Utilizing and Visualizing Geolocation Data for Powerful Analysis
Transcription
Utilizing and Visualizing Geolocation Data for Powerful Analysis
Comprehensive Immigration Reform Transforming the U.S. Immigration System Comprehensive Immigration Reform Transforming the U.S. Immigration System Proposed comprehensive immigration reform will require federal, state, and local agencies to assess the impact of proposed statutory changes on existing programs and the potential need for new programs. Affected agencies will include those with primary responsibility for immigration, border security, and law enforcement and will also extend to agencies that provide services and benefits to populations that may increase as a result of the legislation. In fact, it is difficult to imagine an agency that will be not be affected by immigration reform. Even though the legislation is not final, agencies need to consider the possible effects of proposed reform provisions and prepare for the transformational change to the nation’s immigration system. As a long-time partner with the agencies that manage the immigration system and border security, Booz Allen Hamilton has observed first-hand the many challenges federal officials face accomplishing their mission in this highly complex area and is prepared to collaborate, partner, and consult on the way ahead. The immigration system includes the laws, regulations, policies, and procedures that govern the movement of foreign nationals into and out of the country by which the United States meets its responsibility as a sovereign nation. It also includes the capabilities, competencies, and capacity of each agency that in aggregate enable the implementation of policy and the enforcement of laws. This system necessarily interacts with and impacts all elements of national power and a broad range of stakeholders, including foreign governments, domestic large and small-business owners, foreign students, local government officials, the private sector, and immigration advocacy groups. In recent years at the request of our federal partners, Booz Allen has initiated numerous studies and engaged experts with government and private sector experience to glean lessons from the past and develop innovative solutions for addressing our nation’s immigration challenges. Upon reflection of the challenges that comprehensive reform will pose, implementing reform legislation will likely entail: (1) understanding and learning the important lessons of past reform efforts, (2) confronting and solving the difficult execution of mandates related to migrant labor, entry and exit, legalization, and internal enforcement, (3) applying the advantages of new technology and solutions unavailable to earlier undertakings, and (4) creating a community approach to implementation. This paper presents the results of that collective reflection upon how best to implement immigration reform. The Impetus for Reform Today’s immigration system is confronted by serious challenges. The Departments of Homeland Security (DHS) and State struggle to keep pace with the demands of managing the millions of foreign nationals who legally arrive in the United States for work, study, travel, and legal immigration. Meanwhile, the problem of resolving legal status for the estimated 11 million immigrants who illegally reside in the United States looms over the nation (see Exhibit 1 on page 2).1 In addition, discussions on immigration reform over the past decade have taken place in the context of the terrorist attacks of September 11 and associated issues related to border security and a continually evolving and complex threat environment. The current discussion regarding immigration reform has generally centered on three basic elements: 1. The strengthening of border and interior enforcement to ensure immigration laws are fairly and effectively executed; 2. The creation of a pathway to legal residency for qualified foreign nationals living illegally in the United States; 1 Pew Research Center, http://www.pewhispanic.org/2012/12/06/unauthorized-immigrants11-1-million-in-2011/ 1 3. The development and implementation of policies and procedures that more effectively support U.S. economic interests regarding seasonal and temporary workers, foreign students, and intellectual capital. Any or all of these principles will likely be addressed in a final legislative package. Achieving the goals of comprehensive immigration reform legislation will be a complex, transformational undertaking. Once legislation is enacted, the challenges of implementation will be significant, demanding an “enterprise” or “community” approach that includes a complex network of federal departments, agencies, and programs involved in these elements. However, it is a mistake to think of this reform effort as simply an issue of scale—that is, more enforcement, more legalizations, more visas. The implementation of effective reform follows a life cycle starting with reimagining agencies’ individual and collective missions and ending with the execution of programs and activities that are sustainable…that “stick.” Given the anticipated impact of proposals