Security Check Is Major Contributing Factor to Length of Time It Takes to Adjudicate Visas

State cannot readily identify the total length of time it takes for a science  student or scholar to obtain a visa. To obtain visa data on science students and scholars, and to determine  how long the visa process takes, we reviewed all Visas Mantis cables  received from posts between April and June 2003, which totaled  approximately 5,000. We drew a random sample of 71 cases from the 2,888 science student and  scholar visa applications to measure the length of time taken at various  points in the visa process. We found that visas for science students and  scholars took on average 67 days from the date the Visas Mantis cable was  submitted from post to the date State sent a response to the post. In addition, the data for  both samples show that lengthy waits remain in some cases. Several Factors Contribute to the Length of Time It Takes to Resolve Visas Mantis Cases

We found that several factors, including interoperability problems among  the systems that State and FBI use, contribute to the time it takes to  process a Visas Mantis case. In addition,  it takes time for data to be entered in State’s systems once State receives  the information. Post Officials Seek Clearer Guidance and More Feedback

During our visits to posts in September 2003, officials told us they were  unsure whether they were adding to the wait time because they did not  have clear guidance on when to apply the Visas Mantis process and were  not receiving feedback on the amount of information they provided in  their Visas Mantis requests. Factors such as the time of year an  applicant applies for a visa, the appointment requirements, and the staffing  situation at posts generally affect how long an applicant will have to wait  for an interview. Agency Officials Cite Improvements

State and FBI officials acknowledged that visa waits have been a problem  but said they are implementing improvements to the process and working  to decrease the number of pending Visas Mantis cases. For example,    State and FBI officials told us that the validity of Visas Mantis checks for  students and scholars has been extended to 12 months for applicants who  are returning to a program or activity and will perform the same functions  at the same facility or organization that was the basis for the original Visas  Mantis check. Consular Affairs officials told us that State has invested about $1 million  on a new information management system that it said would reduce the  time it takes to process Visas Mantis cases. 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.
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 House Committee on Science hearing in March 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 visa delays. 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) cannot readily identify the time it takes for a science student or scholar to obtain a visa. State has not set specific criteria or time frames for how long the visa process should take, but its goal is to adjudicate visas as quickly as possible, consistent with immigration laws and homeland security objectives. GAO found that the time it takes to adjudicate a visa depends largely on whether an applicant must undergo an interagency 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 level 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 affect the time taken to adjudicate visas for science students and scholars is the wait for an interview. While State and Federal Bureau of Investigation (FBI) officials acknowledged there have been lengthy waits for visas, 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.