	Immigration and Naturalization Service: Overview of Management and Program Challenges

Mr. Chairman and Members of the Subcommittee: I am pleased to be here today to discuss work we have done addressing management and program challenges at the Immigration and Naturalization Service (INS). These challenges have been related to INS’ strategic planning process, organizational structure, communications and coordination, financial management, and program implementation. However, we noted that, in carrying out its responsibilities, INS has to contend with issues of foreign policy (e.g., U.S. readiness to provide asylum to political refugees); domestic policy (e.g., the tension between the need for cheap labor that immigrants have historically met and the protection of employment and working standards for U.S. citizens); and intergovernmental relations (e.g., between the federal government, which sets policy on immigration, and state and local governments, which largely bear its costs and consequences). Management Challenges

(3) communications and coordination; and (4) financial management processes. INS’ Strategic Planning Process

In 1991, we reported that INS lacked a strategic plan and that past priority management processes were not successful. Its outdated accounting systems, weak internal controls, and lack of management emphasis on financial management had contributed to this situation. Program Challenges

In addition to the long-standing management challenges that we identified, program implementation issues at INS have been of continuing concern. These issues have been related to INS’ efforts to (1) stem the flow of illegal aliens across the border, (2) identify and remove criminal aliens, (3) process applications for naturalization, (4) enforce immigration laws that pertain to the workplace, and (5) process aliens for expedited removal from the country.
Why GAO Did This Study

Pursuant to a congressional request, GAO discussed the management and program challenges facing the Immigration and Naturalization Service (INS).

What GAO Found

GAO noted that: (1) GAO and others have identified management and program challenges that have troubled INS for years; (2) GAO's management reports in 1991 and 1997 and related reviews have indicated that urgent attention should be given to INS' management challenges; (3) GAO pointed out significant issues related to INS': (a) strategic planning process; (b) organizational structure; (c) communications and coordination; and (d) financial management processes; (4) specifically, GAO noted that INS': (a) strategic planning required sustained management attention and commitment; (b) reorganization had created some uncertainty about organizational roles and responsibilities; (c) internal communications and coordination were problematic, as evidenced by outdated policies and procedures on how to implement immigration laws; and (d) financial management processes were weak, including outdated accounting systems, weak internal controls, and a lack of management emphasis on financial management; (5) in addition to these management challenges, program implementation issues at INS have been the focus of much of GAO's work; (6) GAO's reports on these issues have been related to INS' efforts to: (a) stem the flow of illegal aliens across the Southwest Border; (b) identify and remove criminal aliens from the country; (c) process applications for naturalization; (d) enforce workplace immigration laws; and (e) process aliens for expedited removal; (7) GAO recognizes that addressing these management and program challenges can be difficult; (8) in carrying out its mission, INS has to contend with issues of foreign policy, domestic policy, and intergovernmental relations; and (9) sustained top-level management commitment and monitoring are necessary to ensure that these challenges are addressed appropriately.