already under discussion, it is clear that agencies will have to make fundamental changes to their organizations’ processes and procedures to deliver real reform. Building the Foundation for Reform Successful immigration reform implementation will depend in part on the government’s ability to understand the lessons learned from previous reform efforts and apply them to the challenges posed by the new reform legislation. Immigration reform efforts are not new to the United States. Since the post-war era alone, the United States has seen eight major legislative actions or modifications to the immigration system, complemented by dozens of executive orders or policy adjustments. Most informative to current reform, in 1986 Congress passed the Immigration Reform and Control Act (IRCA), and in June 2012, the Obama Administration enacted the Deferred Action for Childhood Arrivals (DACA) policy through executive order. The lessons learned from previous legislation and policy efforts should inform strategies for future implementation. Key lessons from IRCA include: Number of Unauthorized Immigrants Exhibit 1 | Estimated Annual Unauthorized Immigrant Population in the United States: 1990 to 2010 12,000,000 9,000,000 6,000,000 3,000,000 0 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 Year Source: Unauthorized Immigration to the United States: Annual Estimates and Components of Change, by State, 1990 to 2010. Robert Warren, John Robert Warren. International Migration Review, Volume 47 Number 2 (Summer 2013) 2 • IRCA was not comprehensive in its handling of the illegal population. Critics deemed IRCA’s legalization program not inclusive enough, offering legal status only to those who had been “continually present” in the United States for five years prior to the law. While IRCA offered legal status to three million people, it failed to address nearly two million people who remained in an unlawful status, making them more susceptible to marginalization and exploitation.2 This population became the core of the current illegal population in the United States as individuals continued to migrate to join family members already living illegally in the United States. As a result, an imbalance was created between the illegally present population and resources available for border and interior enforcement (see Exhibit 2). • IRCA failed to develop and staff programs to deal with follow-on legal migration. Relatives of immigrants legalized under IRCA applied for immigration benefits in far greater numbers than anticipated, creating visa backlogs that persist today. Effective reforms are addressed over the expected life cycle of implementation. • Employers and the government had difficulty verifying worker status. Neither side had the resources or tools to verify workers’ identities in a systematic way.3 Effective worksite enforcement requires accurate and timely employment authorization data to be available to all employers. It is likely that mandatory identity verification will be included in any reform legislation in addition to improved biometrics. Exhibit 2 | Immigration Facts and Figures About the Population • Foreign Born Population (who entered after 1979)—31 million4 • Legally Resident Immigrant Population (as of January 1, 2011)—22 million4 • Unauthorized Population (as of January 1, 2011)—12 million4 About Benefits • Adjustment of Status (I-485) Applications Received in 2012—300,0005 • Academic Student (F1) Visas Issued in 2012—2 million6 • Naturalizations in 2011—700,0007 About Enforcement • Individuals Removed by U.S. Immigration and Customs Enforcement (ICE) in FY2012—400,0008 • Apprehensions by U.S. Border Patrol in FY2012—400,0009 2 Demetrios G. Papademetriou, “The Fundamentals of Immigration Reform," The American Prospect, Volume 24, Number 2. http://prospect.org/article/fundamentals-immigration-reform 3 Ibid. 4 Estimates of the Unauthorized Immigrant Population Residing in the United States, January 2011. http://www.dhs.gov/xlibrary/assets/statistics/publications/ois_ill_pe_2011.pdf 5 USCIS Adjustment of Status Form I-485 Performance Data (FY2010 - October FY2013). http://www.uscis.gov/USCIS/Resources/Reports%20and%20Studies/Immigration%20 Forms%20Data/Adjustment%20of%20Status/I485-performancedata-2013-Oct.pdf 3 6 Nonimmigrant Admissions to the United States, 2011. http://www.dhs.gov/xlibrary/assets/ statistics/publications/ni_fr_2011.pdf 7 U.S. Naturalizations, 2011. http://www.dhs.gov/xlibrary/assets/statistics/publications/ natz_fr_2011.pdf 8 http://www.ice.gov/removal-statistics/ 9 http://www.cbp.gov/xp/cgov/border_security/border_patrol/usbp_statistics/ • Enforcement elements of IRCA fell far short of need. The border control and interior enforcement efforts of the Immigration and Naturalization Service (INS) did not ramp up until years after IRCA passed—a critical lapse that affected all components of IRCA’s implementation, yielding a larger unauthorized population today and delays in processing, as the system was simply overrun. Border and interior enforcement agencies are united in a single department and are staffed at far higher levels today than in 1986. Yet work remains