Border Patrol: Costs and Challenges Related to Training New Agents
Published: 2007-06-19T00:00:00

Fast Facts:

Highlights:
section_title: Why GAO Did This Study
paragraphs: In May 2006, the President called for comprehensive immigration reform that included strengthening control of the country's borders by, among other things, adding 6,000 new agents to the U.S. Border Patrol by the end of December 2008. This unprecedented 48 percent increase over 2 years raises concerns about the ability of the Border Patrol's basic training program to train these new agents. This testimony is based on a recent report for the ranking member of this subcommittee on the content, quality, and cost of the Border Patrol's basic training program for new agents and addresses (1) the extent to which the Border Patrol's basic training program exhibits the attributes of an effective training program and the changes to the program since September 11, 2001; (2) the cost to train a new agent and how this compares to the costs of other similar law enforcement basic training programs; and (3) any plans the Border Patrol has developed or considered to improve the efficiency of its basic training program. To address these issues, GAO reviewed relevant documents; observed classroom training and exercises at the Border Patrol Academy in Artesia, New Mexico; assessed the methodologies of training cost estimates; and interviewed Border Patrol officials.
section_title: What GAO Found
paragraphs: The Border Patrol's basic training program exhibits attributes of an effective training program. GAO's training assessment guide suggests the kinds of documentation to look for that indicate that a training program has a particular attribute in place. The Border Patrol's training program included all of the applicable key attributes of an effective training program. The core curriculum used at the Border Patrol Academy has not changed since September 11, but the Border Patrol added new material on responding to terrorism and practical field exercises. Border Patrol officials are confident that the academy can accommodate the large influx of new trainees anticipated over the next 2 years. In fiscal year 2006, the average cost to train a new Border Patrol agent at the academy was about $14,700. While differences in programs make a direct comparison difficult, it appears that the Border Patrol's average cost per trainee at the academy is consistent with that of training programs that cover similar subjects and prepare officers for operations in similar geographic areas. For example, the estimated average cost per trainee for a Bureau of Indian Affairs police officer was about $15,300; an Arizona state police officer, $15,600; and a Texas state trooper, $14,700. The Border Patrol is considering several alternatives to improve the efficiency of basic training delivery at the academy and to return agents to the field more quickly. For example, in October 2007 the Border Patrol plans to implement a proficiency test for Spanish that should allow those who pass the test to shorten their time at the academy by about 30 days. The Border Patrol is also considering what training it can shift from the academy to postacademy training conducted in the field, which could further reduce the amount of time trainees spend at the academy. However, Border Patrol officials have expressed concerns with having a sufficient number of experienced agents available to serve as first-line supervisors and field training officers. The Border Patrol also currently lacks uniform standards and practices for field training, and shifting additional training responsibilities to the field could complicate this situation.

section_title: Letter
paragraphs: I appreciate the opportunity to be here today to discuss our work on the  costs and challenges related to training 6,000 new Border Patrol agents by  the end of December 2008.
The U.S. Border Patrol is responsible for patrolling 8,000 miles of the land  and coastal borders of the United States to detect and prevent the illegal  entry of aliens and contraband, including terrorists and weapons of mass  destruction. Although the Border Patrol apprehends hundreds of  thousands of people entering the country illegally each year, several  hundreds of thousands more individuals successfully enter the country  illegally and undetected each year. In May 2006, the President called for  comprehensive immigration reform that included strengthening control of  the country’s borders by, among other things, adding 6,000 new agents to  the Border Patrol by the end of December 2008. This would increase the  total number of agents from 12,349 to 18,319, an unprecedented 48 percent  increase over the next 2 years. The Border Patrol plans to add these new  agents to its nine southwest border field offices, called sectors, while  transferring up to 1,000 experienced agents to the northern border. In  addition, legislation has been proposed in Congress that would authorize  an additional 10,000 agents, potentially increasing the size of the Border  Patrol to about 28,000 agents by the end of 2012.
