TESTIMONY OF ROBERT MOCNY
DEPUTY DIRECTOR
US-VISIT, DEPARTMENT OF HOMELAND SECURITY
DIRECTORATE OF BORDER AND TRANSPORTATION SECURITY
BEFORE THE House Committee on The Judiciary
Subcommittee on Immigration, Border Security,
and Claims
Chairman Hostettler, Ranking Member Jackson Lee and other distinguished Members, it is a pleasure to appear before you today to discuss the Department of Homeland Security's US-VISIT program and how this fits in with our commitment to protect the homeland.
US-VISIT represents yet another major milestone in enhancing our nation's security and our efforts to reform our borders. It is a major step towards bringing integrity back to our immigration and border enforcement systems.
US-VISIT is a continuum of security measures that begins
before an individual enters the
Using biometrics such as digital, inkless fingerscans and
digital photographs, DHS is able to determine whether the person applying for
entry to the
US-VISIT procedures are clear, simple, and fast for foreign nationals.
DHS deployed US-VISIT on time, on budget, and has met the
mandates established by Congress, as well as the challenge by the Secretary of
Homeland Security to incorporate biometrics (fingerscans) into US-VISIT ahead
of schedule. By
Already US-VISIT has prevented over 195 people from entering
the
Our border management system impacts the security of our
citizens and our visitors, affects billions of dollars in trade and travel and
helps define relations with our international partners. There is a need to
improve this system and bring it into the 21st century with a new
integrated system of technological processes that will keep our country's
economic and national security strong.
This 21st century technology will provide an important step
toward achieving the President's goal of secure
In just a few months, the first release of US-VISIT has improved the security of our citizens and visitors. It seems clear that visitors appreciate the effort we are making to deliver security while simultaneously facilitating the process for law-abiding, legitimate travelers. US-VISIT is an effective deterrent,[UB1] for its biometric capabilities convince many criminals that they will not be able to hide their true identity.
We must continue to respect our visitors' privacy, treat them fairly, and enable them to pass through inspection quickly so they can enjoy their visit in our country. As people attempt to enter our country, we must know who they are and whether they intend to do us harm, the ability of US-VISIT to rapidly screen applicants' biometrics and biographic information through watch lists and databases means we can have security and control without impeding legitimate travelers, and we can also help protect our welcomed visitors by drastically reducing the possibility of identity theft. Moreover, as visitors leave the country, we must know that they have not overstayed the duration of their visa.
But we are not finished. This is a complicated job that will
take time to complete. In fact, US-VISIT is designed to be rolled out in
increments to ensure that the foundation is strong and the building blocks are
effective. With the deployment of the entry components at air and sea ports, we
have made a strong beginning, and going into 2004, we are on track to meet the
We are seeing that we can accomplish what we set out to
do: keep out terrorists, enhance the integrity
of our immigration system, facilitate legitimate travel and trade and help
protect the privacy and identity of our visitors. To ensure the continued success of this
important program, we are working with the National Institute of Science and
Technology (NIST) and with the Departments of Justice, and State to enlarge our
capability to identify criminals and terrorist prior to issuing a visa or
granting entry to the
Moving to a "Virtual Border" Solution
The vision of US-VISIT is to deploy an end-to-end border management program. This comprehensive view of border management leads to a virtual border. It elevates the requirement to develop the best processes to manage data on foreign nationals. It will provide an information-rich solution that better informs the border management decision makers and improves upon the information available to support the pre-entry, entry, status management, exit, and analysis processes.
Much of the emphasis to date on the entry/exit system has
focused specifically on the entry and exit processes at the ports of entry -
thus the "port-centric" solution. One of
the key initiatives of the US-VISIT Program is to adjust this focus to a
"virtual border" solution, placing equal emphasis on the pre-entry, entry, status
management, exit, and analysis processes associated with this Program. The virtual border will enhance national security
by matching the identity of foreign nationals, facilitate legitimate trade and
travel, and ensure the integrity of our immigration system by improving
enforcement. DOS determines eligibility
for a
The Entry Process
Will Use Biometrics to Match Identity
Pre-Entry
For millions of visitors, entry into the
The pre-entry process is a critical component of the US-VISIT virtual border. The consular officers gather a large amount of information prior to a foreign national's arrival at a port. This data will now be made available to appropriate border management agencies. In turn, the US-VISIT Program will provide additional information to the consular officer or Citizenship and Immigration Services adjudicators who are determining a foreign national's eligibility, including a history of entries and exits, photographs, and fingerscans that can be used to search watch lists.
Since the beginning of 2004, the pre-entry process includes analysis of the manifest supplied by the airlines for each international flight to determine the nonimmigrant visa holders on board the plane. This is done through the Advanced Passenger Information System or APIS. [UB2] This information is used by the U.S. Customs and Border Protection Officers to identify travelers of concern and pre-position information to support the inspectors at the port.