to re-imagine the border and internal enforcement and integrate the law enforcement effort through improved information sharing. The recent DACA implementation also provides valuable insight into the programs and processes that may be employed under proposed legislation. While some may see the DACA application process as a pilot program for registration of unauthorized non-citizens applying for a path to citizenship, a comprehensive approach should build on the lessons of the DACA experience and modify the process as appropriate for this new applicant pool and demographic. Some first impressions from DACA include: • United States Citizenship and Immigration Services (USCIS) had minimal preparation time to implement the program but incorporated a flexible approach. USCIS had a limited timeline to prepare for DACA application processing and since the launch of the program has been continuously improving the processes to best meet program needs. This suggests USCIS can develop a legalization program on a quick timeline but should be given significant time to prepare for the much larger unauthorized population. • The loudest critics of the DACA program focus on concerns around fraud, particularly as it relates to an applicant’s income claims. The income reporting that is required to justify an applicant’s standing for legal work is also a basis for potential tax liability. A clear, understandable process that meets the evidentiary requirements for employment and minimizes the opportunity for fraudulent claims is needed. • Applicants have expressed different concerns including the application fee (which cannot be waived), inconsistent or changing documentation requirements, and the inability to appeal applications. Fees, penalties, or fines required or imposed will be determined in legislation and may limit agency discretion to adapt to demand. The fee-for-service model that currently funds legal immigration is unlikely to be altered in legislation. Agencies will need to prepare for and monitor these concerns throughout the implementation of the program through active change management. Direct and effective communication as part of an enterprise outreach plan will be critical. The Challenges of Implementing Reform Based on the United States’ previous immigration reform experiences, current political debate, and congressional action to date, comprehensive immigration reform will likely create three broad implementation challenges for federal agencies, as discussed earlier: 1. Development and implementation of a system to evaluate and process registered provisional immigrants; 2. Establishment of a framework to strengthen border and interior enforcement; 3. Creation of a flexible strategy for anticipating future migration demand as well as life cycle implementation and execution of reform. While Congress will prioritize, authorize, and appropriate funds, as well as broadly direct how these challenges will be met, federal agencies will be tasked with, and held accountable for, effectively implementing the provisions of the legislation. There will also be an expectation in the current fiscal environment that agencies will demonstrate flexibility with existing funding and improve the effectiveness and efficiency of existing programs. Gaining a thorough understanding 4 of the potential implementation challenges will enable agencies to address and overcome certain hurdles to meet the collective goals of immigration reform. The queue of registered provisional immigrants must be established, managed, and monitored Any immigration reform proposal that includes a legalization program will begin with a line of legal, or registered, prospective immigrants to be processed for a status change. The first step will likely be akin to the DACA application process with an application, relevant supporting documentation, and a processing fee. The major challenge for the government lies in communicating effectively with the millions of individuals who will be eligible for a status change. Mobilizing qualified individuals to come out of the shadows and interact with the federal government will require a community engagement strategy to deliver the right message, in the right way, to the right people. Given previous rollouts of reform, the timeline for developing and delivering a communications approach will be limited. The 1986 IRCA implementation was criticized for the INS’s weak outreach as well as the short timeframe allowed for education of immigrant groups on IRCA’s legalization programs.10 Seeking buy-in and assistance from immigrant community organizations early on will aid in ensuring illegal immigrants properly register and begin the process of qualifying for legal residency. In addition, incorporating new technology including social networking into community engagement strategies will enable agencies to reach a variety of eligible applicants in ways that were unavailable during IRCA implementation. Second, the government will need to effectively deploy a broad range of application methods—such as Internetbased, paper applications, third-party assisted—to reach the greatest possible number of