital to Border Security. We will continue to make targeted
investments designed to deter further attacks, to monitor technology leaps related to document
security, and to produce even more tamper-resistant documents. We will also continue our
efforts to provide anti-fraud training to all consular personnel. As in prior years, the
Department will provide training to staff assigned to fraud prevention units overseas. The
Department will continue to conduct workshops, prepare self-instructional guides, and issue
~~ publications on fraud trends and how to detect them.
FSI - Consular Training: $4,310,000

During FY 2004, the Foreign Service Institute will continue to conduct classes for consular
FSNs, FSOs, consular agents, passport staff and systems personnel who support consular
systems. Training for FSOs will include a special emphasis on Department's namecheck
system (CLASS).
Passport Operations: $29,820,000

Funds will be used to support on-going passport operations. We anticipate processing
7.1 million passport applications in FY 2003 and 7.6 million passports applications in
FY 2004. Since FY 2002, all passports issued by domestic passport agencies incorporate
. /1 printed digital photographs and security embedded in the book. These applications also
.. ,/ reflect recent policy decisions to shift most overseas passport production to the U.S. to ensure
\vV that all U.S. passports benefit from security advantages offered by the passport
v photodigitization process. As a result, any individual seeking a long-term passport overseas
"./. V: will now receive a photodigitized passport. In FY 2003 and FY 2004, we will continue our
"^ .y^ commitment to strengthen the passport document and processes against potential fraud. To
•\'! improve our ability to determine the validity of a passport application, we will convert into
digital images passport applications processed between 1994 and 1999 that were previously
microfilmed. These data images of valid passport holders will then be available to all posts
worldwide and to the passport agencies through the Department's application database,
56
STATE PROGRAMS
PRIZM. By mid-FY 2004, we expect to have scanned and digitized approximately 30 million
applications. During FY 2003 and FY 2004, we will also review our passport production
processes to incorporate enhanced reliance on biometric technology. We will also continue to
work with the Social Security Administration to verify the issuance and authenticity of birth,
death and social security records prior to the issuance of a passport.
Passport Facilities: $3,950,000

Funds will be used to maintain the infrastructure of passport facilities including headquarters
space in Washington, DC, and to pay for utility and facility maintenance expenses at the
Charleston, South Carolina, Passport Center. We will also invest in physical security
upgrades to resolve vulnerabilities that were identified in a security survey of all passport
agencies. Funds will also be used to for maintenance and/or upgrades of appointments
systems, telephone systems, and videoconferencing equipment at passport agencies.
Passport Systems Support: $44,500,000

Passport Systems provide the network, operational and Help Desk support for users at the 16
U.S. domestic Regional Passport agencies and processing centers. It also provides the system
support needed to store, maintain, archive and retrieve all data and records associated with
passport issuances. In FY 2003 and FY 2004, passport systems will be enhanced to include
complete data redundancy. We will develop the capability for all passport agencies and
overseas posts to check the status of passport applications. We are continuing to explore the
role of biometrics in the passport process. These plans are complex since they require
international cooperation and are resource intensive owing to the widely distributed network
of more than 5,000 U.S. domestic passport acceptance facilities. Finally, we will incorporate
passport data into the Consolidated Consular Database.
Visa Processing: $44,000,000

During FY 2002, we instituted several measures in support of enhanced border security. We
now require additional background checks for applicants from certain countries, implemented
new supplemental visa application information for all men ages 16 to 45, and developed a
supplemental form to comply with a requirement of the Enhanced Border Security and Visa
Entry Reform Act. We also implemented new procedures for posts seeking security advisory
opinions on targeted cases of interest. In FY 2003 and FY 2004, we will continue to review
our visa processes. We expect these changes and the expansion of homeland security
initiatives to continue to significantly increase workload and the amount of time required to
process visa cases.
In FY 2003, the Department will continue to shift the clerical functions related to immigrant
visa processing to the National Visa Center (NVC) located in New Hampshire. The Kentucky
Processing Center (KCC), which supports the Diversity Lottery Program, will undergo
expansion in FY 2003 in order to provide enhanced screening and support for overseas posts
involved in processing certain non-immigrant visa categories. Anti-fraud programs are being
established at both NVC and KCC.
57
STATE PROGRAMS
Included in this program activity is FY 2004 funding to begin to collect a biometric from
individuals seeking a non-immigrant visa to travel to the U.S. This requirement will have a
major impact on visa processes overseas, although the full scope of this change is currently
being discussed within the interagency border security community. The integrity of this
process will be under the control of on-site Department of State personnel.
American Citizen Services: $2,100,000

