REDACTED AND UNCLASSIFIED The Internal Effects of the Federal Bureau of Investigation’s Reprioritization U S Department of Justice Office of the Inspector General Audit Division Audit Report 04-39 September 2004 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED THE INTERNAL EFFECTS OF THE FEDERAL BUREAU OF INVESTIGATION’S REPRIORITIZATION EXECUTIVE SUMMARY In direct response to the September 11 2001 9 11 terrorist attacks the Director of the Federal Bureau of Investigation FBI initiated a transformation that among other things established a new ranking of priorities and formally shifted a significant number of agents from traditional criminal investigative work to counterterrorism and counterintelligence matters According to the Director each of the changes was designed to reshape the FBI into an organization better able to combat the imminent threat of terrorism and to prevent another large-scale terrorist attack against the United States Prior to 9 11 the FBI utilized more of its field agent resources to investigate traditional criminal activity than to investigate matters related to terrorism According to the FBI since the reprioritization it is striving to incorporate more proactive intelligence-based tactics and operations into its procedures particularly in terrorism-related matters Non-terrorism related crime however still occurs and because the FBI has the broadest jurisdiction of any federal law enforcement agency it is expected to maintain a response capability for violations of federal criminal law However other federal state and local law enforcement agencies may be capable of taking on increased responsibilities for certain investigative areas in light of the FBI’s reprioritization In order for this transition to occur effectively the specific areas from which the FBI has reduced its involvement must be identified The objective of this Office of the Inspector General OIG review was to identify internal operational changes in the FBI resulting from its ongoing reprioritization efforts focusing on the types of offenses that the FBI no longer investigated at pre-9 11 levels The review which covered fiscal years FYs 2000 through 2003 examined This is the unclassified version of the Office of the Inspector General’s OIG 486-page audit report which was classified “Secret” by the Federal Bureau of Investigation FBI To create an unclassified report for public release the OIG redacted deleted the portions of the report that were classified by the FBI The redacted portions are noted and included information about the number of FBI personnel assigned to national security matters The full report was provided to the Department of Justice the FBI and several Congressional committees REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED 1 the allocation of the FBI’s human resources 2 the specific areas in which the FBI utilized its human resources 3 the types and number of cases the FBI investigated and 4 the direction provided to FBI personnel in how the reprioritization was to be implemented Because our objective was to determine changes since the reprioritization we concentrated many of our analyses on comparing information from FYs 2000 and 2003 to obtain a view of resource utilization both before and well into the FBI’s reprioritization efforts The 9 11 attacks caused the FBI’s human resource utilization data and casework data to be inordinately skewed towards terrorism-related matters at the end of FY 2001 and throughout the first half of FY 2002 Therefore in order to conduct accurate analyses of changes within the FBI we chose to concentrate on a comparison of FYs 2000 and 2003 Additional details of our audit objective scope and methodology can be found in Appendix I FBI Priorities In May 2002 the FBI Director issued a new ranking of priorities that refocused FBI activities We found that these new priorities guided the FBI’s post-9 11 efforts and determined the structure of the FBI’s program plans and new strategic plan issued in March 2004 The top two priorities focus on terrorism-related matters while priorities three through eight are FBI criminal investigative functions The priorities are as follows 1 Protect the United States from terrorist attack 2 Protect the United States against foreign intelligence operations and espionage 3 Protect the United States against cyber-based attacks and high technology crimes 4 Combat public corruption at all levels 5 Protect civil rights 6 Combat transnational and national criminal organizations and enterprises 7 Combat major white-collar crime 8 Combat significant violent crime 9 Support federal state county municipal and international partners 10 Upgrade technology to successfully perform the FBI’s mission - ii REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Overall Field Office Agent Allocation and Utilization The means by which the FBI’s priorities are most directly translated into operation is via the establishment of Funded Staffing Levels FSLs the method by which the FBI allocates its personnel resources In general as part of the budget planning and execution process the FBI allocates its agent resources to the field by establishing FSLs within each of its program areas One FSL equates to one funded employee or one full-time equivalent FTE The FBI sets FSLs by program only for non-supervisory agents in FBI field offices Supervisory agent personnel are allocated to field offices in one lump sum as “management ” while support personnel are allocated to field offices by type of support function We analyzed changes in the FBI’s field agent allocations for FYs 2000 through 2003 and determined that the FBI generally shifted its allocation to reflect its new priorities Specifically we found that the FBI allocated more than 560 additional field agent positions to terrorism-related matters in FY 2003 than in FY 2000 while reducing the number of positions allotted for matters not related to terrorism during the same time period Most of this reduction in non-terrorism related matters occurred within the Organized Crime Drugs Program where a total of 758 field agent positions were transferred during our review period COMPARISON OF FIELD AGENT ALLOCATIONS IN TERRORISM AND NON-TERRORISM MATTERS FISCAL YEARS 2000 AND 2003 IIii TERRORISM RELATED FY 2000 i J NON-TERRORISM RELATED I FY 2003 Source OIG analysis of FBI Resource Management and Allocation Office data - iii REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED The FBI classifies its cases and tracks the time of most of its field personnel by means of a three-tiered system consisting of 12 programs that reflect general crime areas and several administrative functions 51 sub-programs that fall within 10 of these programs and 759 investigative classifications which provide the greatest level of detail 1 For its human resource utilization comparisons the FBI uses a computerized system called TURK Time Utilization and Recordkeeping which among other functions calculates the average number of personnel on-board at a particular point in time This value is referred to as Average On Board AOB and is a measure used throughout this report In order to determine how well its actual utilization of personnel falls in line with its allocation the FBI compares AOB to FSLs generally at the program level We performed this same comparison for field agents in FY 2003 in terrorism-related and non-terrorism related matters We found that the FBI utilized 845 more agents than it had allocated for terrorism-related matters while it utilized 879 fewer agents than planned in non-terrorism areas The following chart illustrates that the FBI exceeded its planned level of commitment to terrorism-related matters by utilizing resources it had planned to use on non-terrorism related matters FIELD AGENT ALLOCATION AND UTILIZATION IN TERRORISM AND NON-TERRORISM MATTERS FISCAL YEAR 2003 I ON-BOARD AGENTS TerrorismRelated i i FUNDED STAFFING LEVEL I Non-Terrorism Related Source OIG analysis of FBI TURK and Resource Management and Allocation Office data 1 These figures are current as of the end of the period reviewed September 20 2003 - iv REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Utilization and Casework Changes by Investigative Classification We also compared the FBI’s FY 2000 and FY 2003 field agent utilization at the investigative classification level to identify specific areas in which the FBI reduced its efforts the most We then identified the top 30 investigative classifications that experienced the most significant reductions in on-board agents during our review period The following chart shows the results of this review Classification Number 245C 281C 281A 088A 209A 091A 281F 245F 245B 029C 281B 281I 281E 196A 245D 196D 209B 245I 087B 026B 092C 196B 282A 300A 049A 249A 244 015B TOP 30 INVESTIGATIVE CLASSIFICATIONS EXPERIENCING THE GREATEST REDUCTIONS IN AGENT UTILIZATION FISCAL YEARS 2000 AND 2003 On-board Agent Classification Name Reduction OCDETF – Mexican Organizations OC DI – Mexican Organizations OC DI – LCN and Italian Organizations Unlawful Flight to Avoid Prosecution – Crime of Violence Health Care Fraud – Government Sponsored Program Bank Robbery OC DI – Other Major Criminal Organizations OCDETF – Other Major Criminal Organizations OCDETF – Central South American Organizations CLASSIFIED INFORMATION REDACTED FIF - $25K - $99 999 Fed-Insured Bank OC DI – Central South American Organizations OC DI – Caribbean Organizations OC DI – Asian Organizations Telema rketing Fraud OCDETF – VCMO – Gangs Other Wire Mail Fraud Schemes Health Care Fraud – Private Ins Program OCDETF – Caribbean Organizations Interstate Transportation of Stolen Property - $25K ITSMV – Commercial Theft or Chop Shops Racketeering Enterprise Investigations – Mexican Organizations Insurance Fraud Civil Rights – Color of Law – Force or Violence Counterterrorism Preparedness – Special Events Bankruptcy Fraud $50K or Court Officer Environmental Crimes Hostage Rescue Team CLASSIFIED INFORMATION REDACTED TFIS – Loss of $25K Weapons Explosives ACRONYMS OCDETF Organized Crime Drug Enforcement Task Force OC DI Organized Crime Drug Investigations LCN La Cosa Nostra FIF Financial Institution Fraud -123 -119 -103 -101 -89 -81 -76 -62 -61 -50 -44 -43 -40 -38 -37 -35 -32 -31 -29 -29 -28 -28 -28 -27 -26 -25 -24 -21 VCMO Violent Crime Major Offenders ITSMV Interstate Transportation of Stolen Motor Vehicles TFIS Theft From Interstate Shipment Source OIG analysis of FBI TURK data and NFIP Manual -vREDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Each of the 30 investigative classifications identified is related to an FBI program Specifically 12 of the 30 investigative classifications experiencing the largest reductions in agent resource utilization are related to organized crime drug matters Eight classifications are associated with white-collar crime six are related to violent crime two are foreign counterintelligence matters one is related to civil rights and the other pertains to domestic terrorism In order to develop an understanding of the general areas that were reduced the most by the reprioritization we summarized the total on-board agent decreases within each of these 30 classifications and grouped them into the ir respective program areas ON-BOARD AGENT REDUCTIONS FISCAL YEARS 2000 AND 2003 WITHIN PROGRAM AREAS FOR THE 30 CLASSIFICATIONS EXPERIENCING THE GREATEST REDUCTIONS IN AGENT UTILIZATION2 -28 -27 Civil Rights Domestic Terrorism CLASSIFIED INFORMATION REDACTED -767 Organized Crime I Drug White-Collar Crime Violent Crime Source OIG analysis of FBI TURK data 2 Foreign Counterintelligence is a sub-program within the FBI’s National Foreign Intelligence Program NFIP The remaining components listed are all FBI programs - vi REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED As shown in the preceding exhibit 3 program areas were primarily affected by the 30 classifications experiencing the greatest reductions in on-board agents Organized Crime Drugs OC D White-Collar Crime and Violent Crime We analyzed each of these program areas in detail including analyses of how the reductions in certain classifications impacted various types of field offices For example reductions in certain drug-related classifications involving Mexican organizations primarily affected field offices located along or near the southwest border of the United States while reductions involving health care fraud generally occurred within the FBI’s larger field offices In addition to our review of on-board agents we analyzed a universe of 404 318 field cases worked by the FBI during our review period and found 121 798 that arose from the 30 classifications we identified as experiencing the greatest on-board agent reductions We also reviewed trends in case openings and found that the FBI opened over 17 000 fewer cases within these 30 classifications in FY 2003 than in FY 2000 The FBI reduced the number of cases it opened most significantly with respect to violent fugitives where 11 617 fewer cases were opened in FY 2003 than in FY 2000 No other reductions in case openings were as significant although our result for bank robbery cases was notable We found that although the FBI reduced its utilization of on-board field agents in the classification for bank robberies by 26 percent during our review period the FBI actually opened 485 more bank robbery cases in FY 2003 than in FY 2000 Although we focused the bulk of our review on areas in which the FBI reduced its investigative efforts we also identified the 30 investigative classifications that experienced the greatest increases in agent utilization The majority of these classifications were in programs related to terrorism Specifically 24 of the 30 classifications with the greatest increases are part of either the National Foreign Intelligence or the Domestic Terrorism programs while the remaining 6 classifications fall into the Violent Crime Major Offenders White-Collar Crime and Applicant programs These classifications are highlighted in the following table - vii REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED TOP 30 INVESTIGATIVE CLASSIFICATIONS EXPERIENCING THE GREATEST INCREASES IN AGENT UTILIZATION FISCAL YEARS 2000 AND 2003 Classification Number Classification Name 196C 266A 306 067D 067B 089B 164C 253A 174D 300B 261G CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED Securities Commodities Fraud CLASSIFIED INFORMATION REDACTED AOT-DT – Violent Crimes – Predicate Offense Serial Killings CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED Support Applicant Investigations CLASSIFIED INFORMATION REDACTED Special Agent Applicant Investigations CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED Assaulting or Killing a Federal Officer CLASSIFIED INFORMATION REDACTED Crime Aboard Aircraft – All other CLASSIFIED INFORMATION REDACTED Fraud Rel Activity – Ident Documents FRAID – Terrorists Bomb Technician Activities CT Preparedness – Aviation Security CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED Security Officer Matters – Other CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED ACRONYMS AOT Acts of Terrorism DT Domestic Terrorism On-board Agent Increase 73 37 28 21 18 11 11 10 8 8 6 FRAID Fraud Related Activity Identification Documents CT Counterterrorism Source OIG analysis of FBI TURK data and NFIP Manual - viii REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED As with those classifications experiencing the greatest reductions we reviewed FBI cases worked during our review period from those classifications undergoing the largest increases in on-board agents We found that 22 993 of the original universe of 404 318 cases worked during our review period fell into one of these classifications We analyzed trends in the number of cases opened during our review period in these classifications and noted a general upward trend in total case openings Specifically we found that the FBI had opened 2 808 more cases in these classifications than it had in FY 2000 an increase of 81 percent Of these 30 classifications the number of cases opened involving investigations of CLASSIFIED INFORMATION REDACTED increased the most during our review period At the same time we noted significant increases in case openings for investigations involving Usama Bin Laden as well as foreign counterintelligence cases CLASSIFIED INFORMATION REDACTED Conclusions Since the 9 11 terrorist attacks the FBI reprioritized its mission formally moved a significant number of funded personnel from traditional criminal investigative areas to matters related to terrorism and reorganized itself with the intent of becoming a more proactive intelligence-driven law enforcement agency Our analyses revealed that FBI activities in FY 2003 were generally in line with its post-9 11 priorities Our analysis of FBI timekeeping data confirms that the FBI is performing less work in certain traditional criminal investigative areas and more work in areas related to terrorism Each of the areas that experienced the most significant reductions in on-board agents was provided guidance in how to prioritize their diminished resources including focusing their efforts on the major criminal issues that existed in their respective jurisdictions Field offices were also told to give first priority to those criminal investigations that had ties to terrorism This report contains comprehensive data-driven analyses of the changes in the FBI’s use of resources as a result of its shift in priorities