My testimony today is based on a recent report for the ranking member of  this subcommittee on the content, quality, and cost of the Border Patrol’s  basic training program for new agents. It focuses on the following issues:  the extent to which the Border Patrol’s basic training program for new  border patrol agents exhibits the attributes of an effective training  program and how the training program has changed since September  11, 2001;  the estimated cost to train a new agent at the Border Patrol Academy  and how the Border Patrol’s basic training program and cost compared  to those of other similar federal and nonfederal law enforcement basic  training programs; and    any plans the Border Patrol has developed or considered to improve  the efficiency of its basic training program.
To determine the extent to which the Border Patrol’s training program  exhibited the attributes and characteristics of an effective training  program, we reviewed the Border Patrol’s basic training curriculum and  compared it with GAO’s guide for assessing federal training programs.  While we determined the presence of indicators of particular attributes,  we did not assess the extent to which these attributes contributed to the  quality of the training program. We also visited the Border Patrol Academy  in Artesia, New Mexico, and observed training in progress and discussed  training content with the Academy Chief and course managers. To  determine what changes the Border Patrol has made to the basic training  program since September 11, we reviewed new training materials.
To determine the cost to train a new Border Patrol agent, we reviewed the  Federal Law Enforcement Training Center’s (FLETC) methodology used  to calculate the average training cost per agent. We assessed the data for  reliability and found that the data we used for our analyses were  sufficiently reliable for the purposes of our report. To compare the cost of  the Border Patrol’s basic training program to that of other similar basic  training programs (i.e., civilian, patrol-based law enforcement training for  operations in the southwest region of the United States), we obtained  course curricula and training cost information from FLETC, the  Department of the Interior’s Bureau of Indian Affairs (BIA), the Southern  Arizona Law Enforcement Training Center, and the Texas Department of  Public Safety. We did not identify any private firms offering a similar  training program. We assessed the data for reliability and found them  reliable for the purposes of this review.
To determine what plans the Border Patrol has developed or considered  for improving the efficiency of its basic training program, we reviewed  relevant documentation and interviewed CBP officials.
We performed our work from September 2006 through March 2007 and  updated selected information in June 2007 in accordance with generally  accepted government auditing standards.
subsections: section_title: Background
paragraphs: The U.S. Border Patrol, within the Department of Homeland Security’s  (DHS) U.S. Customs and Border Protection (CBP), is responsible for  patrolling 8,000 miles of the land and coastal borders of the United States  to detect and prevent the illegal entry of aliens and contraband, including  terrorists, terrorist weapons, and weapons of mass destruction. As of  October 2006, the Border Patrol had 12,349 agents stationed in 20 sectors  along the southwest, northern, and coastal borders. In May 2006, the  President called for comprehensive immigration reform that included  strengthening control of the country’s borders by, among other things,  adding 6,000 new agents to the Border Patrol by the end of December  2008. This would increase the total number of agents from 12,349 to  18,319, an unprecedented 48 percent increase over the next 2 years. As  shown in figure 1, this increase is nearly equivalent to the number of  agents gained over the past 10 years. In addition, legislation has been  proposed in Congress that would authorize an additional 10,000 agents,  potentially increasing the size of the Border Patrol to about 28,000 agents  by the end of 2012.
FLETC is an interagency training provider responsible for basic, advanced,  and specialized training for approximately 82 federal agencies, including  CBP’s Border Patrol. Under a memorandum of understanding, FLETC  hosts the Border Patrol’s training academy in Artesia, New Mexico, and  shares the cost of providing training with the Border Patrol. For example,  FLETC provides the facilities, some instructors (e.g., retired Border Patrol  agents), and services (e.g., laundry and infirmary) that are paid for out of  FLETC’s annual appropriations. CBP’s Office of Training and Development  designs the training curriculum (in conjunction with the Border Patrol and  with input from FLETC) for the academy, administers the Border Patrol  Academy, and provides permanent instructors and staff.
Basic training for new Border Patrol agents consists of three components:  (1) basic training at the academy, (2) postacademy classroom training  administered by the academy but conducted in the sectors, and (3) field  training conducted on the job in the sectors. The academy portion of the  training is currently an 81-day program consisting of 663 curriculum hours  in six subject areas: Spanish, law/operations, physical training, driving,  firearms, and general training.
