In 2002, we recommended actions to strengthen the visa process as an  antiterrorism tool, including    establishing a clear policy on the priority attached to addressing  national security concerns through the visa process;   creating more comprehensive, risk-based guidelines and standards on  how consular officers should use the visa process to screen against  potential terrorists;    performing a fundamental reassessment of staffing and language skill  requirements for visa operations; and revamping and expanding consular training courses to place more  emphasis on detecting potential terrorists. Consular officers also indicated that additional guidance is needed on  certain interagency protocols. However, DHS has not provided guidance to consular officers regarding  the roles and geographic responsibilities for its personnel. As of April 30,  2005, we found that 26 percent of midlevel consular positions were either  vacant or filled by an entry-level officer (see fig. Senior (44)
Vacant (58)
Midlevel (478)
Staffed with entry-level officers (65)
Staffed by at least  midlevel officers (355)
Entry-level (879)
During our February 2005 visits to Riyadh, Jeddah, and Cairo, we observed  that the consular sections were staffed with entry-level officers on their  first assignment with no permanent, midlevel visa chief to provide  supervision. Today we are reporting that State has made a number  of improvements in its recruitment of language proficient Foreign Service  officers, expanded and revamped consular training, and increased the  attention paid to fraud prevention. State has taken several steps to increase its focus on preventing and  detecting fraud in the visa process. For example, by 2004, State’s  Bureau of Diplomatic Security had deployed 25 visa fraud investigators  to U.S. embassies and consulates. Actions Needed to Strengthen Management of DHS’s Visa Security Program

In September 2003, DHS assigned Visa Security Officers (VSO) to consular  posts in Saudi Arabia and plans to assign staff to other posts to strengthen  the visa process at these locations. As we addressed in our July 2005  report, according to State Department consular officers, the deputy chief  of mission, and DHS officials, VSOs in Saudi Arabia enhance the security  of the visa adjudication process at these consular posts, though several  issues raise concerns about the VSOs’ role and impact. VSOs in Saudi  Arabia provide an additional law enforcement capability to the visa  adjudication process and have access to and experience using important  law enforcement information not readily available to consular officers. DHS has not maintained measurable data to fully demonstrate the  impact of VSOs on the visa process. However, DHS has not developed a system to fully track the results of  visa security activities in Saudi Arabia. It would  also be useful to inform the Congress, as well as State and other agencies  who participate in the visa process at consular posts overseas. Recommendations

In our July 2005 report, we recommended that DHS develop a strategic  plan to guide the operations of the Visa Security Program in Saudi Arabia  and the program’s expansion to other embassies and consulates. Border Security: Actons Needed to Strengthen Management of  Department of Homeland Securiy’s Visa Security Program. October 21, 2002.
Why GAO Did This Study

In adjudicating a visa application, Department of State (State) consular officers are on the front line of defense against those whose entry would likely be harmful to U.S. national interests. In October 2002, we identified shortcomings and made recommendations on the role of national security in the visa process. This testimony discusses our report issued today on actions taken since our 2002 report to strengthen the visa process, as well as areas that deserve additional management actions. It also discusses our July 2005 report on the status of the assignment of Department of Homeland Security (DHS) personnel to U.S. consular posts overseas.

What GAO Found

State and DHS have taken many steps to strengthen the visa process as an antiterrorism tool. Consular officers are receiving clear guidance on the importance of addressing national security concerns through the visa process, and State has established clear procedures on visa operations worldwide. State has also increased its hiring of consular officers and language proficient Foreign Service officers, and has enhanced training and fraud prevention efforts. Further, consular officers have access to more information from intelligence and law enforcement agencies. However, some areas require additional attention. For example, officers we spoke with said that guidance is needed on DHS staff's roles and responsibilities overseas. In addition, while State has hired more consular officers, it continues to experience shortages in supervisory staff. As of April 30, 2005, 26 percent of midlevel positions were either vacant or filled by entry-level staff. During our February 2005 visits to three consular posts in Saudi Arabia and Egypt--all of which are of interest to U.S. antiterrorism efforts--the visa sections were staffed with first-tour officers and no permanent midlevel visa chiefs to provide direct oversight. Further improvements are also needed in training and fraud prevention, as well as information sharing with the FBI. In September 2003, DHS assigned visa security personnel to consular posts in Saudi Arabia. According to DHS, State's consular officials, and the deputy chief of mission in Saudi Arabia, the DHS officers in Saudi Arabia strengthen visa security. However, DHS does not maintain comprehensive data on their activities and thus is unable to fully demonstrate the program's impact. Further, DHS has not developed a strategic plan for visa security operations in Saudi Arabia or for the planned future expansion of the program.