and allocation of staff These types of analyses can be useful to FBI executive management and program directors for evaluating progress in meeting goals and obtaining a data-based view of the status of FBI operations We recommend that the FBI endeavor to conduct similar analyses on a regular basis In a follow-up review we plan to initiate we intend to conduct further analyses to determine how the FBI’s shift in priorities and operations has affected external law enforcement entities - ix REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED THE INTERNAL EFFECTS OF THE FEDERAL BUREAU OF INVESTIGATION’S REPRIORITIZATION TABLE OF CONTENTS CHAPTER 1 INTRODUCTION 1 Jurisdiction and Organizational Structure 1 FBI Programs 1 FBI Transformation 2 Prior Reviews 5 Audit Approach 6 CHAPTER 2 REPRIORITIZING THE FBI 8 Funded Staffing Levels 9 Resource Allocation Process 9 Data Collection 10 Overall FSL Analysis 10 FBI Field Offices 11 FBI Headquarters 20 Chapter Summary 23 CHAPTER 3 RESOURCE UTILIZATION AND CASEWORK 25 Automated System 26 Investigative Programs Sub-programs and Classifications 27 Agent Utilization at the FBI Program Level 28 Comparison of Agent Allocation to Utilization 31 Casework at the FBI Program Level 33 Agent Utilization and Casework at the FBI Classification Level 35 Chapter Summary 47 CHAPTER 4 REDUCTIONS IN FBI PROGRAMS 48 Organized Crime Drug Matters 49 Violent Crime Matters 52 White-Collar Crime Matters 56 Conclusion 59 CHAPTER 5 CONCLUSIONS AND RECOMMENDATION 60 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX I OBJECTIVE SCOPE AND METHODOLOGY 63 Audit Objective 63 Scope and Methodology 63 Data Analysis 64 APPENDIX II DESCRIPTIONS OF FBI PROGRAMS 71 APPENDIX III CROSSWALK OF FBI PROGRAMS AND SUB-PROGRAMS FYS 2000 THROUGH 2003 73 APPENDIX IV FBI ORGANIZATIONAL CHART 76 APPENDIX V FBI PRE-9 11 ORGANIZATIONAL CHART 77 APPENDIX VI CASEWORK IN TOP CLASSIFICATIONS 78 APPENDIX VII ORGANIZED CRIME DRUG MATTERS 80 Mexican Organizations 81 Central South American Organizations 85 Caribbean Organizations 88 La Cosa Nostra and Italian Organizations 91 Asian Organizations 93 Other Criminal Organizations 95 APPENDIX VIII VIOLENT CRIME MATTERS 99 Violent Fugitives 100 Bank Robbery 103 Hostage Rescue Team 105 Interstate Transportation of Stolen Property 106 Interstate Transportation of Stolen Motor Vehicles 109 Theft From Interstate Shipment 111 APPENDIX IX WHITE-COLLAR CRIME MATTERS Financial Institution Fraud Health Care Fraud Other Fraud Investigative Areas Environmental Crimes APPENDIX X FBI RESPONSE 128 APPENDIX XI OFFICE OF THE INSPECTOR GENERAL AUDIT DIVISION ANALYSIS AND SUMMARY OF ACTIONS NECESSARY TO CLOSE THE REPORT 132 REDACTED AND UNCLASSIFIED 113 113 115 119 125 REDACTED AND UNCLASSIFIED CHAPTER 1 INTRODUCTION Since the terrorist attacks of September 11 2001 9 11 the Federal Bureau of Investigation FBI has initiated a large-scale reorganization and reprioritization In connection with this a significant portion of the FBI’s agents and support personnel have been reassigned to terrorism-related matters The objective of this audit was to identify internal operational changes in the FBI resulting from its ongoing reorganization and reprioritization efforts including the types of offenses that the FBI no longer investigates at pre-9 11 levels Jurisdiction and Organizational Structure The FBI is the lead investigative agency of the United States Department of Justice responsible for enforcing over 200 federal laws It has the broadest jurisdiction of any federal law enforcement agency and is charged with counterterrorism and counterintelligence responsibilities as well as the investigation of criminal matters in the areas of civil rights cyber crime organized crime drugs violent crime and white-collar crime The FBI is a field-based law enforcement agency with its executive management located at FBI Headquarters in Washington D C In addition to its headquarters the FBI is composed of 56 field offices approximately 400 resident agencies smaller satellite offices 46 Legal Attaché offices and several additional specialized facilities The specialized facilities include the FBI Laboratory the FBI Academy and the Critical Incident Response Group CIRG Personnel at FBI Headquarters generally provide program direction and investigative support to FBI field components As of May 31 2004 the FBI employed 12 031 agents and 16 243 support personnel FBI Programs The FBI operates within a framework of programs sub-programs and investigative classifications by which it allocates agent resources to field offices tracks the time of most field employees and classifies cases This three-tiered organizational system includes 12 programs that reflect general crime areas and several administrative functions 3 A program is the most general category by which information is gathered maintained and tracked 3 The 12 programs cover the following areas national foreign intelligence domestic terrorism computer intrusion white-collar crime organized crime and drugs violent crime cyber crime criminal enterprises civil rights training applicants and miscellaneous matters A description of each program is contained in Appendix II REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED within the FBI The next level which is more specific is the sub-program There are a total of 51 sub-programs that fall within ten programs neither the Civil Rights nor Miscellaneous programs have sub-programs The most specific level that information is organized is an investigative classification At the end of FY 2003 there were 751 investigative classifications A crosswalk of FBI programs and sub-programs is located in Appendix III The FBI’s program structure often changes to incorporate new investigative areas or to rename and consolidate existing investigative efforts and administrative functions For example during FY 2003 the FBI added two new programs two new sub-programs and eight new investigative classifications Further the FBI may reduce the number of classifications it currently maintains In a memorandum issued in May 2003 the FBI Director described the list of investigative classifications as “cumbersome ” and stated that his goal is to reduce the list by at least 20 percent FBI Transformation In response to the 9 11 terrorist attacks the FBI Director initiated a transformation that overhauled FBI management created a new ranking of priorities to drive FBI investigations and formally shifted a significant number of agents from traditional criminal investigative work to counterterrorism and counterintelligence matters According to the Director each of these changes was designed to reshape the FBI into an organization better able to combat the imminent terrorist threat and to prevent another terrorist attack against the United States A timeline of the FBI’s transformation is shown in Exhibit 1-1 -2REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 1-1 FBI TRANSFORMATION TIMELINE FISCAL YEAR 2000 THROUGH MARCH 2004 Initial Reorganization of FBI December 2001 Includes creation of EADs for Criminal Investigations Counterterrorism Counterintelligence Law Enforcement Services Administration Cyber Division Established June 2002 Appointment of EAD for Office of Intelligence April 3 2003 Revised Organizational Chart of the FBI Approved by the Attorney General March 4 2004 Includes EADs for Terrorist Attacks September 11 2001 FISCAL YEAR 2000 Reprogramming of FBI Human Resources May 29 2002 FISCAL YEAR 2001 Criminal Enterprise Investigations Program Established August 2002 FISCAL YEAR 2002 FISCAL YEAR 2003 Office of Intelligence Established January 2003 Robert S Mueller III Sworn in as New FBI Director September 4 2001 Intelligence Counterterrorism Counterintelligence Law Enforcement Services Administration Criminal Investigations FBI Strategic Plan 2004-2009 Released March 2004 Announcement of FBI Top Ten Priorities May 21 2002 Attorney General Announces New Priorities of DOJ November 8 2001 Revised Organizational Chart of the FBI Approved by the Attorney General May 21 2003 Includes EADs for Intelligence Counterterrorism Counterintelligence Law Enforcement Services Administration Source OIG analysis of FBI planning materials -3REDACTED AND UNCLASSIFIED FY 2004 REDACTED AND UNCLASSIFIED Reorganization – The FBI restructured by merging or transferring several organizational components dissolving other components and creating new components In addition it created a new level of executive management which consisted of five new Executive Assistant Director EAD positions This supervisory level was placed between the office of the Deputy Director and most of the FBI’s operational divisions and offices 4 Reprioritization – In addition to creating a new organizational structure the Director determined that a new set of priorities clearly detailing FBI responsibilities should be established to shift the FBI from a traditional criminal investigative agency to one designed to combat terrorism In May 2002 the FBI issued a ranked list of top ten priorities to focus FBI efforts on areas that other law enforcement agencies could not effectively address and that the FBI was in a unique position to handle These new priorities listed prevention of a terrorist attack as the FBI’s top priority and also provided a roadmap for the FBI to evolve into a new intelligence-driven law enforcement agency A more detailed discussion of the new FBI priorities is contained in Chapter 2 Additionally in March 2004 the FBI formally issued its new strategic plan The plan which had last been updated in 1998 refers to the events of 9 11 and provides background on the FBI’s transformational process since that date specifically referencing how the FBI has adopted the concept of reengineering in order to effect change Specifically the plan discusses 1 the FBI’s intelligence-based forecast for the next five years in each of its priority areas 2 the recruitment hiring training and development of employees and 3 the tools the FBI needs to achieve its goals including information technology investigative technology communication systems and security Additionally the largest part of the plan organized along the lines of the FBI’s priorities articulates ten strategic goals the FBI must accomplish in order to achieve its mission Each goal contains objectives and performance goals that must be met for the FBI to achieve success Reprogramming – To focus the FBI’s efforts on terrorism and align its resources along the FBI’s new priorities in May 2002 the FBI Director formally reprogrammed more than 500 agents from traditional criminal investigative areas into terrorism-related programs Most of these agents were moved from drug violent crime and white-collar crime matters to terrorism-related programs The FBI’s drug-related work was most 4 The FBI’s current organizational structure was formally approved by the Attorney General on March 4 2004 An organizational chart depicting this structure is contained in Appendix IV while an organizational chart depicting the FBI’s pre-9 11 structure is contained in Appendix V -4REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED impacted with the transfer of 400 agents The Director stated that he made his reprogramming decisions after consultation with his executive management staff including the Special Agents in Charge SACs of all field offices as well as the United States Attorney’s Offices Congress and the Administrator of the Drug Enforcement Administration The May 2002 reprogramming is discussed in detail in Chapter 2 Prior Reviews We previously audited the FBI’s casework and resource utilization issuing a report in September 2003 5 We found that prior to 9 11 although the FBI stated that its top priority was terrorism-related work the FBI utilized more of its agent resources in traditional criminal investigative areas such as white-collar crime violent crime and organized crime drugs than in terrorism programs We also found that agent usage in terrorism-related areas significantly increased in the immediate weeks following 9 11 and after the initial flurry of activity resource usage related to terrorism stabilized at a level higher than prior to 9 11 In that review we made several recommendations to the FBI including that the Director explore additional means of analyzing the FBI’s resource utilization among its various programs The U S Government Accountability Office GAO also reported on the status of the FBI Reorganization in June 2003 6 The GAO determined that progress had been made in the FBI’s efforts to transform itself but major challenges remained Specifically the GAO found that a comprehensive transformation plan with key milestones and assessment points to guide its overall transformation plans was still needed The GAO noted that the FBI had not yet completed an update of its strategic plan and had not yet developed a human capital plan 7 According to the GAO the FBI faced challenges in using personnel from other criminal investigative programs to 5 Office of the Inspector General OIG Audit Report number 03-37 “Federal Bureau of Investigation Casework and Human Resource Utilization ” dated September 2003 6 U S Government Accountability Office GAO report entitled “FBI Reorganization Progress Made in Efforts to Transform but Major Challenges Continue ” report number GAO-03-759T dated June 18 2003 7 In March 2004 GAO again reported on FBI transformation in its report entitled “FBI Transformation FBI Continues to Make Progress in Its Efforts to Transform and Address Priorities ” report number GAO-04-578T dated March 23 2004 GAO reviewed the FBI’s new strategic and human capital plans and reported that the FBI was continuing to make progress in its efforts to transform However the GAO noted that while the FBI had instituted a number of separate reengineering projects it still did not have an overall transformation plan -5REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED address counterterrorism matters and the FBI did not possess adequate numbers of analytical technical and administrative support personnel Audit Approach The purpose of this audit was to review further the FBI’s internal changes resulting from its post-9 11 reprioritization and reorganization Specifically we sought to identify the investigative areas that experienced the greatest increases or reductions and then measure the level of change in both funded and utilized agent resources in these areas To accomplish this we reviewed planning documents and analyzed resource allocation utilization and casework data In addition we interviewed more than 40 officials at FBI Headquarters in Washington D C the FBI Academy and Laboratory at Quantico Virginia and the Critical Incident Response Group in Aquia Virginia In the wake of 9 11 vast amounts of resources from all FBI program areas were dedicated to assist in the investigations of the terrorist attacks This caused resource utilization and casework data at the end of FY 2001 and throughout the first half of FY 2002 to be skewed towards terrorism-related matters Therefore in order to conduct better comparisons of FBI data we eliminated FYs 2001 and 2002 from many of our evaluations and instead concentrated on comparing FY 2000 data to FY 2003 data Although our review period encompassed the entire period of September 26 1999 through September 20 2003 our decision to focus on FYs 2000 and 2003 in many of our analyses afforded a better “before” and “after” view into the FBI’s reprioritization efforts 8 The results of our review are detailed in Chapters 2 through 5 while the audit scope and methodology are contained in Appendix I Specifically in Chapter 2 we reviewed the steps the FBI took in implementing its new set of priorities and analyzed how this translated into funded agent and support positions in field offices and at FBI Headquarters We also obtained from the FBI’s timekeeping system data for on-board agent and support personnel for FYs 2000 through 2003 In Chapter 3 we analyzed changes at the program sub-program and investigative classification level to determine how the new list of priorities affected the FBI’s human resource utilization We also identified the investigative classifications in which the greatest resource usage changes occurred during our review period In addition we obtained a universe of field office cases from the FBI’s Automated Case Support ACS 8 According to the FBI’s Time Utilization and Recordkeeping TURK system FY 2000 began on September 26 1999 and FY 2003 ended on September 20 2003 -6REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED system for FYs 2000 through 2003 and reviewed them for changes that reflected the FBI’s new priorities In line with our objective to identify those areas in which the FBI had reduced its effort we focused on those criminal investigative matters in which the largest reductions in resource usage occurred This included in-depth analyses on each of these areas to determine how the FBI’s shift in priorities affected investigative work performed in the program area The results of these analyses can be found in Chapter 4 9 9 In addition to the analyses presented in the body of this report we also provided FBI management with several charts under separate cover These charts which contain more detailed information regarding the changes in on-board agents and casework experienced by each FBI field office during our review period are found in Supplemental Appendices I through III -7REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED CHAPTER 2 REPRIORITIZING THE FBI On May 21 2002 the FBI Director issued an e-mail to all FBI employees containing the new ranking of Top Ten Priorities which formally refocused the FBI’s mission The following chart contains the May 2002 priorities as well as the FBI investigative programs to which each primarily applies EXHIBIT 2-1 FBI TOP TEN PRIORITIES AND RELATED PROGRAMS Priorities § 1 Protect the United States from terrorist attack Related FBI Programs § International Terrorism1 0 § Domestic Terrorism § Foreign Counterintelligence10 § Cyber Crime § Computer Intrusion § Public Corruption1 1 § Civil Rights § Organized Crime Drugs § Criminal Enterprise Investigations § White-Collar Crime § Violent Crime Major Offenders § 2 Protect the United States against foreign intelligence operations and espionage § 3 Protect the United States against cyber-based attacks and high technology crimes § 4 Combat public corruption at all levels § 5 Protect civil rights § 6 Combat transnational and national criminal organizations and enterprises § 7 Combat major white-collar crime § 8 Combat significant violent crime § 9 Support federal state county municipal and international partners All Programs § 10 Upgrade technology to successfully perform the FBI’s mission All Programs § Source Director’s memorandum dated May 21 2002 10 This is a sub-program within the National Foreign Intelligence Program 11 This is a sub-program within the White-Collar Crime Program -8REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED The Director described the top three priorities on the list as being the FBI’s most critical challenges and the ones that would require the FBI to change its operational goals The wording of these priorities highlights that the most important goals for the FBI are protection and prevention a change from its traditional focus as a more reactive law enforcement agency Priorities four through eight are more traditional law enforcement functions which encompass much of the FBI’s historical investigative activities and which have remained primarily under the direction of the Criminal Investigative Division Priorities nine and ten were designated as the critical infrastructure to support all of the FBI’s investigative operations Funded Staffing Levels The means by which the FBI’s priorities are most directly translated into operation is via the establishment of Funded Staffing Levels FSLs the method by which the FBI allocates its personnel resources As a reflection of the shift in priorities the FBI stated that it would change the number of agents it had allocated to certain programs For example the events of 9 11 caused the Director to reevaluate current practices and reallocate a significant number of agent positions to terrorism-related areas We reviewed this reallocation by comparing the FSL levels in FY 2000 to the levels in FY 2003 12 Identifying the FSL changes indicated whether the FBI was in fact adjusting its human resource planning to meet its new objectives Resource Allocation Process Field Offices – In general the FBI allocates its agent resources to the field by establishing FSLs within each of its program areas One FSL equates to one funded employee or one full-time equivalent FTE This means that the FBI manager in charge of a program has a specific number of personnel to divide among the 56 field offices The FBI Resource Management and Allocation RMA Office with input from the Director Headquarters’ program managers and SACs is responsible for establishing the allocations annually as part of the budget planning and execution process The FBI sets FSLs by program only for non-supervisory agents in FBI field offices Supervisory agent personnel are allocated to field offices in one lump sum as “management ” while support personnel are allocated to field offices as clerical administrative investigative or technical types of support 12 We utilized final adjusted FSL values provided by the FBI’s Resource Management and Allocation Office for each of our analyses involving FSLs -9REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED FBI Headquarters – In general Headquarters personnel are in administrative positions Therefore the FBI does not allocate Headquarters agent or support positions by investigative programs Instead Headquarters FSLs for both agents and support are allocated according to organizational divisions e g the Criminal Investigative Division Counterterrorism Division and Finance Division 13 In part these organizational divisions encompass the various programs to which FSLs are allocated in the field For instance the Criminal Investigative Division oversees among others the Organized Crime Drug and Violent Crime Major Offenders programs Data Collection We obtained FSL data for FYs 2000 through 2003 FSLs for the FBI’s Headquarters and field office personnel which was further divided between agent and support positions 14 We analyzed this information and discuss it in the following sections It should be noted that the FBI experienced an overall decline in its FSLs from FYs 2000 to 2001 According to an FBI official this reduction was primarily a result of a mandate issued by the Office of Management and Budget OMB which has become known as the “hollow work year” issue In short OMB believed that the FBI did not have sufficient money to fund its level of authorized positions Therefore during FY 2001 but prior to 9 11 OMB ordered the FBI to reduce its reported numbers of funded positions The FBI adhered to this mandate and cut both agent and support funded positions within Headquarters and field offices although the majority of the reductions occurred in positions allocated to field offices In doing this no employees were terminated Instead all cuts took the form of the elimination of existing unfilled vacancies Overall FSL Analysis The Headquarters and field office FSLs for our review period are noted in Exhibit 2-2 The combined total of 27 484 positions for FY 2003 reflects an increase of 243 compared to those allocated in FY 2000 As shown significantly more personnel are assigned to field offices than FBI Headquarters From FYs 2000 through 2003 field offices had approximately twice as many positions as those allocated to Headquarters 13 An organizational chart that includes all FBI divisions is found in Appendix IV 14 The FBI’s FSL data did not include the positions allocated for specialized entities that are not a part of the field offices or FBI Headquarters e g the International Law Enforcement Academy in Budapest Hungary Legal Attaché Offices and the Critical Incident Response Group - 10 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 2-2 COMPOSITION OF FUNDED STAFFING LEVELS FISCAL YEARS 2000 THROUGH 2003 FY 2000 Total Agent Support Field Office FSL Subtotal Agent 1 5 Support Headquarters FSL Subtotal Agent Support FY 2001 FY 2002 FY 2003 27 241 11 296 15 945 18 439 10 474 7 965 25 925 10 785 15 140 17 516 9 981 7 535 26 534 10 800 15 734 17 810 10 022 7 788 27 484 11 255 16 229 18 197 10 124 8 073 8 802 822 7 980 8 409 804 7 605 8 724 778 7 946 9 287 1 131 8 156 Source OIG analysis of FBI Resource Management and Allocation Office data FBI Field Offices As noted in Exhibit 2-2 the FBI allocated 18 439 of its personnel resources to its field offices during FY 2000 and 18 197 during FY 2003 Thus there was a slight decrease in the number of funded positions in the field during this time period amounting to a reduction of 242 positions As previously mentioned the FBI allocates its non-supervisory field agents by particular program areas and its field support personnel by the type of support they provide Exhibit 2-3 provides a detailed account of how these agent and support FSLs were allocated from FYs 2000 through 2003 15 The field agent FSLs include positions allocated for supervisory agents within field offices - 11 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 2-3 COMPOSITION OF FIELD OFFICE FUNDED STAFFING LEVELS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2001 FY 2002 FY 2003 Field Office FSL Total 18 439 17 516 17 810 18 197 Field Agent FSL Subtotal White-Collar Crime Program Organized Crime Drug Program Violent Crime Major Offenders Program National Foreign Intelligence Program Management Domestic Terrorism National Infrastructure Protection Computer Intrusion Program1 6 Civil Rights Program Applicants Program Training Program Criminal Enterprise Investigations Program Cyber Crime Program Technically Trained Agents Evidence Response Teams Field Support FSL Subtotal Clerical Administrative Investigative Technical 10 474 2 460 9 981 2 404 10 022 2 210 10 124 2 303 2 279 2 078 1 511 1 521 2 004 1 821 1 006 1 009 CLASSIFIED INFORMATION REDACTED 1 073 439 1 098 434 1 111 518 1 131 505 CLASSIFIED INFORMATION REDACTED 153 132 131 153 121 91 153 79 90 153 79 90 N A N A 650 701 N A N A N A 7 965 3 987 2 822 1 156 N A N A N A 7 535 3 852 2 612 1 071 269 N A N A 7 788 3 940 2 703 1 145 268 38 20 8 073 3 960 2 957 1 156 Source OIG analysis of FBI Resource Management and Allocation Office data In FY 2003 the FBI’s 56 field offices ranged in size from as large as 1 972 funded positions New York City to as small as 71 funded positions Anchorage In terms of funded positions the FBI’s five largest field offices were New York City Washington Los Angeles Chicago and Miami Combined these offices represented over 30 percent of the total resources allocated to the field Exhibit 2-4 provides a list of the total FSLs allocated to each field office and FBI Headquarters for FYs 2000 and FY 2003 16 In FY 2003 the FBI did not allocate field agent positions for National Infrastructure Protection only the Computer Intrusion Program - 12 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 2-4 AGENT AND SUPPORT FUNDED STAFFING LEVELS FOR FBI FIELD OFFICES AND FBI HEADQUARTERS FISCAL YEARS 2000 AND 2003 FY 2000 FY 2003 FY 2000 FY 2003 LOCATION CHANGE CHANGE AGENTS AGENTS SUPPORT SUPPORT FIELD OFFICES NEW YORK CITY LOS ANGELES WASHINGTON CHICAGO MIAMI SAN FRANCISCO NEWARK PHILADELPHIA HOUSTON BOSTON DALLAS ATLANTA DETROIT SAN DIEGO PHOENIX BALTIMORE SAN ANTONIO SAN JUAN CLEVELAND SALT LAKE CITY NEW ORLEANS TAMPA DENVER KANSAS CITY PITTSBURGH SEATTLE EL PASO OKLAHOMA CITY 1 156 695 662 454 419 360 353 314 306 259 254 250 235 233 229 211 200 177 169 168 160 153 137 137 132 131 130 128 1 071 674 711 432 408 353 326 273 276 242 227 214 234 218 212 199 189 164 166 146 153 145 139 133 134 130 112 124 -85 -21 49 -22 -11 -7 -27 -41 -30 -17 -27 -36 -1 -15 -17 -12 -11 -13 -3 -22 -7 -8 2 -4 2 -1 -18 -4 - 13 REDACTED AND UNCLASSIFIED 935 448 702 309 287 265 217 206 233 174 206 177 167 158 130 178 147 109 131 138 104 109 104 103 101 106 88 102 901 456 725 304 286 275 212 198 254 173 198 183 172 170 146 177 149 106 121 134 104 114 117 102 99 119 84 99 -34 8 23 -5 -1 10 -5 -8 21 -1 -8 6 5 12 16 -1 2 -3 -10 -4 0 5 13 -1 -2 13 -4 -3 REDACTED AND UNCLASSIFIED LOCATION SACRAMENTO CHARLOTTE MINNEAPOLIS LAS VEGAS NEW HAVEN ALBUQUERQUE INDIANAPOLIS PORTLAND BUFFALO MEMPHIS HONOLULU MILWAUKEE CINCINNATI ST LOUIS LOUISVILLE ALBANY KNOXVILLE COLUMBIA BIRMINGHAM JACKSONVILLE JACKSON RICHMOND OMAHA LITTLE ROCK NORFOLK SPRINGFIELD MOBILE ANCHORAGE TOTAL FIELD OFFICES HEADQUARTERS GRAND TOTAL FY 2000 AGENTS 127 117 115 109 104 101 92 92 91 90 83 81 79 77 75 74 73 72 71 71 70 69 68 63 61 59 54 24 10 474 822 11 296 FY 2003 AGENTS 130 114 115 111 103 98 94 108 107 88 84 82 79 80 74 72 69 70 74 76 67 67 78 67 62 61 55 34 10 124 1 131 11 255 CHANGE -350 309 -41 3 -3 0 2 -1 -3 2 16 16 -2 1 1 0 3 -1 -2 -4 -2 3 5 -3 -2 10 4 1 2 1 10 FY 2000 SUPPORT 7 965 7 980 15 945 Source OIG analysis of FBI Resource Management and Resource Allocation Office data - 14 REDACTED AND UNCLASSIFIED 88 82 83 82 75 77 73 64 79 65 68 67 67 70 67 62 60 57 63 65 52 57 60 59 54 51 50 34 FY 2003 SUPPORT 93 87 88 85 75 84 75 74 89 64 67 71 66 67 65 60 68 58 64 64 54 56 64 58 62 49 51 37 8 073 8 156 16 229 CHANGE 108 176 284 5 5 5 3 0 7 2 10 10 -1 -1 4 -1 -3 -2 -2 8 1 1 -1 2 -1 4 -1 8 -2 1 3 REDACTED AND UNCLASSIFIED Field Agent Positions – Exhibit 2-5 highlights the resources allocated for field agents during our review period As shown the total agent positions allocated to FBI field offices ranged from 10 474 in FY 2000 to 10 124 in FY 2003 reflecting a decrease of 350 funded positions Except for a single year decrease from FY 2000 to FY 2001 the number of agents allocated to field offices has increased in each subsequent fiscal year EXHIBIT 2-5 FIELD AGENT FUNDED STAFFING LEVELS FISCAL YEARS 2000 THROUGH 200317 10 474 9 981 FY 2000 FY 2001 10 022 FY 2002 10 124 FY 2003 Source OIG analysis of FBI Resource Management and Allocation Office data Because the FBI’s primary reason for transforming itself was to combat terrorism we compared non-supervisory field agent resources allocated for matters related to terrorism to those allocated for non-terrorism work 18 Exhibit 2-6 illustrates what has occurred in each of these areas during our 17 Agent FSLs in this exhibit include those allocated for management positions within field offices 18 We categorized FBI activities as being related to terrorism based on the program in which the work is captured We considered terrorism- related work to be captured in the National Foreign Intelligence Domestic Terrorism and National Infrastructure Protection Computer Intrusion programs - 15 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED review period In line with its shift in priorities the FBI assigned additional non-supervisory field agent positions for terrorism-related matters and fewer agent resources for non-terrorism related matters 19 In fact the number of allocated positions for terrorism-related matters has risen from FYs 2000 to 2002 with a slight decrease from FYs 2002 to 2003 In turn the nonterrorism related agent staffing levels declined from FY 2000 to FY 2002 with a slight increase from FYs 2002 to 2003 EXHIBIT 2-6 COMPOSITION OF NON-SUPERVISORY FIELD AGENT FUNDED STAFFING LEVELS FISCAL YEARS 2000 THROUGH 2003 7 159 6 000 - 1 124 5 000 4 000 3 000 2 811 2 000 2 242 1 000 o FY2000 FY2001 FY 20O2 FY 2003 Source OIG analysis of FBI Resource Management and Allocation Office data The figures in Exhibit 2-6 provide the totals for the broad areas to which non-supervisory field agents were allocated while Exhibit 2-7 provides a more in-depth look This data is separated according to the various programs to which the FBI allocates field agent positions As with Exhibit 2-6 we excluded field office management from this analysis because the FBI does not allocate supervisory agent positions among the various programs in the field 19 In FY 2003 the FBI allocated 58 non-supervisory field agent positions to two new categories Evidence Response Teams ERTs and Technically Trained Agents TTAs According to FBI officials agents within these two categories provide investigative support to all program areas Thus we excluded these positions from our comparisons of terrorism-related and non-terrorism related funded positions - 16 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 2-7 ALLOCATION OF NON-SUPERVISORY FIELD AGENTS TERRORISM RELATED FISCAL YEARS 2000 THROUGH 2003 FUNDED COMPONENT Foreign Counterintelligence International Terrorism Domestic Terrorism National Infrastructure 20 Protection Computer Intrusion Security NON-TERRORISM RELATED SUBTOTAL White-Collar Crime Violent Crimes and Major Offenders Organized Crime Drugs Criminal Enterprise Investigations OCDETF2 2 Civil Rights Applicant Matters Training Cyber Crime 21 23 SUBTOTAL OVERALL TOTALS FY 2000 FY 2001 FY 2002 FY 2003 CLASSIFIED INFORMATION REDACTED 2 242 2 215 2 943 2 811 2 460 2 004 1 746 N A 533 153 132 131 N A 2 404 1 821 1 590 N A 488 153 121 91 N A 2 210 1 006 1 023 650 488 153 79 90 269 2 303 1 009 1 033 701 488 153 79 90 268 7 159 6 668 5 968 6 124 9 401 8 883 8 911 8 935 Source OIG analysis of FBI Resource Management and Allocation Office data As can be seen in Exhibits 2-6 and 2-7 the overall reduction in field agent positions occurred in non-terrorism related programs These areas experienced an overall decrease of 1 035 agent positions from FYs 2000 to 2003 a change of 14 percent Specifically the funded components that fall under the Criminal Investigative Division CID lost more than 1 200 agent positions during our review period which equates to a decline of almost 20 In FY 2003 the National Infrastructure Protection Center which had been a part of the FBI’s National Infrastructure Computer Intrusion Program was transferred to the Department of Homeland Security 21 The FBI established the Criminal Enterprise Investigations Program during FY 2002 and began allocating field agent positions to this area in that fiscal year 22 The Organized Crime Drug Enforcement Task Force OCDETF program is a coordinated effort of nine federal agencies The FBI’s budget specifically earmarks positions for this purpose and identifies them as reimbursable resources 23 The FBI established the Cyber Division in FY 2002 and began allocating field agent positions to its two components Computer Intrusion and Cyber Crime at that time - 17 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED 20 percent 24 While most of these funded positions lost from CID programs were moved to terrorism-related work some were redirected to the Cyber Division i e the Computer Intrusion and Cyber Crime Programs in FY 2002 Conversely the overall number of non-supervisory field agent positions allocated