S 1618 IS
107th CONGRESS
1st Session
S. 1618
To enhance the border security of the United States, and for other
purposes.
IN THE SENATE OF THE UNITED STATES
November 1, 2001
Mr. KENNEDY (for himself, Mr. BROWNBACK, Ms. CANTWELL, Ms. COLLINS, Mr.
EDWARDS, Mr. HAGEL, Mr. REID, and Mr. ENSIGN) introduced the following bill;
which was read twice and referred to the Committee on the Judiciary
A BILL
To enhance the border security of the United States, and for other
purposes.
Be it enacted by the Senate and House of Representatives of the United
States of America in Congress assembled,
SECTION 1. SHORT TITLE.
This Act may be cited as the `Enhanced Border Security Act of 2001'.
SEC. 2. ACCESS TO AND COORDINATION OF LAW ENFORCEMENT AND OTHER
INFORMATION.
(a) REPORT IDENTIFYING LAW ENFORCEMENT AND INTELLIGENCE INFORMATION-
(1) REQUIREMENT FOR REPORT- Not later than 90 days after the date of
enactment of this Act, the Secretary of State, the Commissioner of
Immigration and Naturalization, and the Director of Central Intelligence
shall jointly submit to the appropriate committees of Congress a report
identifying the information being collected by all of the United States law
enforcement agencies and the intelligence community that is needed by the
Department of State and the Immigration and Naturalization Service to screen
visa applicants and applicants for admission to the United States to
identify those aliens inadmissible or deportable under the Act.
(2) COOPERATION BY SOURCES OF INFORMATION- Upon receipt of a request
from the Secretary of State, the Commissioner of Immigration and
Naturalization, the Director of Central Intelligence, or the Director of the
Office of Homeland Security for assistance or cooperation in the preparation
of the report under this subsection, the head of a United States law
enforcement agency or the appropriate official within the intelligence
community shall provide the requested assistance or cooperation.
(1) REQUIREMENT FOR PLAN- Based on the findings of the report under
subsection (a), the Secretary of State, the Commissioner of Immigration and
Naturalization, and the Director of Central Intelligence shall, not later
than 120 days after the submittal of the report under that subsection,
jointly develop and implement a plan that requires United States law
enforcement agencies and the intelligence community to provide to the
Department of State and the Immigration and Naturalization Service all
information identified in the report under subsection (a) as expeditiously
as practicable.
(2) CONSULTATION REQUIREMENT- In the preparation and implementation of
the plan under this subsection, the Secretary of State, the Commissioner of
Immigration and Naturalization, and the Director of Central Intelligence
shall consult with the appropriate committees of Congress.
(3) PROTECTIONS REGARDING INFORMATION AND USES THEREOF- The plan under
this subsection shall establish conditions for using the information
described in subsection (a) received by the Department of State and
Immigration and Naturalization Service--
(A) to limit the redissemination of such information;
(B) to ensure that such information is used solely to determine
whether to issue a visa to an alien or to determine the admissibility of
alien to the United States;
(C) to ensure the accuracy, security, confidentiality, and destruction
of such information;
(D) to protect any privacy rights of individuals who are subjects of
such information;
(E) to provide for the timely removal of obsolete or inaccurate
information; and
(F) in a manner that protects the source and method used to acquire
intelligence information as required by section 103(c)(6) of the National
Security Act of 1947 (50 U.S.C. 403-3(c)(6)).
(c) INTEROPERABLE LAW ENFORCEMENT AND INTELLIGENCE DATA SYSTEM-
(1) REQUIREMENT FOR INTEROPERABLE DATA SYSTEM- Not later than one year
after the commencement of implementation of the plan required by subsection
(b), the Secretary of State, the Attorney General, the Commissioner of
Immigration and Naturalization, and the Director of Central Intelligence
shall develop and implement a unified electronic data system to provide
current and immediate access to information in databases of United States
law enforcement agencies and the intelligence community that is relevant to
determine whether to issue a visa or to determine the admissibility of an
alien to the United States.
(2) CONSULTATION REQUIREMENT- In the development and implementation of
the data system under this subsection, the Secretary of State, the Attorney
General, the Commissioner of Immigration and Naturalization, and the
Director of Central Intelligence shall consult with the Director of the
Office of Homeland Security, the Foreign Terrorist Tracking Task Force,
United States law enforcement agencies, and the intelligence
community.