Entry Process
The purpose of the entry process is to determine the
admissibility of foreign nationals requesting entry into the
As part of the US-VISIT entry process, foreign nationals will be required to provide biometric data, biographic data, and/or other documentation, which provides for increased accuracy when making an entry/no exit decision.[UB3] This data is used to match identity, determine proper visa classification, and to query the watch list. Inspectors match identity of each foreign national collected by DOS, and determine the visitor's admissibility.
All ports share similarities in inspection processes and inspectors must quickly conduct a primary inspection and determine if the applicant should be recommended for a more in-depth review at the secondary inspection point. The average primary inspection for foreign nationals, lasts approximately one minute.
Although all inspections involve certain basic tasks, there are marked differences between an inspection conducted at an air or sea port and one conducted at a land port because at a land port you have a very different physical environment. Land ports experience:
·
A larger volume
of inspections.
·
Limited or
non-existent advance access to data about approaching pedestrians, passengers,
or commercial freight. Multiple modes of
transportation, including commercial and private vehicles, buses, trains, and
pedestrians. This commingling
significantly increases the potential for traffic congestion
·
A high volume of
commercial freight traffic.
·
Local commuters
as a majority of persons arriving.
To expedite the flow of traffic at land ports, several technologies have been implemented in recent years that are listed below. With implementation of the virtual border, we will be able to match information on each foreign national when presented for inspection, and determine the risk of allowing entry.
·
The Secure
Electronic Network for Traveler's Rapid Inspection (SENTRI or
·
NEXUS (License
Plate Reader) uses the same RF technology as SENTRI and includes a
pre-enrollment process to screen applicants and then issues a proximity card
that can be read as the car moves past the inspection station. The inspecting officer makes a positive
visual identification of each participant based on the picture and personal
information on screen. This system is
individual passenger-based as opposed to being vehicle-based and uses proximity
card technology for transmission of information.
For land borders, we are considering including expanded use
of Radio Frequency (RF) technology to expedite processing of frequent border
crossers using biographical data as a part of the virtual border solution. Also, we are currently looking at ways to use
RF technology to facilitate travel and collect entry and exit data. To that end, we are planning to test RF
technology at select primary entry and exit lanes of the 50 busiest land border
crossings. These plans are not part of
the statutory mandate for
Status Management
Includes Identifying Overstays
Managing the status of foreign nationals once inside the
borders of the
·
Monitoring the
terms of their admission by matching the entry and exit records to determine if
any foreign national has overstayed the terms of admission
·
Identifying
violations in terms of admission
·
Referring watch
list and visa compliance leads to agencies and organizations responsible for
enforcement.
Maintaining the status of
foreign nationals while in the
The Exit Process Will
Capture Departure Information
With the implementation of US-VISIT's virtual border, the exit process at air and sea ports will require the visa holder to provide information to match against the information provided upon entry. One exit option currently being piloted captures two fingerscans, and transfers the data to IDENT to match the arrival and departure records. This information is also run against ADIS and IBIS.
This one pilot process-consisting of automated kiosks -- is
being tested at
Implementation of an exit process at land borders has more complexities and has yet to be determined.
With this virtual border, we will know who left the
The Analysis of Information Process Will Use
US-VISIT Information to Extend the Virtual Border
The purpose of the analysis of information process is to provide information that will aid border management in their decision-making process. Currently, the Arrival/Departure Information System (ADIS) system is the primary data source for use in these analyses.
A visitors'
information is stored and routinely updated in the ADIS. Information compiled in ADIS will tell the
officer if an individual has complied with the terms of his or her admission. ADIS illustrates a visitor's travel history,
information that the U.S. Customs and Border Protection officer can use to make
admission determinations. If the history
illustrates any immigration violations, the officer would give more scrutiny to
the visitor.
As the US-VISIT Program moves into the direction of the virtual border, this process will take on an ever-increasing level of importance. In migrating to the US-VISIT virtual border solution, emphasis will be placed on providing an increased level of information to all border management personnel (e.g., the consular official, the inspector, the adjudicator, and the investigative officer) to aid them in making critical decisions.
We Will Safeguard the
Personal Privacy of Our Visitors
An obvious concern for all legitimate travelers is that
criminals will use their lost or stolen travel documents to enter the
Additionally, one of US-VISIT's primary goals is to
safeguard the personal information in a way that is responsible and respectful
of privacy. US-VISIT will collect
personal information of visitors in order to determine immigration
admissibility. This information will be
used for interactions with
We are complying with both the letter and the spirit of the Privacy Act of 1974 and the E-Government Act of 2002. We are developing a comprehensive privacy program that ensures that we use personal information appropriately, that it is protected from misuse and improper disclosure, and destroyed when no longer needed.
And, in spite of the fact that these laws do not require
US-VISIT to have a Privacy Impact Assessment (PIA), because a PIA applies to
Additionally, we have developed a three-step redress process for visitors to have their records reviewed and amended or corrected to ensure accuracy, relevancy, timeliness, or completeness.