to terrorism-related matters increased significantly from FYs 2000 to 2003 More than 560 additional funded positions were allocated to these areas in FY 2003 an increase of 25 percent In particular the number of allocated agent positions CLASSIFIED INFORMATION REDACTED Using data from Exhibit 2-7 we examined FSL changes during our review period at the program level and developed a graphical representation which is presented in Exhibit 2-8 As shown the combination of the White-Collar Crime and Organized Crime Drug programs accounted for more than half of the FBI’s allocated non-supervisory field agent positions during FY 2000 By FY 2003 however the greatest number of allocated positions resided within the White-Collar Crime and National Foreign Intelligence NFIP programs Additionally although it appears that the percentage of FBI funded agent positions encompassed by VCMO declined by approximately ten percent between FYs 2000 and 2003 this is not the case In FY 2002 the FBI removed several sub-programs from VCMO and placed them into the newly-established Criminal Enterprise Investigations Program CEI which deals with violent criminal enterprises Thus a portion of VCMO agent resources was transferred to CEI When combined the percentage of FBI agent resources devoted to violent crime matters dropped by only two percent 24 The components in Exhibit 2-7 that fall under CID are White-Collar Crime Violent Crime Major Offenders Organized Crime Drugs Criminal Enterprise Investigations OCDETF and Civil Rights - 18 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 2-8 NON-SUPERVISORY FIELD AGENT FUNDED STAFFING LEVEL ALLOCATIONS BY PROGRAM FISCAL YEARS 2000 AND 200325 CLASSIFIED INFORMATION REDACTED FISCAL YEAR 2000 FISCAL YEAR 2003 Source OIG analysis of FBI Resource Management and Allocation Office data Field Support Positions – Based upon the data obtained from the FBI FSLs for support resources in the field totaled 7 965 in FY 2000 In FY 2003 the total number of FSLs was 8 073 an increase of 108 positions since FY 2000 Exhibit 2-9 provides an overview of the total positions allocated to the field for support personnel As noted in contrast to field agent positions which are allocated at the program level FSLs for field support personnel are divided into three categories Clerical Administrative Investigative or Technical From the data collected by the FBI it is not possible to determine if support personnel are working in areas that are terrorism or non-terrorism related However we reviewed how the FBI allocated resources to its three support categories in each fiscal year of our review period and found very little change As shown in Exhibit 2-9 on average approximately half of the support positions in the field were comprised of Clerical Administrative positions Another 35 percent were allocated to the Investigative category which includes positions such as special surveillance groups and language specialists The remaining 15 percent were assigned to the Technical area which includes positions such as electronics technicians 25 NFIP consists of the Foreign Counterintelligence Security and International Terrorism sub-programs OC D includes Organized Crime Drugs and OCDETF - 19 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 2-9 FUNDED STAFFING LEVELS FOR FIELD SUPPORT CATEGORIES FISCAL YEARS 2000 THROUGH 2003 le Clerical Administrative CJ Investigative CJ Technical TOTAL 7 965 TOTAL 7 535 1 156 1 071 2 822 3 987 FY 2000 TOTAL 7 788 1 145 TOTAL 8 073 1 156 2 612 2 703 2 957 3 852 3 940 3 960 FY 2001 FY 2002 FY 2003 Source OIG analysis of FBI Resource Management and Allocation Office data FBI Headquarters Headquarters agent and support personnel are allocated by divisions or offices and in FY 2000 the FBI allocated 8 802 FSLs to these Headquarters components about 30 percent of the FBI’s total resources Since that time the resources allotted for Headquarters personnel have grown by 485 positions As mentioned earlier Headquarters’ FSLs can be further broken down into agent and support personnel Headquarters Agent Positions – There was not a significant change in the number of agent positions allocated to FBI Headquarters between FYs 2000 and 2002 However there was a significant increase during FY 2003 when the number of allocated agent resources expanded from 778 in FY 2002 to 1 131 in FY 2003 Thus from FYs 2000 to 2003 the number of Headquarters agent positions increased by 309 positions or nearly 40 percent - 20 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 2-10 ALLOCATION OF HEADQUARTERS AGENTS FISCAL YEARS 2000 AND 2003 HEADQUARTERS COMPONENT Criminal Investigative Division Laboratory Division Counterterrorism Division Training Development Division Counterintelligence Division Office of International Operations Inspection Division Office of Professional Responsibility Administrative Services Division Information Resources Division Office of the General Counsel Criminal Justice Information Services Division Office of Public Affairs Finance Division Director’s Office Office of EEO Affairs Cyber Division2 6 Investigative Technology26 Records Management Division26 Security Division26 TOTALS FY 2000 FY 2003 FSL PERCENT FSL FSL CHANGE CHANGE 144 154 10 7 139 66 -73 -53 CLASSIFIED INFORMATION REDACTED 102 124 22 22 CLASSIFIED INFORMATION REDACTED 57 17 -40 -70 30 29 -1 -3 28 25 -3 -11 27 21 -6 -22 20 2 -18 -90 18 20 2 11 17 12 -5 -29 17 11 5 5 N A N A N A N A 18 8 10 4 48 104 2 63 1 -3 5 -1 48 104 2 63 6 -27 100 -20 N A N A N A N A 822 1 131 309 38% Source OIG analysis of FBI Resource and Management Allocation Office data Exhibit 2-10 shows the allocation of agent positions to Headquarters divisions for FYs 2000 and 2003 along with the corresponding changes over this time period From this data we noted that the FBI enhanced its agent staffing levels in those divisions with a direct connection to its new terrorism-focused priorities For instance the Counterterrorism Division experienced an increase CLASSIFIED INFORMATION REDACTED Furthermore the Counterintelligence Division was allocated CLASSIFIED INFORMATION REDACTED In turn the FBI reduced the level of agent resources allocated to other divisions For example the Laboratory Division’s FSLs decreased by 73 agent positions from FYs 2000 to 2003 a reduction of more than 50 percent However according to an FBI official a portion of these positions were moved from the Laboratory Division to the Investigative Technology Division which was established during FY 2003 26 No agent positions were allocated to this division during FY 2000 - 21 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED In terms of composition based upon the FSL data the Counterterrorism Division was the largest FBI Headquarters Division during FY 2003 accounting for 20 percent of the total resources allocated for Headquarters agent personnel From FYs 2000 to 2002 the Criminal Investigative Division was the largest FBI Headquarters division From this perspective the FBI has focused its FSL allocations according to its priorities Headquarters Support Positions – Unlike the FSLs for Headquarters agents the total allotted positions for support personnel within FBI Headquarters did not significantly change from FYs 2000 to 2003 Over this time period these resources increased by 176 positions a growth of only 2 percent However as shown in Exhibit 2-11 the composition of Headquarters support positions did change to reflect the FBI’s new priorities Similar to Exhibit 2-10 Exhibit 2-11 shows the allocation of support personnel positions to Headquarters divisions for FYs 2000 and 2003 along with the corresponding changes over this time period These changes indicate the FBI also allocated its support staffing levels in accordance with terrorism-driven priorities For example the Counterterrorism Division was allotted CLASSIFIED INFORMATION REDACTED while the Counterintelligence Division received CLASSIFIED INFORMATION REDACTED At the same time several new components were created and allocated support positions including the Cyber Division and the Records Management Division In turn the FBI reduced the level of resources allocated to other divisions Notably the Office of Public and Congressional Affairs OPCA experienced the greatest reduction of support positions within any Headquarters component a decline of 680 positions However according to an FBI official the majority of these positions were from the Freedom of Information Privacy Acts Section which was moved from OPCA to the Records Management Division during FY 2002 - 22 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 2-11 ALLOCATION OF HEADQUARTERS SUPPORT PERSONNEL FISCAL YEARS 2000 AND 2003 FY 2000 FY 2003 NUMBER PERCENT HEADQUARTERS COMPONENT FSL FSL CHANGE CHANGE Criminal Justice Information 2 974 2 512 -462 -16 Services Division Laboratory Division 949 610 -339 -36 Office of Public Congressional 766 86 -680 -89 Affairs Information Resources Division 753 572 -181 -24 Administrative Services Division 726 604 -122 -17 Finance Division 359 323 -36 -10 Training Development Division 334 269 -65 -19 Investigative Services Division2 7 297 N A -297 -100 Counterintelligence Division CLASSIFIED INFORMATION REDACTED Counterterrorism Division CLASSIFIED INFORMATION REDACTED Office of the General Counsel 152 176 24 16 Criminal Investigative Division 143 194 51 36 Inspection Division 66 63 -3 -5 Office of Professional Responsibility 41 39 -2 -5 Director’s Office 26 44 18 69 Office of EEO Affairs 23 22 -1 -4 Cyber Division2 8 N A 45 45 N A Office of International Operations 28 N A 84 84 N A Investigative Technology28 N A 514 514 N A Records Management Division28 N A 851 851 N A 28 Security Division N A 556 556 N A TOTALS 7 980 8 156 176 2% Source OIG analysis of FBI Resource and Management Allocation Office data Chapter Summary A significant part of the FBI’s transformation plans included allocating its funded positions or FSLs in accordance with its new priorities Based upon our analysis of the data we found that the FBI had in fact deployed its FSLs according to its new priorities in both the funded positions allocated to field programs and those allocated to Headquarters divisions 27 No support personnel positions were allocated to this division during FY 2003 it was disbanded in the FBI’s post-9 11 reorganization 28 No support personnel positions were allocated to this division during FY 2000 - 23 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Within field offices the FBI increased the number of agent positions it allocated for terrorism-related matters More than 560 additional funded positions were allocated to these types of areas in FY 2003 compared to FY 2000 an increase of 25 percent In particular the number of allocated agent positions CLASSIFIED INFORMATION REDACTED In turn 1 035 fewer agent positions were allotted for non-terrorism related matters Specifically the resources allocated to various programs within the Criminal Investigative Division dropped by almost 20 percent Similar changes occurred within FBI Headquarters as the FBI enhanced its Counterterrorism and Counterintelligence divisions by allotting additional agent and support resources to each In particular the Counterterrorism Division’s FSLs increased CLASSIFIED INFORMATION REDACTED in both agent and support positions while the Counterintelligence Division experienced a growth CLASSIFIED INFORMATION REDACTED in its allocated agent resources from FY 2000 to FY 2003 We further noted that while the FBI added a relatively small number of positions 10 agents and 51 support personnel to the Criminal Investigative Division it also reduced the agent and support resources to some Headquarters divisions such as the FBI Laboratory - 24 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED CHAPTER 3 RESOURCE UTILIZATION AND CASEWORK In order to determine the specific investigative areas in which the FBI was concentrating its efforts we reviewed resource utilization levels and casework data within the fiscal years covered by our review While the FSL analysis in Chapter 2 assesses the FBI’s planned resource usage the examination of resource utilization in this chapter shows the types of investigations FBI personnel actually spent time performing Moreover the analysis of casework data provides additional information on certain investigative areas We conducted these analyses to identify the areas of change in the FBI’s operational efforts as a result of its reprioritization and reprogramming Based on our analyses of this FBI timekeeping data we found that the FBI utilized agent resources consistent with its mandate to make combating terrorism its primary focus Moreover during FY 2003 agent resources were utilized above the allocated levels for matters related to the FBI’s three highest priorities – counterterrorism counterintelligence and cyber crime We also found that most of our casework analyses supported the same conclusions The results of our analyses also specifically identified investigative areas in which the FBI significantly changed its resource utilization either by increasing or decreasing its effort To comply with FBI priorities resources dedicated to terrorism matters significantly increased As discussed in Chapter 2 resources were transferred from traditional criminal investigative programs specifically the Organized Crime Drug OC D White-Collar Crime WCC and Violent Crime Major Offenders VCMO programs to programs related to combating terrorism We found certain investigative areas mostly within the OC D WCC and VCMO programs to be significantly affected by the reduction in funded agent resources Moreover in traditional crime programs actual agent resource utilization decreased at an even greater rate than what was allocated Therefore the FBI’s transformation significantly impacted the number of agents investigating traditional crime even beyond what the FBI had planned - 25 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Automated System The FBI uses the Time Utilization and Recordkeeping TURK system to record time spent by most FBI field office personnel on various types of investigative matters 29 The TURK system requires field agents to report daily the proportion of their time worked in FBI investigative classifications Therefore the data derived from the FBI TURK system is only as valid as the information reported by FBI field agents TURK data is recorded for the following personnel AGENTS • non-supervisory special agents grade GS-13 and below • grade GS-14 Chief Division Counsels • grade GS-14 Assistant Division Counsels SUPPORT PERSONNEL • investigative specialists • language specialists • financial assistants analysts • information technology specialists-forensic examiners • intelligence research specialists • surveillance specialists For each agent or support employee the FBI TURK system maintains the percentage of time worked each day according to FBI investigative classifications which the FBI calls Average on Board AOB The percentages are based on a 10-hour day for agents and an 8-hour day for support personnel The FBI considers the TURK system’s AOB data to be the best way to assess the actual amount worked by FBI employees in specific FBI investigative programs sub-programs and classifications For the purposes of this report we use the term AOB and on-board employee agent or support interchangeably Although time and attendance data is recorded daily by FBI personnel data collection in the TURK system is divided into 13 TURK periods each fiscal year making each TURK period consist of 2 pay periods For example the terrorist attacks on September 11 2001 occurred during TURK period 13 of FY 2001 29 FBI Headquarters personnel are not required to record their time in TURK because generally they do not work on specific investigative matters In addition top level management within FBI field offices do not record time in TURK - 26 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Investigative Programs Sub-programs and Classifications The FBI assigns each of its cases to an investigative classification based on the crime that is being investigated The investigative classification is the greatest level of detail to which the FBI tracks resource utilization Each classification is assigned to a program and if appropriate a sub-program An example of this is detailed in Exhibit 3-1 If a “TURKing” FBI employee worked a bank robbery case the percentage of time worked would be recorded for Classification 091A Bank Robbery which is within the Violent Incident Crimes sub-program of the Violent Crime Major Offenders Program EXHIBIT 3-1 FBI INVESTIGATIVE NOMENCLATURE Category Name Indicator Program Violent Crime Major Offenders VCMO Sub-program Violent Incident Crimes VC Classification Bank Robbery 091A Source FBI Finance Division Data Collection – We obtained TURK AOB information for both agent and support personnel from September 26 1999 through September 20 2003 30 The universe included a total of 1 009 971 records consisting of agent AOB captured for each FBI field office at the program sub-program and investigative classification level for each TURK period of our reviewed timeframe Data Analysis – In general we analyzed AOB data by fiscal year Exhibit 3-2 shows the total agent AOB from FYs 2000 through 2003 for the FBI as a whole Agent utilization within field offices has decreased by nearly 400 agents since FY 2000 A large portion of this decrease is related to a hiring freeze the FBI experienced in FY 