(3) TECHNOLOGY STANDARD- The data system developed and implemented under
this subsection, and the databases referred to in paragraph (1), shall
utilize the technology standard established pursuant to section 403(c) of
the United and Strengthening America by Providing Appropriate Tools Required
to Intercept and Obstruct Terrorism Act of 2001.
(4) ACCESS TO INFORMATION IN DATA SYSTEM- Subject to paragraph (5),
information in the data system under this subsection shall be readily and
easily accessible as follows:
(A) To any foreign service office responsible for the issuance of
visas.
(B) To any Federal agent responsible for determining the admissibility
of an alien to the United States.
(5) LIMITATION ON ACCESS- The Secretary of State, the Attorney General,
and the Director of Central Intelligence shall establish procedures to
restrict access to intelligence information in the data system under this
subsection, and the databases referred to in paragraph (1), under
circumstances in which such information is not to be disclosed directly to
government officials under paragraph (4).
(d) ADDITIONAL CONSULTATION REQUIREMENTS- In the preparation of the report
required by subsection (a), and in the development and implementation of the
plan required by subsection (b), the Secretary of State, the Commissioner of
Immigration and Naturalization, and the Director of Central Intelligence shall
consult with the Director of the Office of Homeland Security and the Foreign
Terrorist Tracking Task Force.
(e) DEFINITIONS- In this section:
(1) The term `appropriate committees of Congress' means the
following:
(A) The Committee on the Judiciary and the Select Committee on
Intelligence of the Senate.
(B) The Committee on the Judiciary and the Permanent Select Committee
on Intelligence of the House of Representatives.
(2) The term `intelligence community' has the meaning given that term in
section 3(4) of the National Security Act of 1947 (50 U.S.C. 401a(4)).
SEC. 3. ENSURING ADEQUATE PERSONNEL AT PORTS OF ENTRY AND TECHNOLOGY
IMPROVEMENTS AT PORTS OF ENTRY AND CONSULAR POSTS.
(a) FTE LIMITATION- The Attorney General is authorized to waive any
limitation on the number of full-time equivalent personnel assigned to the
Immigration and Naturalization Service.
(b) INS STAFFING- There are authorized to be appropriated such sums as may
be necessary to meet the Immigration and Naturalization Service staffing
levels estimated as required by the current Workforce Analysis Models for
United States ports of entry. Such staffing level authorization shall require
the necessary numbers of border patrol and inspectors payable at a GS-11
level, inspections assistants to be paid at a GS-7 level, and the associated
clerical support staff at the specified General Schedule level in such
models.
(c) TRAINING- There are authorized to be appropriated such sums as may be
necessary--
(1) to appropriately train Border Patrol personnel, United States
Customs Service personnel, and Immigration inspectors on an ongoing basis to
ensure that their proficiency levels are acceptable to protect the borders
of the United States; and
(2) to provide adequate continuing cross training to agencies staffing
the United States ports of entry to effectively and correctly apply
applicable United States laws.
(d) UNITED STATES DEPARTMENT OF STATE; BUREAU OF CONSULAR AFFAIRS- There
are authorized to be appropriated such sums as may be necessary--
(1) to implement enhanced security measures for the review of visa
applicants;
(2) to enhance intelligence interface with United States and
international intelligence information;
(3) to staff the associated infrastructure; and
(4) to provide ongoing training for consular officers.
(e) FUNDING OF TECHNOLOGY-
(1) AUTHORIZATION OF APPROPRIATIONS- In addition to funds otherwise
available for such purpose, there are authorized to be appropriated
$50,000,000 to the Immigration and Naturalization Service, and $50,000,000
to the United States Customs Service, for purposes of--
(A) making improvements in technology (including infrastructure
support, computer security, and information technology development) for
improving border security; and
(B) expanding, utilizing, and improving technology at ports of entry
to improve border security.
(2) WAIVER OF FEES- Federal agencies involved in border security shall,
when practicable, waive enrollment fees for technology-based programs to
encourage alien participation in such programs.