eligible applicants. As with the communications approach, this will require a multifaceted application process that accommodates eligible applicants’ situations. A preferred comprehensive immigration reform scenario would allow applicants to apply electronically or 10 Juffras, RAND, Impact of the Immigration Reform and Control Act on the Immigration and Naturalization Service, 1991 5 using a paper application, as many applicants may have institutional, structural, or economic barriers to electronic-only applications. Regardless of how applicants apply, a diversified enterprise must collect or ingest relevant information within an effective case management system. The system, most likely the USCIS Electronic Immigration System (ELIS) system or close variant, should allow for individuals to complete their initial application and track their status throughout the process. Third, beyond the initial application process, federal agencies will need systems to collect and share pertinent information throughout an eligible person’s legal status review across the government enterprise. During IRCA implementation, applicants appeared for two in-person interviews with numerous INS officers before a final adjudication.11 Given today’s national security concerns and the larger illegal immigrant population, comprehensive immigration reform implementation will have to take an innovative approach to addressing this challenge. USCIS has made some progress in this area, including the use of service centers and the development of the Fraud Detection and National Security (FDNS) directorate, but more will need to be done. Using the right technology, including the use of biometric information and cloud data architectures that enable interoperability, ensures successful tracking of individuals and cases as well as screening for those individuals who pose threats to public safety and national security. This instant information sharing will help verify new data with information previously collected by federal agencies and diminish the risk of fraud. Building more of these capabilities into the front end of the systems will avoid many of the long-term challenges faced since IRCA was passed in 1986 IRCA. Current efforts to consolidate information technology (IT) systems, exchange data in cloud architectures, and create a new generation of analytical capabilities will need to be sustained and, in most cases, accelerated. 11 Migration Policy Institute, November 2010 Policy Brief: Structuring and Implementing an Immigrant Legalization Program: Registration as the First Step, Donald M. Kerwin and Laureen Laglagaron An Experienced Partner Booz Allen supports reform initiatives across the government: • Immigration Reform: Booz Allen has supported DHS components including U.S. Immigration and Customs Enforcement (ICE), U.S. Customs and Border Protection (CBP), and U.S. Citizenship and Immigration Services (USCIS) through modifications of the immigration system and in determining the impact of comprehensive immigration reform on the agencies. Booz Allen, while supporting ICE, won the Institute for Operations Research and the Management Sciences’ (INFORMS) inaugural Innovation in Analytics Award for the project, “Enhancing Immigration Enforcement with Decision Analytics.” Additionally, Booz Allen supports many of the non-DHS agencies likely affected by comprehensive immigration reform, including the Departments of State, Labor, Justice, Health and Human Services, as well as the Social Security Administration and the Internal Revenue Service. • Financial Reform. Booz Allen helped our clients assess the implications of the DoddFrank legislation on their mission. We helped our clients address the varying degrees of change wrought by the new law, from standing up an entire bureau at the Consumer Financial Protection Bureau (CFPB), to working to operationalize newly created offices such as the Office of Complex Financial Institutions at the Federal Deposit Insurance Corporation (FDIC) and the Office of Financial Research at Treasury, to operations redesign across multiple offices and divisions within the Securities and Exchange Commission (SEC). • Health Care Reform. The Patient Protection and Affordable Care Act (ACA) enacted in March 2010 denotes significant reform to the U.S. healthcare market by expanding access to affordable health insurance and establishing new rules and regulations for healthcare delivery. Booz Allen is actively supporting multiple clients tasked with the implementation and coordination of several key provisions across the Center for Consumer Information and Insurance Oversight (CCIIO), a part of the Centers for Medicare & Medicaid Services (CMS) and the Internal Revenue Service (IRS). Working on 13 projects within those agencies responsible for reform implementation, Booz Allen provides an array of services, including strategic planning, stakeholder engagement, communications, change management, governance/oversight, performance management, policy analysis, process and procedure development, organizational design, risk management, and transition planning. • Cyber Security. Booz Allen provides ongoing implementation support for President Obama’s Executive Order on “Improving Critical Infrastructure Cybersecurity,” including advising on strategic risk management activities. Further, Booz Allen works with clients to develop and promote partnerships with public and private sector entities to further the advancement of cyber security. Booz Allen also supports the national “Stop.Think.Connect.” campaign to educate the public about being more secure online and the DHS Cyber Education Office to enhance education and workforce development in cyber security. 