During FY 2003 and FY 2004, the Department will continue to provide consular
services to Americans residing or traveling abroad. We will continue to provide a
global Voting Assistance Outreach Program and continue to meet our treaty
obligations as the U.S. Central Authority for the Hague Convention on Intercountry
Adoption. We will share adoption information with the INS and we will continue to
work closely with parents whose children have been abducted overseas.
INK - TIPOFF/Terrorism: $3,460,000

The TIPOFF/Terrorism program is a cornerstone of U.S. border security efforts. It is a
counter terrorism/crime tool that utilizes information from the intelligence and law
enforcement communities to detect known or suspected terrorists or other persons of serious
concern as they apply for U.S., Canadian, or Australian visas or as they attempt to pass
through border entry points in nations. Information from the TIPOFF database is also
provided to consular officers adjudicating visa applications overseas and to other personnel
located at U.S. ports of entry.
Bureau of Administration - Facilities Management: $1,750,000

Funds will be used to provide utilities, facilities maintenance, and custodial services at the
Kentucky Consular Center, the National Visa Center in New Hampshire, and at the
Charleston Passport Center.
Bureau of Diplomatic Security: $9,380,000

In FY 2003 and FY 2004, funds will be used to support guard services needed at all
passport agencies nationwide, at the National Visa Center and at the Kentucky
Processing Center. Criminal investigations of illegal passport and visa issuance will
continue, including investigations of Russian Organized Crime. As in prior years, we
will continue to fund travel of Department employees required to testify at trials
relating to passport and visa fraud. This program will also help finance the
Department's continuing efforts to investigate and bring to prosecution persons or
groups who attempt to subvert U.S. passport and visa laws.
Technology Backbone - IRM: $19,900,000

Funds are used to provide mainframe support for CLASS, including around-the-clock systems
operations and maintenance, secure connectivity, redundancy, and contingency operations.
During FY 2003 and FY 2004, we will establish and operate a second CLASS processing
facility located at the Kentucky Consular Center, consistent with our responsibilities for
Critical Infrastructure Protection.
58
STATE PROGRAMS
BORDER SECURITY STAFF AND SUPPORT COSTS
American Salaries: $192,898,000

In FY 2002, the Border Security Program funded the salaries and benefits of 2,157 full-time
consular, DS and IRM employees. In FY 2003, the salaries and benefits for 233 existing
Consular positions that were previously funded within Diplomatic and Consular Program
appropriation were transferred to the Border Security Program ($26,372,000). Our FY 2003
position request consists of 52 positions (39 overseas positions and 13 domestic positions). In
FY 2004 we plan to hire an additional 125 positions, consisting of 80 overseas positions and
45 domestic positions. A major factor driving the Department's position growth in FY 2004
is the need to implement the national security requirement to collect and process a biometric
from passport and visa applicants. This biometric effort accounts for 19 of the 45 domestic
positions and 40 of the 80 overseas positions requested in FY 2004. The additional domestic
and overseas positions are required to handle increasing workload and operational
requirements.
Border Security Support: $176,195,000

This program activity funds such direct costs as supplies used in passport and visa processing,
as well as the Border Crossing Card Program. Funds are also used to pay for the start-up and
recurring costs for new consular positions. Beginning in FY 2003, this will include all
administrative support costs associated with new officer positions assigned overseas. Also in
FY 2003, the Department will shift $73,628,000 in consular operating expenses from the
Department's Diplomatic and Consular Programs appropriation to the Border Security
Program. In FY 2002, these expenses were funded under the Department's Diplomatic and
Consular Programs appropriation.
BCC Reimbursement to INS: $18,000,000