(3) OFFSET OF INCREASES IN FEES- The Attorney General shall, to the
extent reasonable, increase land border fees for the issuance of
arrival-departure documents to offset technology costs.
(f) MACHINE READABLE VISA FEES-
(1) REPEAL- Section 140(a) of the Foreign Relations Authorization Act,
Fiscal Years 1994 and 1995 (Public Law 103-236) is amended by striking
paragraph (3).
(2) AMOUNT- The machine readable visa fee charged by the Department of
State initially shall be the higher of $65 or the cost of the machine
readable visa service, as determined by the Department of State through a
cost-of-service study.
(3) SURCHARGE- The Department of State is authorized to charge a
surcharge of $10, in addition to the machine readable visa fee, for issuing
a machine readable visa in a non-machine readable passport.
(4) AVAILABILITY OF COLLECTED FEES- Amounts collected as fees described
in this subsection shall be credited as an offsetting collection to any
appropriation for the Department of State to recover costs of providing
consular services. Amounts so credited shall be available, until expended,
for the same purposes as the appropriation to which credited.
SEC. 4. PERIMETER NATIONAL SECURITY PROGRAM.
(a) STUDY OF PERIMETER NATIONAL SECURITY PROGRAM- The Secretary of State
and the Commissioner of Immigration and Naturalization, in consultation with
the Director of the Office of Homeland Security and the
Foreign Terrorist Tracking Task Force, shall jointly conduct a study of the
costs, procedures, and implementation alternatives of a Perimeter National
Security Program, which shall involve a review of, at least the following:
(1) NORTH AMERICAN NATIONAL SECURITY COOPERATIVE- The feasibility of
establishing a cooperative task force of the appropriate representatives of
Canada, Mexico, and the United States to establish, implement, and monitor
an intercountry system to evaluate and determine the admission of foreign
nationals based on national security concerns, including the monitoring of
the entry and exit of foreign nationals from such countries.
(2) PRECLEARANCE- A program enabling foreign national travelers to the
United States to submit voluntarily to a preclearance procedure established
by the Department of State and the Immigration and Naturalization Service to
determine whether such traveler is admissible to the United States under
section 212 of the Immigration and Nationality Act (8 U.S.C. 1182). For each
traveler determined to be admissible under such procedure, the processing of
the traveler's admission upon arrival to the United States shall be
expedited upon confirmation of identity. In the conduct of the element of
the study under this paragraph, consideration shall be given to the
feasibility of expanding the preclearance program to include the
preclearance both of foreign nationals traveling to Canada and foreign
nationals traveling to Mexico.
(3) PREINSPECTION- The number, location, and cost of establishing,
staffing, and providing for the training of inspectors to be assigned to
foreign preinspection facilities to determine admissibility to the United
States under section 212 of the Immigration and Nationality Act,
including--
(A) the feasibility of expanding foreign preinspections to foreign
nationals on flights destined for Canada and Mexico; and
(B) the feasibility of cross training and funding of inspectors from
Canada and Mexico.
(4) CONDITIONS- The measures necessary to satisfy the conditions
required by section 235A(a)(5) of the Immigration and Nationality Act (8
U.S.C. 1225a(a)(5)).
(b) REPORT- Not later than 180 days after the date of enactment of this
Act, the Secretary of State and the Commissioner of Immigration and
Naturalization shall, in consultation with the Director of the Office of
Homeland Security, jointly submit to the Committees on the Judiciary of the
House of Representatives and the Senate a report setting forth the findings of
the study conducted under subsection (a).
(c) FUNDING- There is authorized to be appropriated such sums as may be
necessary to carry out this section.
SEC. 5. IMPLEMENTATION OF INTEGRATED ENTRY AND EXIT DATA SYSTEM.
(a) IMPLEMENTATION OF INTEGRATED ENTRY AND EXIT SYSTEM AT PORTS OF ENTRY
AND ENHANCEMENT OF SECURITY OF LAND BORDER PORTS OF ENTRY- In light of the
terrorist attacks perpetrated against the United States on September 11, 2001,
the Commissioner of Immigration and Naturalization shall, in consultation with
the Secretary of State, fully implement the integrated entry and exit data
system for ports of entry, as specified in the Immigration and Naturalization
Service Data Management Improvement Act of 2000 (Public Law 106-215), with all
deliberate speed and as expeditiously as practicable.