6 Border and interior enforcement must address national security and public safety concerns Significant challenges will remain to ensure rigorous enforcement both during and after reform. Following any form of comprehensive immigration reform legislation, individuals will still attempt to cross the border illegally, overstay a visa, and illegally obtain work. Many are concerned that comprehensive immigration reform will produce a surge in illegal immigration, similar to that experienced in the years following the passage of IRCA in 1986. As the current number of illegal immigrants is estimated at more than 11 million people, it is clear that tougher enforcement, particularly employer sanctions, enacted as part of IRCA, did not stop illegal immigration in the long term. The illegal immigrant population increased from 3.2 million in 1986 to 12.4 million in 2007 before dipping down to 11.1 million in 2011.12 One major challenge that will accompany any reform effort is balancing border and interior enforcement with the deployment of legalization programs. During implementation, the middle ground between strong enforcement and legalization of individuals must be realized. Maintaining this balance will be difficult but necessary to ensure that larger investments can be made in the programs that best support the overarching reform agenda. Agencies must have the optimized infrastructure, processes, and resources in place to continue enforcement after legalization programs are initiated. As previously noted, the creation of DHS in 2003 was intended to remove organizational barriers to more effective border security. Resources on the border have grown significantly. There were nearly 400,000 U.S. Border Patrol apprehensions in fiscal year (FY) 2012. If population flows to the United States following the passage of legislation mimic the behavior observed in 1986, U.S. Customs and Border Protection (CBP) can expect as much as 35 percent more apprehensions in the wake of comprehensive immigration reform.13 Smarter, tougher border security and interior enforcement led through a DHS enterprise approach to re-imagining its missions coupled with a less circuitous 12 Ruth Ellen Wasem, Congressional Research Service, Unauthorized Aliens Residing in the United States: Estimates Since 1986, December 13, 2012 13 http://www.cbp.gov/xp/cgov/border_security/border_patrol/usbp_statistics/ 7 path to legal status can decrease the incentives to migrate illegally. Another key challenge is effective interior enforcement for those individuals who already crossed the border (legally or illegally) and reside within the United States. U.S. Immigration and Customs Enforcement (ICE) has realized effective enforcement through lead-generating systems that target criminals (such as Secure Communities), but programs must continue to focus on worksite enforcement through an improved (and likely mandatory) E-Verify program, effective visa overstay monitoring, and the capture of exit information. E-Verify is a free, voluntary program run by DHS that allows employers to compare U.S. government records to a potential employee’s Employment Eligibility Verification form to determine if that person is eligible to work in the United States. Enhanced mandatory E-Verify would include enrolling all employers and potentially using biometric identification to validate legal status. A systematic way to monitor and enforce visa overstays must be implemented as well. A biometric exit system would advance the Arrival and Departure Information System (ADIS) and provide actionable leads for visa overstays to maximize the benefits of trade and travel while mitigating risks to public safety and national security. In addition, enforcement agencies must monitor those who may violate the terms of their new status and those who are ineligible for the registered provisional status. Advanced information sharing (interoperability) should be in place between government agencies enforcing immigration laws. To do this, aging systems must be able to communicate so that ineligible applicants, or those who jeopardize their status, can be efficiently identified. A flexible strategy for responding to migration demand must be realized and implemented Previous immigration reform efforts failed to account for labor needs across a continuum of skills and industries. While immigrants comprise 13 percent of the U.S. population, they make up 16 percent of the workforce, a percentage that has steadily increased since the 1970s.14 Reform legislation will likely seek to replace existing constraints with a far