2001 often referred to by the FBI as the “hollow work year” issue 31 30 September 26 1999 through September 20 2003 encompass FYs 2000 through 2003 in the TURK system Because TURK periods are comprised of pay periods fiscal years in the TURK system do not always end on September 30 or begin on October 1 31 The hollow work year issue is discussed in Chapter 2 - 27 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 3-2 TOTAL FBI ON-BOARD FIELD AGENTS FISCAL YEARS 2000 THROUGH 2003 9 301 9 048 2000 2001 8 783 2002 8 90 200 RS CAL YEAR Source OIG analysis of FBI TURK data Agent Utilization at the FBI Program Level We further analyzed agent resource utilization by reviewing AOB at the program level for FYs 2000 through 2003 However it must be noted that both the WCC and VCMO programs had sub-programs transferred to the new Cyber Crime Program CCP and Criminal Enterprise Investigations CEI Program for FY 2003 as detailed in Exhibit 3-3 EXHIBIT 3-3 SUB-PROGRAMS TRANSFERRED BETWEEN PROGRAMS FYs 2000 – 2002 FY 2003 Sub-program Program Program Intellectual Property Rights WCC CCP Innocent Images Initiative VCMO CCP OCDETF – VCMO VCMO CEI Major Theft VCMO CEI Violent Gangs VCMO CEI Source FBI Finance Division Therefore to accurately compare the change in the FBI’s investigative efforts at the program level we adjusted the WCC and VCMO programs’ agent utilization figures for FY 2003 to encompass the transferred sub-programs’ agent utilization data Exhibit 3-4 illustrates the average - 28 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED agent utilization within each FBI program for FYs 2000 through 2003 charting the change in the number of agent resources investigating cases within particular programs EXHIBIT 3-4 AGENT UTILIZATION WITHIN FBI PROGRAMS ADJUSTED FOR SUB-PROGRAMS TRANSFERRED FISCAL YEARS 2000 THROUGH 2003 CLASSIFIED INFORMATION REDACTED Source OIG analysis of FBI TURK data As evidenced in Exhibit 3-4 traditional crime area programs specifically the WCC OC D and VCMO programs experienced significant agent resource reductions during our review period 32 This reduction in resources is in accord with FBI officials’ statements that resources were transferred from traditional crime programs to terrorism-related efforts Conversely the National Foreign Intelligence Program NFIP experienced a large increase in agent utilization Between FYs 2000 and 2002 CLASSIFIED INFORMATION REDACTED This increase coincides with the FBI’s changed priorities in counterterrorism and counterintelligence matters 32 A more detailed discussion of these programs and their agent utilization reductions is contained in Chapter 4 - 29 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED As noted in Chapter 1 the 9 11 attacks caused agent utilization data at the end of FY 2001 and throughout the first half of FY 2002 to be skewed towards terrorism-related matters Therefore in order to conduct a better comparison of resource utilization within the FBI we concentrated our analysis on comparing FY 2000 data to FY 2003 data This approach provided a view of resource utilization both before and well into the FBI’s reprioritization efforts revealing the areas of greatest change in actual agent and support personnel time worked at the program sub-program and classification levels We computed the change in agent utilization within the FBI programs as shown in Exhibit 3-5 Again we adjusted the VCMO and WCC programs to reflect the programs’ sub-program composition in FY 2000 33 The program experiencing the largest increase in the number of agents working its investigations was NFIP CLASSIFIED INFORMATION REDACTED in FY 2003 Traditional crime programs – VCMO WCC and OC D – experienced the largest reductions in agent utilization These resource changes correlate with the FBI's new priorities and its changes to agent allocations FSLs EXHIBIT 3-5 ON-BOARD AGENT CHANGES IN FBI PROGRAMS FISCAL YEARS 2000 AND 2003 CLASSIFIED INFORMATION REDACTED Source OIG analysis of FBI TURK data 33 Exhibit 3-3 details which sub-programs were transferred from the VCMO and WCC programs to the CEI Program and CCP - 30 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED In addition to analyzing the change in the number of agents utilized within each program between FYs 2000 and 2003 we evaluated the proportion of the total number of agents utilized in each program as graphically presented in Exhibit 3-6 These charts show the percentage of FBI agent resources used within each program for FYs 2000 and 2003 As shown the largest decrease occurred in the OC D Program of the total investigative agents in each fiscal year the OC D Program utilized 10 percent fewer agents in FY 2003 than in FY 2000 Alternatively the percentage of total agents investigating CLASSIFIED INFORMATION REDACTED EXHIBIT 3-6 AGENT UTILIZATION AS A PERCENTAGE OF TOTAL AGENT RESOURCES FISCAL YEARS 2000 AND 2003 FISCAL YEAR 2000 FISCAL YEAR 2003 CLASSIFIED INFORMATION REDACTED Source OIG analysis of FBI TURK data Exhibit 3-4 Exhibit 3-5 and Exhibit 3-6 show that before the FBI’s reprioritization the traditional criminal programs – WCC OC D and VCMO – used more agent resources than other programs However subsequent to the reprioritization NFIP compared to all other programs utilized the largest percentage of total FBI field agent resources and increased its agent utilization more than any other program Comparison of Agent Allocation to Utilization As discussed in Chapter 2 the FBI allocates agent resources in terms of Funded Staffing Levels FSLs The data discussed within this chapter focuses on agent utilization – how agent resources were actually used Exhibit 3-7 graphically compares allocated to actual field agent data for FYs 2000 through 2003 The difference between the allocated resources - 31 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED FSLs and actual resources utilized on-board agents generates what the FBI refers to as the “burn rate ” In FY 2001 the FBI experienced an “overburn ” which occurs when resources are utilized at a level above the FSL the overburn in FY 2001 was 165 agents An “underburn” occurs when resources are utilized at a level below the FSL This was the case in FYs 2000 2002 and 2003 The largest underburn during our review period occurred in FY 2002 the FBI utilized 128 fewer on-board agents than it was allocated EXHIBIT 3-7 COMPARISON OF FIELD AGENT ALLOCATION TO UTILIZATION FISCAL YEARS 2000 THROUGH 200334 Agent Funded Staffing Level On-Board Agents 9 401 9 301 9 048 8 883 8 993 8 911 8 901 8 783 2000 2001 2002 2003 FISCAL YEAR Source OIG analysis of FBI TURK data and Resource Management and Allocation Office data To better assess how the FBI’s reprioritization of terrorism-related work has affected its agent utilization since 9 11 we compared burn rates in two broad investigative categories terrorism-related and non-terrorism related 35 As seen in Exhibit 3-8 in FY 2003 the FBI experienced an 34 On-board agent data only captures non-supervisory field agents including ERTs and TTAs Therefore we excluded management positions allocated to field offices from this analysis 35 The FSL and on-board agent data for “Terrorism- Related” and “Non-Terrorism Related” correspond with the categories listed in Exhibit 2-7 - 32 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED overburn of 845 field agent resources in terrorism-related matters and an underburn of 879 agent resources in non-terrorism related matters EXHIBIT 3-8 COMPARISON OF FIELD AGENT ALLOCATION TO UTILIZATION FISCAL YEAR 200336 ON-BOARD AGENTS i i TerrorismRelated FUNDED STAFFING LEVEL I Non-Terrorism Related Source OIG analysis of FBI TURK and Resource Management and Allocation Office data Casework at the FBI Program Level In addition to agent utilization we reviewed the universe of all field office cases in the ACS system during our review period and compared the number of cases opened by program in FY 2000 to those opened in FY 2003 We found that by FY 2003 the FBI opened fewer cases in traditional criminal areas and more in those areas related to terrorism As shown in Exhibit 3-9 the number of cases opened in the National Foreign Intelligence Program NFIP and Domestic Terrorism DT Program increased between the two periods while the number of cases opened in the OC D WCC and VCMO programs decreased 36 On-board agent data only captures non-supervisory field agents Therefore we excluded management positions allocated to field offices from this analysis - 33 REDACTED AND UNCLASSIFIED 5 047 I 0 0 0 Tl z 21 603 I • 6 Tl I - J 0 0 I 34 741 - 34 REDACTED AND UNCLASSIFIED The VCMO and WCC totals were adjusted to reflect the sub-programs from each that moved into new programs in FY 2003 as noted in Exhibit 3-3 37 Specifically the FBI opened 8 925 more NFIP cases in FY 2003 than in FY 2000 reflecting an increase of more than 70 percent The FBI opened over 50 percent more Domestic Terrorism cases in FY 2003 than in FY 2000 In contrast the FBI opened over 50 percent fewer Organized Crime Drug cases 40 percent fewer Violent Crime cases and more than 25 percent fewer White-Collar Crime cases in FY 2003 than in FY 2000 The FBI also opened fewer Civil Rights Training and National Infrastructure Protection Computer Intrusion cases in FY 2003 compared to FY 2000 REDACTED AND UNCLASSIFIED 1 t '_ _ 19 741 EXHIBIT 3-9 FIELD OFFICE CASES OPENED IN FBI PROGRAMS FISCAL YEARS 2000 AND 200337 0 Source OIG analysis of FBI ACS data o REDACTED AND UNCLASSIFIED We then consolidated the data found in Exhibit 3-9 into terrorism and non-terrorism related matters in order to review how trends in case openings within these two broader categories changed from FY 2000 to FY 2003 As shown in Exhibit 3-10 we found that the FBI increased the number of terrorism-related cases it opened by more than 60 percent and reduced the number of non-terrorism related cases it opened by 37 percent during our review period EXHIBIT 3-10 TERRORISM-RELATED AND NON-TERRORISM RELATED FIELD OFFICE CASES OPENED FISCAL YEARS 2000 AND 200338 I• TERRORISM • NON-TERRORISM I 64 281 40 603 25 431 15 799 OPENED FY 2000 OPENED FY 2003 Source OIG analysis of FBI ACS data Agent Utilization and Casework at the FBI Classification Level To obtain the most detailed information possible we analyzed agent utilization at the investigative classification level between FYs 2000 and 2003 Since our focus was on the FBI’s investigative efforts we eliminated training and administrative classifications tracked within the TURK system from this analysis Also classifications that changed or existed in only one of the two fiscal years examined were not included in the analysis 39 38 Case openings in the MISC program which are captured in Exhibit 3-9 are not included in this analysis because they are generally administrative non-investigative in nature 39 The classifications eliminated from our review are noted in Appendix I - 35 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED During our analysis we recognized the large impact of percent changes in agent utilization within classifications or programs This is best explained by an example In Classification 281A OC DI LCN and Italian Organizations the Albany Field Office experienced a reduction from 0 49 agents in FY 2000 to 0 03 in FY 2003 a 95 percent change 40 Therefore even though Albany dedicated very few resources to investigating Classification 281A matters in any fiscal year when looking at the percent change one is led to believe that Albany was signi ficantly impacted by its reduction in agent resources conducting such investigations Thus given this example it would be misleading to focus exclusively on percent changes Therefore we focused our analysis primarily on total on-board agent changes Still percent changes cannot be entirely discounted and we present them when they are appropriate for our analyses Increase in Resource Utilization – The FBI lists counterterrorism and counterintelligence as its top two priorities and as discussed it has transferred large amounts of resources to target these two priorities As a result a great majority of the investigative classifications experiencing the largest increase in agent utilization are related to counterterrorism and counterintelligence This became apparent when we analyzed the TURK data and identified the 30 investigative classifications experiencing the greatest on-board agent increases between FYs 2000 and 2003 Our results are displayed in Exhibit 3-11 40 According to the FBI La Cosa Nostra LCN is a nationwide alliance of organized criminals with its roots in Italian Organized Crime - 36 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 3-11 30 CLASSIFICATIONS EXPERIENCING THE GREATEST INCREASES IN AGENT UTILIZATION BETWEEN FISCAL YEARS 2000 AND 2003 Classification Number Classification Name 196C 266A 306 067D 067B 089B 164C 253A 174D 300B 261G CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED Securities Commodities Fraud CLASSIFIED INFORMATION REDACTED AOT-DT – Violent Crimes – Predicate Offense Serial Killings CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED Support Applicant Investigations CLASSIFIED INFORMATION REDACTED Special Agent Applicant Investigations CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED Assaulting or Killing a Federal Officer CLASSIFIED INFORMATION REDACTED Crime Aboard Aircraft – All other CLASSIFIED INFORMATION REDACTED Fraud Rel Activity – Ident Documents FRAID – Terrorists Bomb Technician Activities CT Preparedness – Aviation Security CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED Security Officer Matters – Other CLASSIFIED INFORMATION REDACTED ACRONYMS AOT Acts of Terrorism DT Domestic Terrorism AOB Change FYs 2000- 2003 Number Percent 73 54 37 28 30 1 201 21 264 18 138 11 72 11 374 10 8 8 747 46 523 6 213 FRAID Fraud Related Activity Identification Documents CT Counterterrorism Source OIG analysis of FBI TURK data and NFIP Manual - 37 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Twenty four of the 30 investigative classifications listed in Exhibit 3-11 fell under the National Foreign Intelligence Program NFIP and the Domestic Terrorism DT Program The largest total on-board agent increase occurred within NFIP in Classification 265A AOT-IT – Violent Crimes Predicate Offense Six of the 30 classifications listed in Exhibit 3-11 are from programs not related to terrorism The classification undergoing the largest increase in this group 196C Securities Commodities Fraud is from the White-Collar Crime Program Three other classifications are within the VCMO Program 306 Serial Killings 089B Assaulting or Killing a Federal Officer and 164C Crime aboard Aircraft – All Other The remaining two classifications – 067D Support Applicant Investigations and 067B Special Agent Applicant Investigations – are applicant classifications Casework – We also reviewed casework data from the FBI’s Automated Case Support ACS system and found that 22 993 cases 6 percent from the original universe of 404 318 cases worked during our review period fell into one of the 30 investigative classifications undergoing the largest increase in on-board agents 41 We also noted a general upward trend in total case openings in these classifications The only variation noted was a slight decrease of 310 cases between FYs 2000 and 2001 By FY 2003 the FBI had opened 2 808 more cases in these classifications than it had in FY 2000 an increase of 81 percent Additionally as shown in Exhibit 3-12 the FBI closed more cases in these classifications in each fiscal year of the review period culminating in a high of 7 850 case closures in FY 2003 This amounts to an increase of 130 percent compared to FY 2000 41 We designated a case as “worked” if it was open at any point during our review period Additionally case counts for each classification in the top 30 increasing classifications are contained in Appendix VI - 38 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 3-12 OVERALL CASES OPENED AND CLOSED IN THE TOP 30 INCREASING CLASSIFICATIONS FISCAL YEARS 2000 THROUGH 2003 • CASES OPENED FY 2000 • CASES CLOSED FY 2001 FY 2002 7 850 FY 2003 Source OIG analysis of FBI ACS data Exhibit 3-13 highlights changes in the number of cases opened within each of these classifications between FYs 2000 and 2003 42 Our review determined that the largest increase in case openings was in Classification CLASSIFIED INFORMATION REDACTED We also noted a significant increase in cases involving Usama Bin Laden 199N as well as foreign counterintelligence cases CLASSIFIED INFORMATION REDACTED These findings are consistent with the FBI’s mandate to prioritize terrorism-related work The large amount of work in Classification 199N is also logical in light of Usama Bin Laden’s connection to the terrorist attacks of 9 11 The large amount of work in classifications CLASSIFIED INFORMATION REDACTED 42 Exhibit 3-13 contains only 28 of the 30 investigative classifications that experienced the largest increases in agent utilization Classifications 067B Special Agent Applicant Investigations and 067D Support Applicant Investigations were excluded from this review because only 15 cases within these classifications were captured in both fiscal years reviewed Based on a review of the data file it appears that these types of investigations are opened by FBI Headquarters rather than FBI field offices - 39 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 3-13 CHANGES IN CASE OPENINGS IN THE CLASSIFICATIONS EXPERIENCING THE GREATEST