Since FY 1999, the Department has reimbursed the INS for the cost of producing Border
Crossing Cards issued to Mexican nationals. This reimbursement, based on a Memorandum
of Understanding between the two agencies, is consistent with the requirements of section 104
of the Illegal Immigration and Immigrant Responsibility Act of 1996. The reimbursement is
considered a direct transfer of revenue to INS and is not included in relevant charts and tables
that summarize the Border Security Program. In FY 2003 and FY 2004, the Department plans
to reimburse $18,000,000 to the INS annually.
PART Analysis of Visa and Consular Programs
OMB's PART analysis noted that various portions of the Border Security program are
frequently evaluated and their analysis found that the overall visa and consular programs
regularly achieve the annual targets relating to the protection and safety of Americans who
travel or live abroad and the facilitation of travel for qualified foreign visitors. Overall,
Consular Affairs is relatively effective and heavily scrutinized. The Department is working
on improving their program measures to better link annual and long-term goals and to |
improve the quality of performance data. :^
f. o
5 ^
: c
IB j
59

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T5 B55 DOS Budget Requests FDR - Entire Contents - Briefs and Tables - 1998-2004

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TABLE 58.

DEPORT ABLE ALIENS LOCATED BY STATUS AT ENTRY

Asia i 9,331 3,303 120 459 122 1,007 1,284 i 11 6 3,019

Africa i 2,606 1,243 20 278 14 313 242 18 478

See footnotes at end of table.

Immigration Court Proceedings

0 50000 100000 150000 200000 250000

Immigration Court (Proceedings) Completions

Executive Office for Immigration Review Office of Planning and Analysis

Temporary worker In | Entry

Asia 6,813 1,846 101 184 82 819 1,419 6 8 2,348

2,090 860 17 190 17 209 290 8 1 498

See footnotes at end of table.

The documents provided include the following:

• United States Department of State Budget in Brief Fiscal Year 2000

Congressional Presentation Document, budget fiscal year 1998

• Border Security Program - Budget in Brief FY 9 7 - 0 4

The documents provided include the following:

• United States Department of State Budget in Brief Fiscal Year 1998

Consular Affairs 72,156 42,764 33,283 41,420 42,787 47,383 2,438

Worldwide Security Upgrades 0 0 254,000 410,000 487,735 553,000 646,701

Consular Affairs 99,585 189,853 198,163 252,287 283,810 373,563 482,671

Diversity Lottery Fees

FBI Fingerprint Fees

Affadavit of Support Fees

Diplomatic and Consular Programs 2,000,706 1,998,487 2,569,825 2,758,076 3,245,427

Consular Affairs 73,642 35,520 38,331 43,727 45,936

Worldwide Security Upgrades 0 785,700 254,000 409,098 535,635

Border Security Program 253,279 296,003 322,064 390,938 440,212

Consular Affairs 156,185 195,972 201,373 262,461 285,244

Diversity Lottery Fees

FBI Fingerprint Fees

• Border Security Program - Budget in Brief FY 97 - 04

General Services Administration is funding the massive renovation of the existing

Border Security Program Summary

•* 5 m* 1995 19% . iwn

Border Security Program

I its technology infrastructure. The objectives of the program are:

I effectiveness and efficiency of name check systems by obtaining information on aliens

1 ° Beginning an initiative to produce a more secure Machine Readable Visa system

i ° Major investments in mainframe computers and telecommunications infrastructure have

Border Security Program Summary

Border Security Initiatives FY 1996 FY 1997 FY1998

Consular Affairs 7,012 7,393 7,694

Total, Border Security Program $84,493 $149,070 $198,£09

Border Security Program I

I the delivery of consular services, domestically as well as overseas.

Border Security Program Summary

Border Security Initiatives FY1997 FY1998 FY 1999

Consular Affairs 12,245 16,092 17,700

^"^ Consular Project Initiatives

0 Non-Immigrant, Immigrant, and American Citizens Services applications. The Department,

weaknesses in the U.S. passport—its potential vulnerability to photosubstitution.

Border Security Staff and Support Costs

Border Security Program

The Border Security Program continues to demonstrate significant accomplishments. As of

Total, Border Security Program $253,279 $312,829 $316,715

Q Automated Namecheck Systems (CLASS). The Consular Lookout and Support

process All such costs will be met as part of this budget

S cSfocus'or,additiona!' international organized crime syndicates and other

quantify the petitioner's income and assets.

I Border Security Program