more flexible and responsive system. The government must develop a process for effectively balancing domestic and foreign labor supplies to guarantee U.S. global competitiveness. This process would include three areas: (1) defining the types and number of workers needed; (2) communicating with industry about their future labor needs; and (3) fairly adjudicating and efficiently processing applications for workers. The U.S. population is aging rapidly—in fact, between 2000 and 2010, the 45-and-older population grew 18 times faster than the population under 45.15 This aging trend underlies the need for more workers of every education and skill level to participate in the labor market, and providing a clear path will facilitate this supply. Moreover, jobs heavily composed of foreign workers and strongly affected by the aging population, such as nursing and home health aides, will be in growing demand in the future. Simultaneously, established industries, including construction, hospitality, and agriculture, as well as emerging (or re-emerging) industries will continue to rely on permanent and temporary foreign workers. Understanding future labor needs and associated fluctuations will allow the United States to adjust immigration flows to best serve its economic needs. Past efforts have focused on seasonal and agriculture labor, but those labor flows have been institutionalized in current business practices. Establishing and maintaining clear channels to share real-time information among industries and businesses, labor organizations, and the government in a consistent and meaningful way will be an important hurdle for the government to overcome. Effective communication among relevant stakeholders must align to ensure that the visa supply for all types of labor meets business demands. Streamlining the visa application process to make it more expedient and efficient will not only attract and retain talented innovators but will bolster the U.S. labor force in the future. Finally, an improved process with a less circuitous path for legal status for employees and their families from abroad can decrease motivations for illegal immigration. While current immigration law is managed on a first-come, first served basis with quotas for certain green card and visa categories, family and employment-based channels for attaining legal status in the United States are plagued with massive backlogs and decade-long processing times. Reform is needed to not only usher in comprehensive immigration laws but also to fix a damaged system of visa processing and adjudication. Success Factors for Implementing Immigration Reform Booz Allen’s research and experience show that immigration reform efforts will benefit greatly by incorporating previous immigration reform lessons learned, such as those discussed in this paper, with the newly identified challenges to develop certain capabilities. These capabilities will help government agencies provide effective and responsive action to participants in the immigration system. Many of these capabilities exist to various degrees, but it is their comprehensive and integrated application as a government enterprise that will generate the improvements needed to achieve the goals of immigration reform. The following success factors are not tied to any specific proposals under consideration by the White House or Congress; rather, they apply equally to all reform recommendations. Regardless 14 Singer, Brookings Institute, http://www.brookings.edu/research/papers/2012/03/15immigrant-workers-singer 15 http://www.brookings.edu/research/papers/2011/06/28-census-age-frey 8 of the specific provisions that lawmakers ultimately adopt, the likelihood of success will be significantly increased by—and may depend upon—how well the reformed immigration enterprise system incorporates the following recommendations. 1. Revise the way agencies address the immigration system Reform will likely demand that agencies produce more efficient outcomes for processing benefits and enforcing immigration laws—simply adjusting capacity in a singular way will not be enough. Viewing the immigration system in a holistic way, influencing and being influenced by multiple stakeholders, will enable agencies to better prepare for sustainable results. Agencies should establish achievable and clear goals that incorporate success measures to which multiple agencies and stakeholders will be held accountable. Immigration could become the impetus or lever for agencies to seriously respond to the current austere fiscal environment and press for more efficiency and effectiveness across all agency missions. Re-Imagine the Mission Comprehensive immigration reform provides the chance to re-imagine organizations’ individual and collective missions. This opportunity will enable agencies to refine their processes and systems to meet future mission requirements. Innovation and thinking creatively about how the pieces will fit together will be necessary as agencies, departments, and partners begin to work in new ways. One way to ensure that the operating models can be effectively transformed in the midst of reform is standing