This comprehensive privacy program is being spearheaded by DHS's Chief Privacy Officer, Ms. O'Connor Kelly, to ensure that US-VISIT is in compliance with the appropriate privacy rules and regulations. Also, US-VISIT hired its own privacy officer to oversee its program.
We have also done extensive outreach, meeting with numerous advocacy, privacy and immigration groups to solicit input and hear concerns, which have been taken into account in the development of the program.
The US-VISIT PIA was hailed by many in the privacy community as an excellent model of transparency, including detailed information about the program, the technology and the privacy protections.
US-VISIT's Virtual Border Implementation Schedule
US-VISIT is being implemented in increments, with the first on December 31 of last year. The other increments will be deployed over the coming years with the ultimate goal of having a robust system that can deliver all of the US-VISIT goals. The steps to this program include:
Increment 1 COMPLETED
·
Collect and verify biometrics for foreign
nationals arriving with nonimmigrant visas at air and seaports of entry by
· Check admissibility against watchlists using biographic and biometric data
· Establish exit pilots and complete testing by end of FY 2004 with implementation to occur in FY 2005.
Increment 2A -
·
Issue
· Deploy capability to read biometric travel documents in compliance with ICAO standards at air and sea ports of entry.
Increment 2B -
· Extend Increment 1 capability to 50 highest volume land ports
Increment 3 - 12/31/05:
· Extend Increment 2B to remaining land ports
Increment 4:
· Launch initial roll-out of US-VISIT envisioned program
US-VISIT's Budget
We deployed US-VISIT on budget and on schedule. During Fiscal Year (FY) 2003 we used appropriated funds of $367 million to achieve successful deployment to 115 airports and 14 seaports. Specifically we have:
· Implemented/interfaced systems to reduce redundancy and make more information available
· Upgraded our infrastructure to support added biometrics
·
Deployed the US-VISIT program to 115 airports
and 14 seaports on
· Initiated the exit pilot at one airport and one seaport
· Established the US-VISIT program office
During FY 2004, we have a total of $328 million plus an additional $10 million in no-year funds that we intend to use to continue meeting our goals. Currently, our FY 2004 Expenditure Plan is approved by the U.S. Senate and waiting approval from the U.S. House of Representatives, and when these funds are released we plan to:
· Analyze, field test, and initiate deployment of alternative approaches for verifying identity on exit at air and sea ports of entry
· Implement US-VISIT Increment 1 capabilities at the 50 busiest land border ports of entry by December 2004
· Install biometric readers at all air, sea, and land ports of entry
· Continue building our program management capabilities
In addition, we plan to award a contract to a prime contractor for further development of our end vision. This comprehensive approach to border management will lead to the creation of a virtual border and will set the course for improved processes for management of data on foreign visitors.
The Success Stories of US-VISIT
Since US-VISIT entry procedures were implemented, it has resulted in the interception of dozens of individuals who matched various law enforcement information. These included rapists, drug traffickers, credit card and visa fraud criminals, and a convicted armed robber.
Here are details of a few examples.
1) Interception of Drug Trafficker who escaped from Prison
On
2)
Closing a Deportation
On
3) Passport Fraud Uncovered
On
4) Convicted Sexual Offender Identified
In
5) Rape Suspect Caught
On
A CBP Trainee Rises to the Occasion
U.S. Customs and Border Protection Officer Trainee Rafal
Izycki was working at primary inspection at Chicago O'Hare International
Airport. An Albanian national seeking admission into the
An Update on US-VISIT Program Office
Secretary Ridge approved the creation of a US-VISIT program office, and positions have been approved to fill the organization and manage the program. The US-VISIT program team consists of representatives from the various components of DHS responsible for border security, including the U.S. Immigration and Customs Enforcement, U.S. Customs and Border Protection, and the Transportation Security Administration. U.S. Citizenship and Immigration Services is also represented. Other DHS components that assist the US-VISIT team include the Directorate for Management and the Science and Technology Division. In addition, outside DHS, the team consists of representatives from the Departments of Transportation, State, Commerce, Justice, and General Services Administration.
The Conclusion
US-VISIT is critical to our national security as well as our
economic security, and its implementation is already making a significant
contribution to the efforts of the Department of Homeland Security to provide a
safer and more secure
We want to ensure that we continue to be a welcoming nation,
a nation that invites visitors to study, do business, and relax in our country. We also owe it to our citizens and visitors
to deny entry to persons wishing to do harm, or who are inadmissible to the
We are committed to building a program that enhances the
integrity of our immigration system by catching the few and expediting the
many, and we recognize that the
[UB1]Do we know that US-VISIT is a deterrent?
[UB2]These two sentences need to be rewritten. Unclear what is being said. APIS has been in affect for years.
[UB3]Increased accuracy of what?
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