INCREASES IN AGENT UTILIZATION FISCAL YEARS 2000 AND 2003 CLASSIFIED INFORMATION REDACTED Source OIG analysis of FBI ACS data - 40 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED We noted a few classifications in which case openings decreased The classification with the most significant reduction in case openings Securities Commodities Fraud 196C opened 266 fewer cases in FY 2003 than in FY 2000 Reduction in Resource Utilization – In addition to identifying the investigative classifications experiencing the largest agent utilization increases we identified the investigative classifications with the greatest reductions in agent utilization between FYs 2000 and 2003 Again we did not include classifications related to training or administrative matters In addition we did not include any classifications that changed or were eliminated between FYs 2000 and 2003 43 The 30 investigative classifications experiencing the largest reduction in agent utilization are listed in Exhibit 3-14 43 The classifications eliminated from our review are noted in Appendix I - 41 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 3-14 30 CLASSIFICATIONS EXPERIENCING THE GREATEST REDUCTIONS IN AGENT UTILIZATION BETWEEN FISCAL YEARS 2000 AND 2003 Classification Number Classification Name AOB Change FYs 2000- 2003 Number Percent -123 -119 -103 -101 -89 -81 -76 -62 -61 -44 -63 -34 -60 -36 -26 -70 -54 -53 245C 281C 281A 088A 209A 091A 281F 245F 245B OCDETF – Mexican Organizations OC DI – Mexican Organizations OC DI – LCN and Italian Organizations Unlawful Flight to Avoid Prosecution – Crime of Violence Health Care Fraud – Government Sponsored Program Bank Robbery OC DI – Other Major Criminal Organizations OCDETF – Other Major Criminal Organizations OCDETF – Central South American Organizations 029C 281B 281I 281E 196A 245D 196D 209B 245I 087B 026B -50 -44 -43 -40 -38 -37 -35 -32 -31 -29 -29 -67 -70 -76 -34 -62 -28 -14 -34 -45 -56 -62 -28 -66 196B 282A 300A 049A 249A 244 FIF - $25K - $99 999 Fed-Insured Bank OC DI – Central South American Organizations OC DI – Caribbean Organizations OC DI – Asian Organizations Telemarketing Fraud OCDETF – VCMO – Gangs Other Wire Mail Fraud Schemes Health Care Fraud – Private Ins Program OCDETF – Caribbean Organizations Interstate Transportation of Stolen Property - $25K ITSMV – Commercial Theft or Chop Shops Racketeering Enterprise Investigations – Mexican Organizations Insurance Fraud Civil Rights – Color of Law – Force or Violence Counterterrorism Preparedness – Special Events Bankruptcy Fraud $50K or Court Officer Environmental Crimes Hostage Rescue Team -28 -28 -27 -26 -25 -24 -51 -34 -43 -59 -75 -35 015B TFIS – Loss of $25K Weapons Explosives -21 -60 092C CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED ACRONYMS OCDETF Organized Crime Drug Enforcement Task Force OC DI Organized Crime Drug Investigations LCN La Cosa Nostra FIF Financial Institution Fraud ITSMV Interstate Transportation of Stolen Motor Vehicles TFIS Theft From Interstate Shipment Source OIG analysis of FBI TURK data and NFIP Manual - 42 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Organized crime and drug-related matters accounted for 12 of the 30 investigative classifications experiencing the largest reductions in agent resource utilization In fact 3 of these 12 classifications had reductions of over 100 on-board agents Classification 245C OCDETF – Mexican Organizations Classification 281C OC DI – Mexican Organizations and Classification 281A OC DI – LCN and Italian Organizations In addition to the 12 classifications relating to organized crime and drug matters 8 were white-collar crime classifications 3 were criminal enterprise classifications 3 were violent crime classifications 2 came from NFIP and 1 each came from DT and Civil Rights The on-board agent changes are summarized by program areas in Exhibit 3-15 EXHIBIT 3-15 AGENT UTILIZATION CHANGE WITHIN PROGRAM AREAS FOR THE 30 CLASSIFICATIONS EXPERIENCING THE GREATEST REDUCTIONS IN AGENT UTILIZATION FISCAL YEARS 2000 AND 2003 -28 -27 Civil Rights Domestic Terrorism CLASSIFIED INFORMATION REDACTED -767 Organized Crime I Drug White-Collar Crime Violent Crime Source OIG analysis of FBI TURK data The FBI officials we spoke with prior to our data analysis stated that the OC D VCMO and WCC programs were the investigative programs most affected by the reprioritization and reprogramming Our analysis of agent utilization reductions at the FBI investigative classification level as well as at the FBI program level is consistent with their statements The reductions in these matters are discussed in more detail in Chapter 4 - 43 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Casework – We reviewed our original universe of cases worked during our review period to isolate those falling within the top 30 decreasing classifications We identified 121 798 cases that met these criteria reflecting 30 percent of the original sample We then reviewed the data and found that bank robbery investigations Classification 091A accounted for 41 336 of these cases by far the largest number of cases in any single classification 44 The next largest classification violent fugitive investigations Classification 088A accounted for 31 788 cases When combined these two classifications accounted for 60 percent of the 121 798 cases identified as being part of this sample Using our sample of 121 798 cases we determined the total number of cases opened and closed during each fiscal year of our review period We found that within these classifications in addition to opening fewer cases in each subsequent fiscal year of the review period the FBI opened over 17 000 fewer cases in FY 2003 than in FY 2000 Case closings reflected a similar downward trend with a 44 percent reduction between FYs 2000 and 2003 These results are presented in Exhibit 3-16 EXHIBIT 3-16 TOTAL CASES OPENED AND CLOSED IN THE TOP 30 CLASSIFICATIONS EXPERIENCING THE GREATEST REDUCTIONS IN AGENT UTILIZATION FISCAL YEARS 2000 THROUGH 2003 200D 2001 201 2 201i1'3 flSCAI YEAR Source OIG analysis of FBI ACS data 44 Case counts for the top 30 decreasing classifications are found in Appendix VI - 44 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED We then reviewed the data to determine how specific case openings changed before and after 9 11 Exhibit 3-17 highlights for the 30 classifications experiencing the largest AOB reductions the most significant reduction in the number of cases opened occurred in the investigations of violent fugitives 088A where the FBI initiated 11 617 fewer cases in FY 2003 than it did in FY 2000 No other reductions in openings were as significant The result for bank robbery cases 091A was notable because although the FBI reduced its utilization of resources in this classification by 26 percent during our review period the FBI actually opened 485 more cases in FY 2003 than in FY 2000 - 45 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 3-17 CHANGES IN CASE OPENINGS IN THE TOP 30 CLASSIFICATIONS EXPERIENCING THE GREATEST REDUCTIONS IN AGENT UTILIZATION FISCAL YEARS 2000 AND 2003 245C OCDETF - Mexican Organizations 281C OC D I - Mexican Organizations 281A OC DI-LCN and Italian Organizations 088A Unlawful Flight to Avoid Prosec ution - C rime of Violence 209A Health Care Fraud - Gov't Sponsored Prgm 091A Bank Robbery 281F OC DI - Other Maj or Criminal Orgs 245F OCDETF - Other Major Criminal Orgs 245B OCDETF - Ce ntral South American Orgs C LASS IFIED INF ORMA TI ON REDACTED 029C FIF - $25K - $99 999 Fed-Ins Bank 281 B OC D I - Central South American Orgs 28 11 OC DI - Carribbean Orgs 28 1E OC DI - Asian Orgs 196A Telemarketing Fraud 245D OC DETF VCMO - Gangs 196D Other W ire Mail Fraud Sc hemes 209B Health Care Fraud - Private Ins Prgm 245 1 OCDETF - Carrib bean Orgs 087B Interstate Trans of Stolen Prop - $25K 026B ITMSV - Comm Theft or Chop Shops 092C REI - Mexican Orgs 196B In surance Fraud 282A Civi l Rights - Color of Law - F or ce or Vio lence 300A CT Preparedness - Special Events 049A Ban kruptcy Fraud $50K or Court Officer 249A Environmental C rimes 244 Hostage Rescue Team CLASSIFIED INFORMATION REDACTED 0 15B TF IS - Loss of $25K Weapons Explosives -12 000 -10 000 -8 000 -6 000 -4 000 -2 000 0 2 000 Source OIG analysis of FBI ACS data - 46 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Chapter Summary Overall our assessment of utilization rates by program areas confirms that the FBI focused its field agent resources according to its stated priorities In addition the FBI used considerably more field agents in terrorism-related matters than it had projected in FY 2003 In fact the FBI overburned field agent resources in areas related to its top three priorities – counterterrorism counterintelligence and cyber crime Conversely resources dedicated to criminal investigative matters did not reach the allocated staffing levels during FY 2003 the FBI utilized significantly fewer field agents than it had allocated in criminal investigative matters We designed a portion of our analyses to identify the specific investigative classifications most affected by the FBI’s shift in effort during our review period The majority of the top 30 classifications that experienced the greatest increases in field agent utilization were related to terrorism Conversely most of the top 30 classifications that experienced the largest reductions in agent utilization were related to the FBI’s more traditional criminal investigative efforts Only 3 of the 30 classifications in which agent usage decreased the most focused on terrorism-related matters Our specific analyses of casework data revealed that the greatest decreases in case openings occurred in traditional criminal areas where the FBI stated it planned to reduce its efforts while increases in case openings occurred mainly in programs related to terrorism Specifically our analysis of all cases in our universe revealed significant increases in case openings in national foreign intelligence and domestic terrorism matters between FYs 2000 and 2003 and significant decreases in case openings in both violent crime and white-collar crime investigations for the same timeframe As noted in this chapter as well as in Chapter 2 the FBI primarily reduced its investigative efforts in three traditional crime areas organized crime drugs violent crime and white-collar crime In Chapter 4 we discuss the changes that occurred in the allocation and utilization of field agent resources within these three program areas as well as direction given to field offices in these areas by FBI management - 47 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED CHAPTER 4 REDUCTIONS IN FBI PROGRAMS The reprioritization efforts within the FBI called for a shift in resources from traditional criminal investigative areas to terrorism-related initiatives According to the FBI officials looked at various factors in deciding from which programs the resources should be taken including whether the criminal area was one that the FBI exclusively worked For example given that other law enforcement agencies conducted drug investigations and that the Drug Enforcement Administration DEA was the primary federal agency for handling drug investigations the FBI decided that resources could be taken from its Drug Program As discussed in Chapter 2 the FBI’s Criminal Investigative Division experienced significant reductions in the number of allocated field agent positions In particular three CID program areas had fewer agents assigned to field offices in FY 2003 than in FY 2000 Organized Crime Drugs Violent Crime and White-Collar Crime Exhibit 4-1 illustrates changes in field agent allocation that have occurred in these areas during our review period EXHIBIT 4-1 FIELD AGENT FUNDED STAFFING LEVELS IN SELECTED FBI PROGRAM AREAS FISCAL YEARS 2000 AND 200345 I• FY 2000 • FY 2003 2 460 2 279 2 303 2 004 1 710 1 521 ORGANIZED CRIME DRUGS VIOLENT CRIME WHITE-COLLAR CRIME Source OIG Analysis of FBI Resource Management and Allocation Data 45 Because of the transfers of several sub-programs between VCMO and CEI in FY 2003 to obtain a more realistic view of what occurred to the number of funded positions for all violent crime investigations we combined FSLs for VCMO and CEI - 48 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Besides the decline in allocated agent positions these three program areas also experienced significant reductions in the actual utilization of agents In fact 26 of the 30 investigative classifications we identified in Chapter 3 as having experienced the greatest reductions in on-board agents between FYs 2000 and 2003 were part of these 3 program areas In this chapter we discuss the changes that occurred in the allocation and utilization of field agent resources within these program areas as well as direction given to field offices in these areas by FBI management Organized Crime Drug Matters The Organized Crime Drug OC D Program which is divided into separate components for organized crime and drugs targets large criminal organizations The Drug Section investigates organizations involved in illegal drug trafficking while the Organized Crime OC Section investigates other organized criminal enterprises The OC Section did not experience any reduction in allocated resources during the FBI’s reprogramming However investigative efforts related to drug trafficking were significantly affected by the FBI’s reprioritization efforts Therefore we focused our attention on drug-related matters Resource Allocation and Utilization – The FBI allocates OC D resources into three areas Organized Crime Drugs and OCDETF 46 As shown in Exhibit 4-2 reductions in agent Funded Staffing Levels FSLs allocated to Drugs accounted for nearly all of the change within OC D between FYs 2001 and 2003 while agent resources allocated to Organized Crime and OCDETF remained at virtually the same level EXHIBIT 4-2 FIELD AGENT FUNDED STAFFING LEVELS ORGANIZED CRIME DRUG PROGRAM FISCAL YEARS 2001 THROUGH 2003 Component Drugs Organized Crime OCDETF FY 2001 FY 2002 890 326 700 697 488 488 FY 2003 335 698 488 Source FBI Resource Management and Allocation Office 46 The FBI’s FY 2000 FSL allocations only distinguished between OC D and OCDETF in FY 2001 it split OC D into two distinct categories Organized Crime and Drugs - 49 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Similar to the reductions in allocated agents we found significant decreases in the number of on-board agents utilized within the OC D Program between FYs 2000 and 2003 As evidenced in Exhibit 4-3 both FSLs and on-board agents generally decreased in each successive fiscal year The only exception to this occurred in FY 2003 when FSLs increased by 10 positions Field agent FSLs in OC D decreased by 758 positions or nearly 35 percent from FY 2000 to FY 2003 During the same period the number of on-board agents utilized on OC D matters declined by 1 032 agents or 44 percent These results suggest that decreases in field agent utilization within OC D matters exceeded even the FBI’s planned reductions EXHIBIT 4-3 COMPARISON OF ALLOCATED TO ACTUAL FIELD AGENT RESOURCES ORGANIZED CRIME DRUG PROGRAM FISCAL YEARS 2000 THROUGH 200347 FUNDED STAFFING LEVEL 2 279 2•343 ON-BOARD AGENT S I 2 224 2 078 1 511 1 501 2000 2001 2002 2003 FISCAL YEAR Source OIG analysis of FBI TURK data 47 The FSLs include allocated positions for Drugs Organized Crime and OCDETF Because OCDETF FSLs are not separately allocated to OC D-OCDETF sub-program and the VCMO-OCDETF sub-program we incorporated the OCDETF-VCMO on-board agent data in this analysis to provide a valid comparison of allocated-to-actual field agent resources - 50 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED Investigative Classifications – From our identification in Chapter 3 of the individual investigative classifications that experienced the greatest reductions in field agent utilization we found tha t 12 involved OC D investigative matters 48 Moreover 11 of these 12 classifications related to matters involving drugs 49 These 12 classifications and their on-board agent reductions are detailed in Exhibit 4-4 EXHIBIT 4-4 GREATEST AGENT RESOURCE UTILIZATION CHANGES IN ORGANIZED CRIME DRUG CLASSIFICATIONS FISCAL YEARS 2000 AND 2003 Classification Name Classification AOB Change Organized Crime Drug Investigation OC DI Classifications OC DI – Mexican Organizations 281C -119 OC DI – La Cosa Nostra and Italian Organizations 281A -103 OC DI – Other Major Criminal Organizations 281F -76 OC DI – Central South American Organizations 281B -44 OC DI – Caribbean Organizations 281I -43 OC DI – Asian Organizations 281E -40 Organized Crime Drug Enforcement Task Force OCDETF Classifications OCDETF – Mexican Organizations 245C -123 OCDETF – Other Major Criminal Organizations 245F -62 OCDETF – Central South American Organizations 245B -61 OCDETF – VCMO – Gangs 245D -37 OCDETF – Caribbean Organizations 245I -31 Racketeering Enterprise Investigations REI Classifications REI – Mexican Organizations 092C -28 Total -767 Source OIG analysis of FBI TURK data We conducted further analyses of the classifications in Exhibit 4-4 and identified trends in FBI field offices most affected by agent utilization reductions in these investigative areas For example on-board agent reductions in matters involving Central South American organizations tended to impact larger field offices In other instances we observed that the most significant impacts in certain classifications occurred in distinct geographic 48 