Data collected include  information on students, exchange visitors, schools, and exchange  visitor programs. In June 2004, we reported that several performance indicators  showed that SEVIS performance was improving. In June 2004, we reported that performance  reports showed that some, but not all, key system requirements  were being measured, and that these measured requirements were  being met. However, unless DHS formally monitored and documented all key  system performance requirements, we concluded that the  department could not adequately assure itself that potential system  problems were identified and addressed early, before they had a  chance to become larger problems that could affect the DHS  mission objectives that SEVIS supports. Trends in Reported System Problems Indicated Improved Performance

Another indicator of how well a system is performing is the number  and significance of reported problems or requests for system  enhancements. According to  representatives of educational organizations, overall SEVIS  performance at the time of our report had improved since the  system began operating and its use was required, and the program’s  outreach and responsiveness were good. At the time of our report, DHS had taken a number of steps to  identify and solve system problems, including problems identified  by educational organizations. These  included releases of new versions of SEVIS and increases in Help  Desk training and staffing. DHS Continues to Take Steps to Address Our Recommendations

To help strengthen SEVIS performance and address educational  organizations’ concerns, our report recommended that DHS   ●  assess the extent to which defined SEVIS performance requirements  are still relevant and are being formally managed;  ●  provide for the measurement of key performance requirements that  are not being formally measured;   ●  assess educational organization Help Desk concerns and take  appropriate action to address these concerns; and  ●  provide for the expeditious implementation of the results of the  SEVIS fee rulemaking process. According to program officials, a number of steps have been taken  relative to our recommendations, and other steps are under way. Program officials also reported that they are taking steps to address  Help Desk concerns. Further, representatives from two  organizations stated that they were still experiencing problems with  incorrect Help Desk responses. Last, representatives from all six organizations stated that there  have been declines in international students and exchange visitors  coming to the United States. Recent Report Cites U.S. Decline in International Graduate Students, While Recognizing Recent Efforts to Improve Visa Processing for Science Students and Scholars

A recent Council of Graduate Schools report indicates that foreign  graduate student applications, admissions, and enrollments are  declining. In addition, while  2005 data on admissions and enrollments were not yet available, the  report cited a 5 percent decline in applications between 2004 and  2005. According to the report, the declines in 2004 and in 2005 were  most prominent for students from China and India. The Council of Graduate Schools also recognized recent federal  actions to improve the student visa process. These actions are  directly related to our work on the State Department’s Visas Mantis  program—an interagency security check aimed at identifying those  visa applicants who may pose a threat to our national security by  illegally transferring sensitive technology. In February 2005, we reported that Visas Mantis processing times  had declined significantly. We also found that the number of  Mantis cases pending more than 60 days has dropped significantly. For example, the Association of American Universities  identified the extension of Mantis clearances as “a common-sense  reform that removes an unnecessary burden that caused enormous  inconvenience for thousands of international students and  discouraged many more from coming here to study.”
In closing, indications are that SEVIS performance has improved  and continues to improve, as has visa processing for foreign science  students and scholars. This commitment is important because educational  organizations continue to report some persistent system problems,  primarily with respect to Help Desk responsiveness in making  certain “data fixes.” These problems can create hardships for  foreign students and exchange visitors that can potentially have  unintended consequences relative to these foreign students and  exchange visitors applying to and enrolling in U.S. learning  institutions.
Why GAO Did This Study

The Student and Exchange Visitor Information System (SEVIS) is an Internet-based system run by the Department of Homeland Security (DHS) to collect and record information on foreign students, exchange visitors, and their dependents--before they enter the United States, when they enter, and during their stay. GAO has reported (GAO-04-690) that although the system had a number of performance problems during the first year that its use was required, several SEVIS performance indicators were positive at that time (June 2004). Nonetheless, some problems were still being reported by educational organizations. In addition, concerns have been raised that the number of international students and exchange visitors coming to the United States has been negatively affected by the U.S. visa process. Accordingly, the Congress asked GAO to testify on its work on SEVIS and related issues. This testimony is based on its June 2004 report, augmented by more recent GAO work, reports that we issued in February 2004 and 2005 on student and visiting scholar visa processing, and related recent research by others.

What GAO Found

Indications are that SEVIS performance has improved and continues to improve. In June 2004, GAO reported improvement based on several indicators, including reports showing that certain key system performance requirements were being met, trends showing a decline in new requests for system corrections, and the views of officials representing 10 educational organizations. DHS attributed this performance improvement to a number of actions, such as installation of a series of new software releases and increased Help Desk staffing and training. However, GAO also reported that several key system performance requirements were not being formally measured, so that DHS might not be able to identify serious system problems in time to address them before they could affect the successful accomplishment of SEVIS objectives. Further, some educational organizations were still experiencing problems, particularly with regard to Help Desk support. GAO also reported that educational organizations were concerned about proposed options for collecting SEVIS fees. Accordingly, it made recommendations aimed at improving system performance measurement and resolving educational organizations' Help Desk and fee concerns. Since June 2004, DHS reports that it has taken steps to address GAO recommendations, and in particular it has taken a number of actions to strengthen Help Desk support. Moreover, educational organizations generally agree that SEVIS performance has continued to improve, and that their past fee collection concerns have been alleviated. However, these educational organizations still cite residual Help Desk problems, which they believe create hardships for students and exchange visitors. Most of these organizations, however, do not believe that SEVIS is the reason for the declining number of international students and exchange visitors coming to the United States. These declining numbers were cited in a recent report by the Council of Graduate Schools, which describes declines in foreign graduate student applications, admissions, and enrollments between 2003 and 2004, and further declines in these applications between 2004 and 2005. The report attributes the decline to increased global competition and changed visa policies. In this regard, GAO recently reported on the State Department's efforts to address its prior recommendations for improving the Visas Mantis program (under which interagency security checks are performed to identify applicants who may pose a threat to national security by illegally transferring sensitive technology). According to this report, a combination of federal agency steps resulted in a significant decline in Visas Mantis processing times and in the number of cases pending more than 60 days. The Council of Graduate Schools' report also recognizes the recent Visas Mantis program changes as positive steps.