up a Program Management Office (PMO) in affected agencies. A PMO would treat comprehensive immigration reform as a complex collection of projects across a variety of business units. The program leader would have the benefit 9 of complete access to information across these projects, which would allow for more complete management of the entire process. Previous studies show that as programs increase in complexity, the likelihood of successful implementation declines. Two of the leading reasons for failure are poor planning and weak governance. A PMO provides a central planning and a governance framework to manage the set of projects across an integrated timeline and budget, as will likely be stipulated by the legislation. Consideration should be given to establishing PMOs within agencies and at the enterprise level to ensure a whole-of-community response. Immigration reform legislation could alter priorities or dramatically change mission responsibilities for many agencies. Specifically, it provides the opportunity to re-imagine organizations’ missions and could result in a complete overhaul of processes, infrastructure, and technology associated with the current immigration system. Agencies should expand both individual and cooperative planning efforts to rethink the limitations of current capabilities and enhance scenario and budget planning, policy development, partner agency coordination, and future need anticipation as legislation develops. Strategies and plans will require flexibility to accommodate changes that will come post-implementation. Effective management and reprogramming of base resources will become a mandate. 2. Modernize and integrate systems to support data analytics The immigration system currently maintains large quantities of data across many different agencies for a variety of purposes. During reform implementation, agencies will collect and manage vast amounts of information to verify identities, monitor cases, and engage in interior and border enforcement. These systems and technologies will need to be maintained and coordinated across relevant agencies in order to improve adjudication during a legalization program and strengthen enforcement. Find the Money by Showing the Value In these challenging budgetary times, the need for IT investments can get lost in the battle for resources. However, to effectively serve the customers of immigration reform while protecting public safety, agencies need effective and interconnected systems. An investment now in the IT systems of the immigration system will help ensure agencies protect both safety and opportunity. To facilitate faster and more reliable information gathering and sharing within the immigration system, federal departments and agencies will need to modernize and integrate current information systems. For example, expanding biometric programs and technologies will enhance the overall integrity of the immigration system as biometric identifiers may become shared by many agencies involved in the reform effort. In addition, information gathering should not only be simplified on modern systems but can also be mobile-enabled to reduce the physical infrastructure associated with the immigration system. of new data to create risk profiles to help identify foreign nationals who are using false identities and other fraudulent means to enter the country or obtain immigration benefits. Of particular note, advanced analytic techniques can glean predictive insights, uncover patterns and anomalies, and spot emerging threats. Analytic and predictive techniques can identify attributes indicating a person might be a threat or perpetrating fraud, allowing for a risk-based approach to be taken as a part of a larger approach to both provisional application adjudication and long-term enforcement. Technology-enabled threat detection not only increases the speed of threat identification but also reduces the labor hours spent culling through the vast amount of data available to the immigration system. This technology will both improve national security and reduce costs. The key to achieving the goals of improved data sharing and analytics is cloud computing. The cloud enables agencies to expand (or scale up) their storage and computing capabilities quickly and efficiently using existing IT models and systems. Combined with the use of mobile technology, cloud technology will embed an essential degree of flexibility as requirements may need to adapt over time. If implemented correctly, reform can be a catalyst for improved IT practices and drive IT management efficiencies, the introduction of cloud technologies, improved analytical capabilities, and access to that data regardless of where the user is working. The collection, sharing, and analysis of data will also enable agencies to strengthen fraud-detection and risk-based approaches. As agencies expand information sharing, they can use the large stores 10 3. Develop a whole community approach As demonstrated by the widespread social media response to the Boston bombings, social media has the ability to focus significant attention on behavior and individuals, rightly or