1). An SAO based  on sensitive technology transfer concerns is known as a Visas Mantis and,  according to State officials, is the most common type of SAO applied to  science applicants. Length of Time to Adjudicate Visas Is Unknown; Security Check Is Major Contributing Factor

The length of time for a science student or scholar to obtain a visa is not  known, but a key factor in the time frame can be attributed to whether an  applicant must undergo a Visas Mantis check. Since State could provide  information on individual cases, we conducted our own sample of Visas  Mantis cases that we obtained from State for the period between April and  June 2003 and found that for these applicants, it took an average of 67  days for the security check to be processed and for State to notify the post  of the results. In addition,  officials at posts we visited told us they were unsure whether they were  adding to the lengthy waits by not having clear guidance on when to apply  the Visas Mantis process and not receiving feedback on the amount of  information they provided in their Visas Mantis requests. Of these cases, about 28 percent had been  pending more than 60 days. Post Officials Seek Clearer Guidance and Feedback on Visas Mantis Cases to Expedite Process

During our fieldwork, some consular officials expressed concern that they  could be contributing to the time it takes to process Visas Mantis requests  because they lacked clear guidance on determining Visas Mantis cases and  feedback on whether they were applying checks appropriately and  providing enough data in their Visas Mantis requests. Wait for an Interview Can Add Significant Time

In addition to the time needed for Visas Mantis checks, another  contributing factor in the length of time it takes to adjudicate a visa is how  long an applicant must wait to get an interview appointment at post. State  does not have data or criteria for the length of time applicants at its  overseas posts wait for an interview, but at the posts we visited in  September 2003, we found that it generally took 2 to 3 weeks. Officials from State’s Consular Affairs and the FBI told us they are  coordinating efforts to identify and resolve outstanding Visas Mantis cases. However, challenges remain. FBI officials told us that the name check  component of the FBI’s system would not immediately be interoperable  with State’s new system, but that they are actively working with State to  seek solutions to this problem. We  were not able to assess the new system since it was not yet functioning at  the time of our review. Recommendation for Executive Action

To help improve the process and reduce the length of time it takes for a  science student or scholar to obtain a visa, we are recommending that the  Secretary of State, in coordination with the Director of the FBI, and the  Secretary of Homeland Security, develop and implement a plan to improve  the Visas Mantis process. The Federal Bureau of Investigation did not comment on our  recommendation. Appendix I: Scope and Methodology

To determine (1) how long it takes a science student or scholar from  another country to obtain a visa and the factors that contribute to the  length of time and (2) what measures are under way to improve the visa  issuance process and decrease the number of pending cases, we collected  data from agencies in Washington, as well as at U.S. embassies and  consulates overseas, and conducted interviews with agency officials. We conducted fieldwork at seven visa-issuing posts in three countries— China, India, and Russia. We chose these countries because they are  leading places of origin for international science students and scholars  visiting the United States. We modified the draft to reflect that State Department data are not  available on how long it takes for a science student or scholar to  obtain a visa.
Why GAO Did This Study

Each year thousands of international science students and scholars apply for visas to enter the United States to participate in education and exchange programs. They offer our country diversity and intellectual knowledge and are an economic resource. At the same time, the United States has important national security interests in screening these individuals when they apply for a visa. At a hearing held by the House Committee on Science on March 26, 2003, witnesses raised concern about the length of time it takes for science students and scholars to obtain a visa and about losing top international students to other countries due to delays in the visa process. GAO reviewed 1) how long it takes a science student or scholar from another country to obtain a visa and the factors contributing to the length of time, and 2) what measures are under way to improve the process and decrease the number of pending cases.

What GAO Found

State Department (State) data are not available on how long it takes for a science student or scholar to obtain a visa. While State has not set specific criteria or time frames for how long the visa process should take, its goal is to adjudicate visas as quickly as possible, consistent with immigration laws and homeland security objectives. During this review, GAO found that the time it takes to adjudicate a visa depends largely on whether an applicant must undergo a security check known as Visas Mantis, which is designed to protect against sensitive technology transfers. Based on a random sample of Visas Mantis cases for science students and scholars sent from posts between April and June 2003, GAO found it took an average of 67 days for the security check to be processed and for State to notify the post. In addition, GAO's visits to posts in China, India, and Russia in September 2003 showed that many Visas Mantis cases had been pending 60 days or more. GAO also found that the way in which Visas Mantis information was disseminated at headquarters made it difficult to resolve some of these cases expeditiously. Furthermore, consular staff at posts GAO visited said they were unsure whether they were contributing to lengthy waits because they lacked clear guidance on when to apply Visas Mantis checks and did not receive feedback on whether they were providing enough information in their Visas Mantis requests. Another factor that may effect the time taken to adjudicate visas for science students and scholars is the wait for an interview. The wait time at posts GAO visited was generally 2 to 3 weeks but could be longer depending on the time of the year. While State and Federal Bureau of Investigation (FBI) officials acknowledged there have been lengthy waits, they report having measures under way that they believe will improve the process and that they are collaborating to identify and resolve outstanding Visas Mantis cases. In addition, State officials told GAO they have invested about $1 million to upgrade the technology for sending Visas Mantis requests. According to State officials, the new system will help to reduce the time it takes to process Visas Mantis cases. But despite State's plans to improve the Visas Mantis process, challenges remain. For example, the FBI's systems will not immediately be interoperable with State's. GAO was unable to assess State's new system since it was not yet functioning at the time of the review.