Classification 245D OCDETF – VCMO – Gangs was transferred from the VCMO Program during FY 2002 and assigned to the Criminal Enterprise Investigations Program in FY 2003 Although this is the only OCDETF related classification not assigned to the OC D Program we include Classification 245D in our discussion of OC D matters in order to keep all OCDETF-related classifications together 49 The one classification not specifically related to drug investigations is 092C which involves racketeering enterprise investigations - 51 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED areas such as matters involving Mexican drug organizations primarily affecting offices along the nation’s southwest border These additional analyses of OC D classifications are contained in Appendix VII Direction to Field Offices – The mission of the FBI’s Drug Program is to disrupt and dismantle drug trafficking organizations posing the greatest threat to the United States and its citizens In 2002 the Department of Justice generated the Consolidated Priority Organization Target CPOT list which is updated regularly and identifies the most significant money laundering and drug trafficking organizations worldwide Although the FBI’s Program Plans encouraged SACs at FBI field offices to use their discretion in addressing the significant drug problems within their jurisdictions any investigation of an organization not on the CPOT list required approval from FBI Headquarters According to the FBI if a field office had a pending investigation with a non-CPOT organization at the time of the FBI’s reprioritization that office had to make an attempt to transfer the investigation to another law enforcement agency or else close the case In accordance with the FBI’s top priority the Drug Section was to allocate resources to first target those organizations with a credible link to terrorist cells and to involve FBI Joint Terrorism Task Forces in any such investigations 50 The FBI also planned to establish a Drug Program Counterterrorism working group to promote coordination among these programs and enhance each program’s expertise The FBI’s March 2004 strategic plan provides additional guidance for drug investigations The plan notes that the DEA is the primary federal agency for combating drug trafficking and that the FBI should complement the DEA’s efforts through an integrated approach while increasing the co-location of FBI drug investigative resources with the DEA The plan also indicates that the FBI should leverage its resources by combining its efforts with state and local law enforcement agencies through increased participation in OCDETF and High Intensity Drug Trafficking Area HIDTA initiatives Violent Crime Matters According to the FBI its overall mission for violent crime matters is to deter significant violent crime and make society a safer place In its 50 FBI Joint Terrorism Task Forces JTTFs are multi-agency counterterrorism working groups made up of representatives from the FBI and other federal state and local law enforcement agencies As of July 2004 there were 84 JTTFs throughout the United States - 52 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED March 2004 strategic plan the FBI noted that although general violent crime rates have fallen in recent years murder rates in the United States have risen since 1999 especially rates in the northeastern portion of the country The FBI attributes this in part to a resurgence in the number of violent street gangs in major metropolitan areas including Chicago New York and Los Angeles According to the FBI the nature of significant violent crime incidents usually requires an immediate response by the FBI and it is vital that the FBI continues to combat violent crime matters across the country The FBI has two programs that concentrate on violent criminal matters the Violent Crime Major Offenders VCMO Program and the Criminal Enterprise Investigations CEI Program Specifically VCMO is responsible for investigating a wide variety of criminal incidents such as bank robberies extortions and kidnappings while CEI is concerned with violent gangs and criminal enterprises involved in major thefts Resource Allocation and Utilization – Based upon data obtained from the FBI field agent resources allocated to violent crime matters have been reduced significantly since FY 2000 Specifically we found a reduction of 294 violent crime positions during our review period an almost 15 percent decrease in resources Further we determined that the FBI utilized 413 fewer agents on violent crime matters in FY 2003 than in FY 2000 In addition to reductions in funded agent positions FBI officials commented that the FBI was significantly underutilizing its violent crime agent resources Exhibit 4-5 compares agent utilization to FSL figures for all violent crime matters for FYs 2000 through 2003 As shown during FYs 2000 and 2001 the FBI overutilized its agent resources in the investigation of violent crime matters However in FYs 2002 and 2003 the FBI underutilized its agent resources in this area During our review period the greatest difference between allocated agent levels and actual agent utilization occurred in FY 2002 when the FBI utilized 310 fewer on-board agents than it was allocated - 53 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 4-5 COMPARISON OF ON-BOARD AGENTS TO FUNDED STAFFING LEVELS IN VIOLENT CRIME MATTERS FISCAL YEARS 2000 THROUGH 200351 Funded Staffing Level 2 004 2 056 1 821 On-Board Agents 1 917 1 710 1 656 1 346 2000 2001 2002 1 432 2003 FISCAL YEAR Source OIG analysis of FBI TURK and Resource Management and Allocation Office data Investigative Classifications – The results of our analysis show that the FBI is devoting fewer field agent resources to violent crime investigations We found that 6 of the 30 investigative classifications that experienced the most significant reductions in on-board agents from FYs 2000 to 2003 are related to violent crime matters 52 Three of these fall into the VCMO Program while the others are located within the CEI Program As shown in Exhibit 4-6 these 6 classifications accounted for a reduction of 285 on-board agents 51 Since FSLs are separately allocated to CEI we included the FSL data and on-board agent data figures for the CEI sub-programs in FYs 2002 and 2003 However FSLs are not specifically allocated to the Innocent Images National Initiative IINI sub-program As noted IINI was an area that was moved from the VCMO Program to the Cyber Crime Program during FY 2002 In order to accurately compare FSL figures to agent utilization figures in FYs 2002 and 2003 the on-board agent data for IINI was removed for this analysis 52 Actually 7 of the 30 classifications experiencing the most significant reduction in on-board agents fall within the VCMO and CEI programs However Classification 245D OCDETF – VCMO Gangs located within the CEI Program is an OCDETF classification that we discussed in the OC D section of this chapter along with the other OCDETF classifications - 54 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 4-6 GREATEST AGENT RESOURCE UTILIZATION CHANGES IN VIOLENT CRIME CLASSIFICATIONS FISCAL YEARS 2000 AND 2003 Program Number Classification Name AOB Change VCMO 088A Unlawful Flight to Avoid Prosecution – Crime of Violence VCMO 091A Bank Robbery -81 VCMO 244 Hostage Rescue Team -24 CEI 087B Interstate Transportation of Stolen Property $25K -29 CEI 026B ITSMV Interstate Transportation of Stolen Motor Vehicle –Commercial Theft or Chop Shops -29 CEI 015B TFIS Theft From Interstate Shipment – Loss of $25K Weapons Explosives -21 Total -101 -285 Source OIG analysis of FBI TURK data The reductions in violent crime resources identified in Exhibit 4-6 affected field offices differently For instance on-board agents investigating bank robberies significantly declined in several field offices but we found no common variable in field office size or location among the affected offices Conversely reductions in agent utilization for fugitive-related matters Classification 088A mostly affected larger field offices Appendix VIII provides additional analyses of violent crime investigative efforts for these classifications at the field office level Direction to Field Offices – According to FBI officials written direction was provided to the field detailing changes within the violent crime program necessitated by the FBI’s reprioritization This direction took the form of electronic communications and announcements of investigative initiatives related to specific types of violent crime Additionally the FBI incorporated aspects of its reprioritization into the program plans it issues annually to the field We reviewed the program plans related to violent crime matters for FYs 2001 and 2003 and found that field offices were given a list of national priorities for violent crime matters as a guide for prioritizing investigations These priorities are based upon the violent crime problems identified by each field office Although we observed slight changes in the priority list between the two fiscal years as shown in Exhibit 4-7 the FBI’s national priorities for violent crime matters have essentially remained the same since FY 2001 This implies that the nation’s violent crime problems have not changed - 55 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 4-7 NATIONAL VIOLENT CRIME PRIORITIES FY 2001 FY 2003 Violent Gangs Violent Gangs 5 3 Major Theft Enterprises Major Theft Enterprises53 Crimes Against Children Violent Incident Crimes Violent Incident Crimes Crimes Against Children Indian Country Indian Country Violent Fugitives Violent Fugitives Special Jurisdiction Crimes Transportation Crimes Transportation Crimes Special Jurisdiction Crimes Other Matters Source FY 2001 and FY 2003 FBI Program Plans The FBI’s program plans further noted that the FBI’s violent crime strategy was to take a proactive approach to identifying and preventing the emergence of crime trends while also maintaining a strong reactive capacity in responding to violent crimes As was the case with other criminal investigative programs the FBI’s violent crime program was directed to leverage its limited resources Specifically according to an FBI memorandum field offices were to concentrate their violent crime efforts primarily on criminal enterprises Additionally SACs were advised to keep the FBI’s national priorities in mind while directing their limited violent crime resources to matters that were most problematic within their jurisdictions White-Collar Crime Matters The FBI’s White-Collar Crime Program WCC is responsible for investigating and preventing major frauds committed against individuals and businesses as well as with protecting the financial markets of the United States In its March 2004 strategic plan the FBI predicted that major white-collar crime would impact the United States economy over the next five years and that crimes such as money laundering and health care fraud would increase in the near future Resource Allocation and Utilization – From FYs 2000 to 2003 the FBI experienced a reduction of 157 allocated WCC field agent positions reflecting a 6 percent decrease Besides the allocation reductions we also found that the FBI was using on average 20 percent fewer agents on white-collar crime investigations in FY 2003 than in FY 2000 In FY 2000 2 426 on-board agents were involved in such investigations In FY 2003 the number dropped to 1 952 53 These were the top priorities listed under CEI for FY 2003 As previously mentioned CEI did not exist in FY 2001 - 56 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED We compared the field agent utilization to FSL figures for FYs 2000 through 2003 for WCC As shown in Exhibit 4-8 the FBI underutilized its agent resources in the investigation of white-collar crime matters in each fiscal year of our review period However the magnitude of the underutilization increased during FYs 2002 and 2003 i e after the reprioritization For example the FBI utilized only 83 percent of its funded white-collar agents during FY 2003 compared to 99 percent in FY 2000 EXHIBIT 4-8 COMPARISON OF ON-BOARD AGENTS TO FUNDED STAFFING LEVELS IN WHITE-COLLAR CRIME MATTERS FISCAL YEARS 2000 THROUGH 200354 Funded Staffing Level 2 460 2 426 2 404 On-Board Agents 2 330 2 303 2 210 1 904 1 775 2000 2001 2002 2003 FISCAL YEAR Source OIG analysis of FBI TURK and Resource Management and Allocation Office data Investigative Classifications – Among the 30 classifications that experienced the greatest reductions in on-board agents 8 pertained to white-collar crime matters see Exhibit 4-9 Included in these eight investigative classifications were those related to health care telemarketing and insurance fraud Combined the eight classifications listed in Exhibit 4-9 accounted for over 60 percent of the overall utilization decrease in WCC 54 FSLs are not specifically allocated to the Intellectual Property Rights IP sub-program As noted IP was moved from the WCC Program to the Cyber Crime Program during FY 2002 In order to accurately compare FSL figures to agent utilization figures in FYs 2002 and 2003 the on-board agent data for IP was removed for this analysis - 57 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED during our review period The changes that occurred in each of these classifications at the field office level are detailed in Appendix IX EXHIBIT 4-9 GREATEST AGENT RESOURCE UTILIZATION CHANGES IN WHITE-COLLAR CRIME CLASSIFICATIONS FISCAL YEARS 2000 AND 2003 Classification Number Classification Name Financial Institution Fraud 029C FIF - $25K - $99 999 Fed-Insured Bank AOB Change -50 Health Care Fraud 209A Health Care Fraud – Government Sponsored Program 209B Health Care Fraud – Private Ins Program -89 -32 Other Fraud Investigative Areas 196A Telemarketing Fraud 196D Other Wire Mail Fraud Schemes 196B Insurance Fraud 049A Bankruptcy Fraud $50K or Court Officer -37 -35 -28 -26 Environmental Crimes 249A Environmental Crimes -25 Total Source OIG analysis of FBI TURK data -322 Direction to Field Offices – As part of the reprioritization FBI senior management provided field offices with written direction concerning the financial crime areas on which to focus their investigative efforts In August 2002 field offices were notified of the current WCC national priorities which were reiterated to field offices again in October 2002 In particular the FBI’s Criminal Investigative Division emphasized that field offices should evaluate their current investigations to ensure that they are actively pursuing the top four priorities within WCC 1 Public Corruption 2 Corporate Securities and Commodities Fraud 3 Health Care Fraud and 4 Financial Institution Fraud FIF In addition to these four priority areas WCC’s FY 2003 Program Plan identified Money Laundering and Governmental Fraud as two additional areas that were particularly important Although SACs have discretion in determining which crimes to investigate and how to utilize their resources FBI management reminded the SACs to address white-collar crime matters in priority order One of the most significant changes that has occurred within WCC since the reprioritization pertains to FIF matters In the past field offices were allowed to investigate FIF cases in which losses exceeded $25 000 without approval from FBI Headquarters In August 2002 field offices were informed that the dollar threshold on initiating FIF cases had been raised to $100 000 and the investigation of any FIF matter falling under this - 58 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED threshold required pre-approval from FBI Headquarters Since this policy was initiated FBI management has reminded field offices on several occasions of this new requirement Conclusion Of the three program areas reviewed in this chapter OC D experienced the greatest decrease in funded agent positions in the FBI’s post-9 11 reprioritization a reduction of nearly 35 percent from FY 2000 to FY 2003 During the same period OC D experienced a nearly 45 percent decrease in agent resource utilization predominantly within the area of drug investigations where the FSL for field agents dropped by 62 percent between FYs 2001 and 2003 Moreover 12 of the 30 classifications we identified as having experienced the greatest reductions in on-board agents during our review period originated in OC D FBI investigative activity in violent crime matters has also reduced by approximately 15 percent from FY 2000 to FY 2003 In particular in the 6 investigative classifications identified in Exhibit 4-6 the FBI experienced a reduction of 285 on-board agents between FYs 2000 and 2003 Moreover after utilizing more agents than it had allocated for violent crime matters in FYs 2000 and 2001 the FBI utilized fewer violent crime agents than allocated in FYs 2002 and 2003 Our analyses of on-board agent data indicated that there were approximately 20 percent fewer agents investigating white-collar crime matters in FY 2003 than in FY 2000 In addition 8 of the 30 decreasing investigative classifications identified involved white-collar crime matters Specifically we noted that the most significant agent utilization reductions occurred in telemarketing fraud health care fraud and insurance fraud We also noted reductions in classifications pertaining to financial institution fraud environmental crimes bankruptcy fraud and wire fraud In terms of allocated positions the FBI reduced the number of funded agent positions assigned to investigate white-collar crime in the