After graduating from the academy, new Border Patrol agents are required  to attend classroom instruction at their respective sectors in Spanish and  law/operations 1 day a week for a total of 20 weeks. Finally, new agents  are generally assigned to senior agents in a sector’s field training unit for  additional on-the-job training intended to reinforce new agents’ skills in  safely, effectively, and ethically performing their duties under actual field  conditions.
section_title: The Border Patrol’s Basic Training Program Exhibits Attributes of an Effective Training Program
paragraphs: The Border Patrol’s basic training program exhibits attributes of an  effective training program. GAO’s training assessment guide suggests the  kinds of documentation to look for that indicate that a training program  has a particular attribute in place, such as incorporating measures of  effectiveness into its course designs. As shown in table 1, the Border  Patrol was able to document that its training program had key indicators  in place for the applicable attributes of an effective training program.
In addition, the Border Patrol is pursuing accreditation of its training  program from the Federal Law Enforcement Training Accreditation  organization. The core training curriculum used at the Border Patrol  Academy has not changed since September 11, but the Border Patrol  added new material on responding to terrorism and practical field  exercises. For example, the Border Patrol added an antiterrorism course  that covers, among other things, what actions agents should take if they  encounter what they believe to be a weapon of mass destruction or an  improvised explosive device. The Border Patrol also incorporated  practical field exercises that simulate a variety of situations that agents  may encounter, such as arresting an individual who is armed with a  weapon, as shown in figure 2. With regard to capacity, Border Patrol  officials told us they are confident that the academy can accommodate the  large influx of new trainees anticipated over the next 2 years.
section_title: The Average Cost to Train a New Border Patrol Agent in Fiscal Year 2006 Was About $14,700 and Was Comparable to Those of Other Federal and Nonfederal Law Enforcement Training Programs
paragraphs: In fiscal year 2006, the average cost to train a new Border Patrol agent at  the academy was about $14,700. This cost represents the amounts  expended by both the Border Patrol and FLETC. (See table 2.) The Border  Patrol paid about $6,600 for the trainee’s meals and lodging, and a portion  of the cost of instructors, and FLETC paid about $8,100 for tuition, a  portion of the cost of instructors, and miscellaneous expenses such as  support services, supplies, and utilities. The $14,700 cost figure does not  include the costs associated with instructors conducting postacademy and  field training in the sectors.
For fiscal year 2007, the average cost to train a new agent will increase to  about $16,200. This is primarily due to an increase in the number of  instructors hired, which increased CBP’s instructor costs from about  $2,800 to $6,100 per student.
The Border Patrol’s average cost per trainee at the academy is consistent  with that of training programs that cover similar subjects and prepare  officers for operations in similar geographic areas. For example, the  estimated average cost per trainee for a BIA police officer was about  $15,300; an Arizona state police officer, $15,600; and a Texas state trooper,  $14,700. However, differences in the emphasis of some subject areas over  others dictated by jurisdiction and mission make a direct comparison  difficult. For example, while both the Border Patrol and the Texas  Department of Public Safety require Spanish instruction, the Border Patrol  requires 214 hours of instruction, compared with 50 hours for a Texas  state trooper. Similarly, the Border Patrol does not provide instruction in  investigative techniques, while BIA, Arizona, and Texas require 139, 50,  and 165 hours of such instruction, respectively. Table 3 shows a  comparison of Border Patrol’s basic training program with other federal  and nonfederal law enforcement basic training programs.
section_title: Plans under Consideration to Improve Basic Training Efficiency May Present Challenges
paragraphs: The Border Patrol is considering several alternatives to improve the  efficiency of basic training delivery and to return agents to the sectors  more quickly. For example, in October 2007 the Border Patrol plans to  implement a proficiency test for Spanish that should allow those who pass  the test to shorten their time at the academy by about 30 days. According  to Border Patrol officials, this could benefit about half of all trainees,  because about half of all recruits already speak Spanish. The Border Patrol  also plans to convert postacademy classroom training to computer-based  training beginning in October 2007, allowing agents to complete the 1-day- a-week training at their duty stations rather than having to travel to the  sector headquarters for this training. As a result, fewer senior agents will  be required to serve as instructors for postacademy training. Finally, the  Border Patrol is considering what other training it can shift from the  academy to postacademy and field training conducted in the sectors,  which could further reduce the amount of time trainees spend at the  academy.