(b) DEVELOPMENT OF ENTRY AND EXIT SYSTEM AND ENHANCED SECURITY AT PORTS OF
ENTRY- In developing the integrated entry and exit data system for the ports
of entry as specified in subsection (a), the Commissioner of Immigration and
Naturalization and the Secretary of State shall consider--
(1) implementing the Perimeter National Security Program's
implementation;
(2) implementing, funding, and using a technology standard to confirm
identity at United States ports of entry and at consular posts abroad;
(3) using biometric identifiers in conjunction with issuance of any
arrival-departure record, any type of visa to be issued by the Department of
State, and any travel document issued to an alien by either the Department
of State or the Immigration and Naturalization Service;
(4) requiring machine readable visas and passports for entry;
(5) creating a database containing the arrival and departure data from
machine readable visas, passports, and arrival-departure records;
(6) integrating all security databases relevant to making an
admissibility determination under section 212 of the Immigration and
Nationality Act (8 U.S.C. 1182);
(7) using visa issuance data from the Department of State's visa
issuance database to create the initial record for travelers for whom the
visa requirements are not waived under section 214 or 217 of the Immigration
and Nationality Act or any other provision of such Act; and
(8) implementing technologies that facilitate the cross-border movement
of persons and commerce without compromising the safety and security of the
United States.
SEC. 6. FOREIGN SERVICE OFFICER TRAINING.
(a) TRAINING- The Secretary of State shall require that all Foreign
Service officers, before undertaking to perform consular responsibilities,
receive specialized training in the effective screening of visa applicants who
pose a potential threat to the safety or security of the United States. These
officers shall be specially and extensively trained in the identification of
aliens inadmissible under section 212(a)(3) (A) and (B) of the Immigration and
Nationality Act, interagency and international intelligence communication
regarding terrorists and terrorism, and cultural-sensitivity toward visa
applicants.
(b) REPORT- Not later than 180 days after the date of enactment of this
Act, the Secretary of State shall submit to Congress a report regarding the
establishment of relevant training programs.
(c) USE OF FOREIGN INTELLIGENCE INFORMATION- As an ongoing component of
the training required
in subsection (a), the Secretary of State shall coordinate with the Director
of the Office of Homeland Security, United States law enforcement agencies, and
the intelligence community (as defined in section 3(4) of the National Security
Act of 1947 (50 U.S.C. 401a(4)), to compile and disseminate to the Bureau of
Consular Affairs reports, bulletins, updates, and other current unclassified
information relevant to terrorists and terrorism and to screening visa
applicants who pose a potential threat to the safety or security of the United
States.
(d) AUTHORIZATION OF APPROPRIATIONS- There is authorized to be
appropriated such sums as may be necessary to implement this section.
SEC. 7. PASSENGER MANIFEST INFORMATION.
(a) IN GENERAL- Every international commercial air carrier arriving in the
United States from a foreign state shall be required to provide to the
Attorney General manifest information specified in subsection (b) in advance
of such arrival.
(b) INFORMATION- The information to be provided with respect to each
person listed on the manifest may include--
(5) passport number and country of issuance;
(6) country of residence;
(7) United States visa number, date and place of issuance, where
applicable;
(8) alien registration number, where applicable; and
(9) such other information as the Attorney General, in consultation with
the Secretary of State, determines is reasonable to protect safety and
national security.
(c) REVIEW- Information provided under this section shall be reviewed
against all intelligence and law enforcement databases available to the
Attorney General.
(d) PROCEDURES FOR THE ELECTRONIC TRANSMISSION OF MANIFEST INFORMATION-
Not later than January 1, 2003, every international commercial air carrier
subject to the requirements of this section shall develop procedures to permit
the electronic transmission of manifest information required by this
section.
SEC. 8. FOREIGN STUDENT AND EXCHANGE VISITOR PROGRAM.