wrongly. In the Boston case, the crowdsourcing “sleuths” misidentified individuals as potential bombers, causing those suspected great harm. Similarly bloggers and social media users will be active during the legalization process. Government agencies should prepare to actively participate in social media as an important method of community engagement and performance feedback. For example, the whole community approach could identify significant individuals in immigrant communities across social media platforms and involve them throughout the process. Government representatives could engage individuals regarding questions and encourage applications from eligible individuals, as well as dispel rumors. An enterprise approach to public participation Exhibit 3 | Immigration Reform Effect: Where It Is Felt Source: Booz Allen Hamilton 11 should be designed into the enterprise program executive office. The whole community approach requires a communications and social-marketing strategy that engages and educates stakeholder groups through media and messages tailored to each group’s unique roles and needs. However, the goal of an effective community engagement strategy is not just to inform but also to influence behavior in pursuit of desired outcomes. This approach would not only help protect vulnerable immigrant communities against fraud but would also increase trust and facilitate positive outcomes for both immigrants and the nation. Achieving reform’s ambitious goals will require all elements of the immigration system to work together and support one another in performing their individual mission functions (see Exhibit 3). Although DHS houses the primary agencies delivering immigration services and enforcement, other departments and agencies currently provide direct or supporting services, including the Departments of State, Labor, Justice, and Health and Human Services, as well as the Social Security Administration and Internal Revenue Service. This approach does not stop with coordination at the federal level but extends to state and local agencies, employers, and non-governmental organizations that serve immigrant communities. A comprehensive, inclusive strategy will lay the foundation needed to educate stakeholders about their roles and responsibilities in implementing the legislation. Implementation of the recent Executive Order to improve the cyber security of critical infrastructure resulted in the creation of an Interagency Task Force to manage the broad range of work required. The need for an enterprise level (government-wide) program executive office or task force will be needed to unify and integrate immigration reform efforts. Making it Stick Using a variety of tools to educate and engage both direct and indirect stakeholders will be crucial to successful implementation. Tailoring communication and outreach strategies to particular audiences’ needs and lifestyles will help increase buy-in. For example, using social media and mobile-enabled technology may speak to a younger generation of illegal immigrants who are eligible for registered provisional status. responsibilities for federal agencies working directly or indirectly with the immigration system. Achieving these goals will not be easy, given the size and complexity of the issues facing our nation. Federal agencies can learn from the past and continue planning for comprehensive immigration reform by beginning to address the capabilities needed to implement reform. Booz Allen combines a comprehensive understanding of the immigration system and its stakeholders with expertise in helping clients work through complex organizational challenges. Booz Allen provides the structure, partnership, and inspiration to work with agencies as they navigate the uncertainty that accompanies multi-stakeholder, largescale changes such as comprehensive immigration reform. Ways to start addressing immigration reform include planning for the operational changes that will accompany reform efforts; securing funds to modernize current systems for the anticipated future need; and starting to build a community for implementation. In this way, comprehensive immigration reform can spur a genuine transformation that enhances mission capabilities within each agency, while also creating a unified immigration system that meets the nation’s 21st-century economic and security needs. Conclusion The approach to comprehensive immigration reform is far from finalized. The legislation will likely offer a pathway for illegal immigrants to adjust their statuses and serve as a vehicle for strengthening border security and improving overall immigration services. The legislative process will undoubtedly yield many new 12 Contact Information Thad Allen Executive Vice President [email protected] 703-902-6755 13 David Rubin Senior Vice President [email protected] 703-902-6842 Shannon Fitzgerald Vice President [email protected] 703-377-1425 Angela Zutavern Principal [email protected] 703-984-1028 About Booz Allen Booz Allen Hamilton has been at the forefront of strategy and technology consulting for nearly a century. 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