While these strategies may improve the efficiency of training at the  academy, officials expressed concern about the sectors’ ability provide  adequate supervision and continued training once the new agents arrive at  the sectors. Some Border Patrol officials are concerned with having  enough experienced agents available in the sectors to serve as first-line  supervisors and field training officers for these new agents. According to  the Chief of the Border Patrol, agencywide the average experience level of  Border Patrol agents is about 4 or 5 years of service. However, in certain  southwest border sectors the average experience level is only about 18  months. Moreover, the supervisor-to-agent ratio is higher than the agency  would like in some southwest sectors. Border Patrol officials told us that a  5-to-1 agent-to-supervisor ratio is desirable to ensure proper supervision of  new agents, although the desired ratio in certain work units with more  experienced agents would be higher. Our analysis of Border Patrol data  showed that as of October 2006, the overall agent-to-supervisor ratios for  southwest sectors, where the Border Patrol assigns all new agents, ranged  from about 7 to 1 up to 11 to 1.
These ratios include some work units with a higher percentage of  experienced agents that do not require the same level of supervision as  new agents. To augment the supervision of new agents, the Border Patrol  is considering using retired Border Patrol agents to act as mentors for new  agents. Nevertheless, given the large numbers of new agents the Border  Patrol plans to assign to the southwest border over the next 2 years, along  with the planned reassignment of experienced agents from the southwest  border to the northern border, it will be a challenge for the agency to  achieve the desired 5-to-1 ratio for new agents in all work units in those  sectors receiving the largest numbers of new agents.
In addition to concerns about having a sufficient number of experienced  agents to serve as supervisors and field training officers, the Border Patrol  does not have a uniform field training program that establishes uniform  standards and practices that each sector’s field training should follow. As a  result, Border Patrol officials are not confident that all new trainees  currently receive consistent postacademy field training. Moreover, the  addition of new training expectations may complicate this situation. The  Border Patrol is in the process of developing a uniform field training  program that it plans to implement beginning in fiscal year 2008.
section_title: Concluding Observations
paragraphs: While Border Patrol officials are confident that the academy can  accommodate the large influx of new trainees anticipated over the next   2 years, the larger challenge will be the sectors’ capacity to provide  adequate supervision and training. The rapid addition of new agents along  the southwest border, coupled with the planned transfer of more  experienced agents to the northern border, will likely reduce the overall  experience level of agents assigned to the southwest border. In turn, the  Border Patrol will be faced with relying on a higher proportion of less  seasoned agents to supervise these new agents. In addition, the possible  shifting of some training from the academy to the sectors could increase  demand for experienced agents to serve as field training officers.  Moreover, without a standardized field training program, training has not  been consistent from sector to sector, a fact that has implications for the  sectors’ ability to add new training requirements and possibly  consequences for how well agents will perform their duties. To ensure that  these new agents become proficient in the safe, effective, and ethical  performance of their duties, it will be extremely important that new agents  have the appropriate level of supervision and that the Border Patrol have a  sufficient number of field training officers and a standardized field training  program.
Mr. Chairman, this completes my prepared statement. I would be happy to  respond to any questions you or other members of the subommittee may  have at this time.
subsections: section_title: GAO Contact and Staff Acknowledgments
paragraphs: For further information about this testimony, please contact me at   (202) 512-8816 or by e-mail at Stanar@gao.gov. Key contributors to this  testimony were Michael Dino, Assistant Director; Mark Abraham;   E. Jerry Seigler; and Julie Silvers. Contact points for our Offices of  Congressional Relations and Public Affairs may be found on the last page  of this testimony.
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