(a) DATA COLLECTION- Section 641(c)(1) of the Illegal Immigration Reform
and Immigrant Responsibility Act of 1996 is amended--
(1) by striking `and' at the end of subparagraph (C);
(2) by striking the period at the end of subparagraph (D) and inserting
`; and'; and
(3) by adding at the end the following:
`(E) the date of entry and port of entry;
`(F) the date of the alien's enrollment in an approved institution of
higher education, other approved educational institution, or designated
exchange visitor program in the United States; and
`(G) the date of the alien's termination of enrollment and the reason
for such termination (including graduation, disciplinary action or other
dismissal, and failure to re-enroll).'.
(b) REPORTING REQUIREMENTS- Section 641(a) of the Illegal Immigration
Reform and Immigrant Responsibility Act of 1996 (8 U.S.C. 1372(a)) is amended
by adding at the end the following:
`(3) ALIENS FOR WHOM A VISA IS REQUIRED- The Attorney General, in
consultation with the Secretary of State, shall establish an electronic
means to monitor and verify--
`(A) the issuance of documentation of acceptance of a foreign student
by an approved institution of higher education or other approved
educational institution, or of an exchange visitor program participant by
a designated exchange visitor program;
`(B) the transmittal of the documentation referred to in subparagraph
(A) to the Department of State for use by the Bureau of Consular
Affairs;
`(C) the issuance of a visa to a foreign student or an exchange
visitor program participant;
`(D) the admission into the United States of the foreign student or
exchange visitor program participant;
`(E) the notification to an approved institution of higher education,
other approved educational institution, or exchange visitor program that
the foreign student or exchange visitor participant has been admitted into
the United States;
`(F) the registration and enrollment of that foreign student in such
approved institution of higher education or other approved educational
institution, or the participation of that exchange visitor program in such
designated exchange visitor program, as the case may be; and
`(G) any other relevant act by the foreign student or exchange visitor
program participant, including a changing of school or designated exchange
visitor program and any termination of studies or participation in a
designated exchange visitor program.
`(4) REPORTING REQUIREMENTS- Not later than 15 days after the
commencement of an academic term of an approved institution of higher
education or other approved educational institution for which documentation
is issued for an alien as described in paragraph (3)(A), or the scheduled
commencement of participation by an alien in a designated exchange visitor
program, as the case may be, the institution or program, respectively, shall
report to the Immigration and Naturalization Service any failure of the
alien to enroll or to commence participation pursuant to the certification
of that institution or program.'.
SEC. 9. SPECIAL PROVISION FOR CERTAIN NONIMMIGRANTS.
No nonimmigrant visa shall be issued to any alien from a country
designated by the Secretary of State to
be a state sponsor of terrorism until appropriate clearances are conducted on
such alien and it has been determined that such alien does not pose a threat to
the safety or national security of the United States.
SEC. 10. REVIEW OF INSTITUTIONS AND OTHER ENTITIES AUTHORIZED TO ENROLL OR
SPONSOR CERTAIN NONIMMIGRANTS.
(a) PERIODIC REVIEW OF COMPLIANCE- The Commissioner of Immigration and
Naturalization, in consultation with the Secretary of Education, shall conduct
periodic reviews of the institutions certified to receive nonimmigrant
students under section 101(a)(15) (F), (M), or (J) of the Immigration and
Nationality Act. Each review shall determine whether the institutions are in
compliance with--
(1) recordkeeping and reporting requirements to receive nonimmigrant
students under section 101(a)(15) (F), (M), or (J) of that Act; and
(2) recordkeeping and reporting requirements under section 641 of the
Illegal Immigration Reform and Immigrant Responsibility Act of 1996 (8
U.S.C. 1372).
(b) PERIODIC REVIEW OF SPONSORS OF EXCHANGE VISITORS-
(1) REQUIREMENT FOR REVIEWS- The Secretary of State shall conduct
periodic reviews of the entities designated to sponsor exchange visitor
program participants under section 101(a)(15)(J) of the Immigration and
Nationality Act.
(2) DETERMINATIONS- On the basis of reviews of entities under paragraph
(1), the Secretary shall determine whether the entities are in compliance
with--
(A) recordkeeping and reporting requirements to receive nonimmigrant
exchange visitor program participants under section 101(a)(15)(J) of the
Immigration and Nationality Act; and
(B) recordkeeping and reporting requirements under section 641 of the
Illegal Immigration Reform and Immigrant Responsibility Act of 1996 (8
U.S.C. 1372).
(c) EFFECT OF FAILURE TO COMPLY- Failure of an institution or other entity
to comply with the recordkeeping and reporting requirements to receive
nonimmigrant students or exchange visitor program participants under section
101(a)(15) (F), (M), or (J) of the Immigration and Nationality Act, or section
641 of the Illegal Immigration Reform and Immigrant Responsibility Act of 1996
(8 U.S.C. 1372), may, at the election of the Commissioner of Immigration and
Naturalization, result in the termination of the institution's approval to
receive such students or the termination of the other entity's designation to
sponsor exchange visitor program participants, as the case may be.
SEC. 11. TREATMENT OF IMMIGRATION INSPECTORS AS LAW ENFORCEMENT OFFICERS OF
FEDERAL RETIREMENT PROGRAMS.
(a) CIVIL SERVICE RETIREMENT SYSTEM- Section 8331 of title 5, United
States Code, is amended--
(1) in paragraph (20), by inserting `, and an immigration inspector'
after `administrative position' in the first sentence;
(2) by striking `and' at the end of paragraph (27)(B);
(3) by striking the period at the end of paragraph (28) and inserting `;
and'; and
(4) by adding at the end the following:
`(29) `immigration inspector' means--
`(A) an employee in a position in the Immigration and Naturalization
Service the principal duties of which are to control and guard the
boundaries and borders of the United States against illegal entry of
aliens at ports of entry; and
`(B) an employee of the Immigration and Naturalization Service who is
serving in a supervisory or administrative position to which the employee
was transferred from a position described in subparagraph (A).'.
(b) FEDERAL EMPLOYEES' RETIREMENT SYSTEM- Section 8401 of title 5, United
States Code, is amended--
(A) by striking `and' at the end of subparagraph (C);
(B) by striking the period at the end of subparagraph (D) and
inserting `; and'; and
(C) by adding at the end the following new subparagraph:
`(E) an immigration inspector;';
(2) by striking `and' at the end of paragraph (33);
(3) by striking the period at the end of paragraph (34) and inserting `;
and'; and
(4) by adding at the end the following new paragraph
`(35) `immigration inspector' means--
`(A) an employee in a position in the Immigration and Naturalization
Service the principal duties of which are to control and guard the
boundaries and borders of the United States against illegal entry of
aliens at ports-of-entry; and
`(B) an employee of the Immigration and Naturalization Service who is
serving in a supervisory or administrative position to which the employee
was transferred directly from a position described in subparagraph (A)
after having served in such a position for at least three
years.'.
(c) EFFECTIVE DATE AND APPLICABILITY-
(1) IN GENERAL- The amendments made by this section shall--
(A) shall take effect on the first day of the first applicable pay
period that begins on or after the date of the enactment of this Act;
and
(B) shall apply with respect to service performed on or after such
effective date.
(2) SUPERVISORS AND ADMINISTRATORS- In the administration of paragraph
(1)(B), a person serving in a supervisory or administrative position as
described in section 8331(29)(B) or 8401(35)(B) of title 5, United States
Code, on the effective date of this Act shall be treated as serving in a law
enforcement officer position beginning on such date for the purposes of
subchapter III of chapter 83 of such title and chapter 84 of such
title.
SEC. 12. CERTAIN BORDER CROSSING IDENTIFICATION CARDS.
(a) EXTENSION OF DEADLINE FOR PRESENTATION- Section 104(b)(2) of the
Illegal Immigration Reform and Immigrant Responsibility Act of 1996 (8 U.S.C.
1101 note) is amended by striking `5 years' and inserting `6 years'.
(b) AUTHORIZATION OF APPROPRIATIONS- There is authorized to be
appropriated for the Immigration and Naturalization Service such sums as may
be necessary for the Service to purchase and implement the technology for
electronically reading border crossing identification cards and for access to
appropriate databases.
SEC. 13. REPEAL OF TIME LIMITATION ON INSPECTIONS.
Section 286(g) of the Immigration and Nationality Act (8 U.S.C. 1356(g))
is amended by striking `, within forty-five minutes of their presentation for
inspection,'.
END