majority of field offices From FYs 2000 to 2003 the FSLs for the WCC Program decreased by 157 agent positions The reassignment of agent resources has had an effect on FBI field offices In some cases offices in particular geographic locations and offices of particular sizes were more affected than others Detailed information related to the 30 investigative classifications experiencing the greatest reductions in on-board agents between FYs 2000 and 2003 is located in Appendices VII through IX Detailed information on individual field offices is located in Supplemental Appendices I through III - 59 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED CHAPTER 5 CONCLUSIONS AND RECOMMENDATION In direct response to the 9 11 terrorist attacks the FBI Director initiated a transformation of the FBI that among other things established a new set of priorities and formally shifted a significant number of agents from traditional criminal investigative work to counterterrorism and counterintelligence matters According to the Director each of the changes was designed to reshape the FBI into an organization better able to combat terrorism and to prevent another large-scale terrorist attack against the United States Many of the FBI officials we interviewed remarked that the FBI had shifted its attention from traditional criminal areas e g drugs and violent crime to terrorism-related matters Specifically they indicated three investigative areas that were negatively impacted as a result of the reprioritization drugs violent crime and white-collar crime In determining from which areas to shift resources one of the factors FBI management considered was whether the FBI exclusively worked on particular investigative matters For example other agencies are involved in the investigation of illegal drug trafficking particularly the DEA The results of our analyses of the allocation and utilization of agents coincide with these officials’ comments In particular between FYs 2000 and 2003 the FBI increased its agent utilization within the National Foreign Intelligence Program NFIP by about 1 400 agents Conversely agent utilization in the Organized Crime Drugs OC D White-Collar Crime WCC and Violent Crime Major Offenders VCMO programs combined was reduced by 1 871 agents This indicates that the FBI significantly shifted its agent utilization from traditional criminal investigations to matters related to terrorism The changes in actual agent utilization were consistent with the changes in the FBI’s Funded Staffing Levels FSLs or human resource allocation The FBI allocated a larger number of agent resources to terrorism-related matters in FY 2003 than in FY 2000 while reducing the number of positions allotted for organized crime drugs violent crime and white-collar crime during the same time period Specifically more than 560 additional field agent positions were allocated to terrorism-related areas in FY 2003 compared to FY 2000 In turn the FBI reduced its funded agent resources in the noted traditional crime areas by 1 035 The majority of this reduction occurred within the Organized Crime Drugs Program which lost a total of 758 positions during our review period Thus the FBI reprogrammed resources to target its top priorities e g counterintelligence and counterterrorism by transferring resources from its traditional crime programs e g drugs and violent crime - 60 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED As evidenced by FY 2003 data the FBI’s shift in agent resource utilization exceeded the number of positions it intended to transfer from traditional criminal investigative matters to terrorism-related areas The FBI used 845 more agents than it had allocated for terrorism matters while it utilized 879 fewer agents than planned in traditional crime areas Concomitantly in our EXHIBIT 5-1 review of casework we COMPARISON OF ALLOCATED TO UTILIZED AGENTS FISCAL YEAR 2003 found that by FY 2003 the FBI opened fewer cases in 1-- ON-BOARD AGENTS u FUNDED STAFFING LEVEL 1 traditional criminal areas and more in areas related to terrorism Specifically the FBI opened 70 percent more NFIP cases and over 50 percent more DT cases in FY 2003 than in FY 2000 For the same period the FBI opened more than 50 percent fewer organized crime drug cases TerrorismNon-Terrorism Related 40 percent fewer violent Related crime cases and more Source OIG analysis of FBI TURK and RMA Office data than 25 percent fewer white-collar crime cases In terms of terrorism and non-terrorism related matters the FBI opened 25 431 terrorism-related cases in FY 2003 compared to 15 799 in FY 2000 an increase of 61 percent Conversely during the same timeframe the number of non-terrorism related cases the FBI opened decreased from 64 281 to 40 603 reflecting a reduction of 37 percent In addition to evaluating resource utilization and allocation changes we performed analyses at the FBI’s investigative classification level Of the 30 classifications experiencing the greatest increase in agent utilization between FYs 2000 and 2003 24 of those classifications were associated with terrorism matters Conversely we identified the FBI’s 30 investigative classifications with the greatest reductions in agent utilization Of these 12 pertained to organized crime drug matters such as Classification 245C OCDETF – Mexican Organizations 6 related to violent crime matters including Classification 088A Unlawful Flight to Avoid Prosecution – Crime of Violence and 8 pertained to white-collar crime matters such as Classification 209A Health Care Fraud – Government Sponsored Program Combined the FBI used 1 374 fewer on-board agents in these investigative areas in FY 2003 than in FY 2000 - 61 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED EXHIBIT 5-2 AGENT UTILIZATION CHANGES WITHIN PROGRAM AREAS FOR THE 30 CLASSIFICATIONS EXPERIENCING THE GREATEST REDUCTIONS IN AGENT UTILIZATION FISCAL YEARS 2000 AND 2003 -28 -27 Civil Rights Domestic Terrorism CLASSIFIED INFORMATION REDACTED -767 Organized Crime Drug White-Collar Crime Violent Crime Source OIG analysis of FBI TURK data After analyzing how the reprioritization has affected the FBI’s resource utilization in specific investigative areas we plan to conduct further analyses to determine how the FBI’s shift in priorities and operations has affected outside entities We hope to discuss these effects with federal state and local officials in those geographical areas most affected by the reduction in the FBI’s traditional criminal investigative efforts By doing this we hope to provide useful and comprehensive feedback to aid future operational policy decisions and to assist the FBI in its reprioritization decisions This report contains comprehensive data-driven analyses of the changes in the FBI’s use of resources as a result of its shift in priorities and allocation of staff These types of analyses can be useful to FBI executive management and program directors for evaluating progress in meeting goals and obtaining a data-based view of the status of FBI operations Recommendation We recommend that the FBI 1 Consider developing evaluation models similar to the ones presented in this report to assist in managing FBI programs - 62 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX I APPENDIX I OBJECTIVE SCOPE AND METHODOLOGY Audit Objective The objective of this audit was to identify internal operational changes in the FBI resulting from the FBI’s ongoing reorganization and reprioritization effort including the types of offenses that the FBI is no longer investigating at pre-September 11 2001 levels Scope and Methodology We performed our audit in accordance with Government Auditing Standards issued by the Comptroller General of the United States and included such tests of the records and procedures that we considered necessary to accomplish the audit objective The informational nature of our audit objective did not require that we perform testing of the FBI’s compliance with laws and regulations We conducted work at FBI Headquarters in Washington D C the FBI Academy and FBI Laboratory in Quantico Virginia and at the Critical Incident Response Group CIRG facility in Aquia Virginia We interviewed over 40 officials from the FBI including the Executive Assistant Directors for Administration Intelligence and Law Enforcement Services the Assistant Director of the Criminal Investigation Division and the Special Assistant to the Director for Strategic Planning We also interviewed FBI officials from the Finance Division the Resource Management and Allocation RMA Office and the Automated Case Support ACS system as well as numerous Section Chiefs and Unit Chiefs representing FBI programs the FBI Laboratory and the FBI Academy Through these interviews and our review of documents and records pertaining to the audit objective we obtained an understanding of the plans set forth in the FBI’s post-9 11 reorganization reprioritization and reprogramming as well as the reality of their implementation To achieve the audit objective we used computer-processed data maintained in FBI information systems To examine the FBI’s human resource utilization we reviewed data from the TURK system a module of the FBI’s payroll system for the period of September 26 1999 through September 20 2003 The TURK system contains work hour and Average On Board data for most FBI agents and support involved with investigative matters To examine the numbers and types of cases in its various criminal programs we reviewed data from the Automated Case Support ACS system which assigns unique case identifiers to all investigations and contains case-related material for the same period - 63 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX I Because we had assessed the reliability of the computer-processed data provided by the FBI during the recently-completed audit of FBI Casework and Human Resource Utilization and we were utilizing the same systems to obtain data for analysis we did not repeat this process 55 In the prior audit for data from the TURK and ACS systems we performed tests to establish reliability and obtained confirmation from FBI officials as to the data’s reliability For both systems we reviewed management controls and we performed data validity tests at the FBI Field Office in Chicago Illinois Based on our test results and the information we obtained we concluded the data was sufficiently reliable to achieve our audit objective 56 Data Analysis We performed analyses of FBI resource allocation and utilization data as well as casework data to identify trends in the FBI’s operations from September 26 1999 through September 20 2003 In total this data amounted to 1 864 141 records Funded Staffing Levels – In our analyses involving agent and support resource allocation we used the FBI’s Funded Staffing Levels FSLs that are established by the RMA Office We obtained field office FSLs for each program and fiscal year both for agents and support personnel for FYs 2000 through 2003 We also received FSLs for FBI Headquarters organized at the Division level for the same period The FSLs we obtained represented the final allocations set for each fiscal year which reflected any mid-year adjustments The two sets of data amounted to 5 453 records Average on Board - TURK generally records percentages of time worked for both agents and support personnel in the FBI’s 56 field offices Headquarters personnel do not record their time in TURK TURK data collection is divided into 13 TURK periods per fiscal year each TURK period is 4 weeks Each agent or support employee records the percentage of time worked each day according to FBI investigative classifications the percentages are based on a 10-hour day for agents and an 8-hour day for support personnel 57 These percentages are recorded and the result is 55 Office of the Inspector General OIG Audit Report number 03-37 “Federal Bureau of Investigation Casework and Human Resource Utilization ” dated September 2003 56 FBI field agents are responsible for reporting the proportion of their time worked in FBI investigative classifications Therefore the data derived from the FBI TURK system are only as valid as the information reported by FBI field agents 57 The FBI assigns each of its cases to an investigative classification based on the nature of the case The investigative classification is the greatest level of detail for which the FBI tracks resource utilization Each classification is assigned to a program and if appropriate a sub-program - 64 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX I averaged to show time worked in a specific classification equivalent to a full-time employee which the FBI calls Average on Board AOB For example if two agents within a particular field office each worked half their time 50 percent on Bankruptcy Fraud – FBI investigative Classification 49 - within a given TURK period the AOB for that field office in classification 49 within the TURK period would be equal to 1 agent AOB 100 percent of 1 agent -equivalent The FBI considers the TURK system’s AOB data to be the best way to assess the actual time worked by FBI employees in specific FBI investigative programs sub-programs and classifications For the purposes of this report we use the term AOB and on-board employee agent or support interchangeably We received two data runs of AOB data for both agents and support personnel for the period of September 26 1999 through September 20 2003 covering FYs 2000 through 2003 in the TURK system The first data run was provided in a text file which we imported into a database file The data run contained 670 791 records each containing the following fields • • • • • • • • Field Office City of FBI Field Office Employee Indicator Agent or Support Fiscal Year 2000 through 2003 Turk Period 1 through 13 Program Numeric Indicator Sub-Program Alpha Indicator Classification Alpha-Numeric Indicator Average On Board AOB for the program sub-program classification designated We compared the annual AOB figures at the program level to the figures verified by the FBI in the Federal Bureau of Investigation Casework and Human Resource Allocation report issued September 2003 86 Through this comparison we discovered that the figures we developed did not match those affirmed by the FBI We learned that the FBI retroactively adds employee leave and miscellaneous time into the TURK record of each employee at the program sub-program level The FBI does this through use of an automated Investigative Program Allocator which prorates the data back into each record based on that employee’s activity in the previous six pay periods Because we requested data down to the classification level – a more detailed level than the program level – employee leave time was not included in our AOB analyses therefore our results did not match actual totals Hence this first data run only was us ed to conduct analyses at the classification level - 65 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX I A second data run in the same format as the first but only down to the program sub-program level was requested to conduct analyses of AOB at such specification Again we received this file in a text file and exported it into a database file for testing The second data run possessed 339 180 records each containing the following fields • • • • • • • Field Office City of FBI Field Office Employee Indicator Agent or Support Fiscal Year 2000 through 2003 Turk Period 1 through 13 Program Numeric Indicator Sub-Program Alpha Indicator Average On Board AOB for the program sub-program designated Agent Utilization – We elected to analyze AOB data by fiscal year To do this we totaled the AOB for all TURK periods within each fiscal year for each investigative program sub-program or classification Next we divided this total by the number of TURK periods 13 to obtain the average agents or support personnel working a particular program sub-progra m or classification in a given fiscal year Analysis at the Program Sub-Program Level – The data universe used to conduct analyses at the program sub-program levels and for the FBI as a whole included subtotals for each program In order to perform our analysis we first removed all subtotals and then calculated AOB for each fiscal year For the FBI as a whole we reviewed AOB data for FYs 2000 through 2003 The audit objective was to identify internal operational changes in FBI investigative efforts occurring as a result of the FBI’s reprioritization and internal reorganization Therefore to assess the change in agent utilization we focused our analysis on comparing AOB totals between FYs 2000 and 2003 58 This approach afforded a view of AOB both before and well into the FBI’s reprioritization efforts revealing the areas of greatest change in actual agent and support personnel time worked Thus at the program level and when necessary at the sub-program level we conducted analyses of the AOB change between FYs 2000 and 2003 However in order to accurately compare the change in agent utilization at the program level we had to account for sub-programs that transferred programs for FY 2003 The Cyber Crime Program CCP and the Criminal Enterprise Investigations CEI Program began tracking resource utilization in the TURK system in FY 2003 As detailed in the following table 58 The rationale for this decision is contained in Chapter 1 - 66 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX I sub-programs in VCMO and WCC were moved to CCP and CEI beginning FY 2003 Therefore to accurately assess the change in the FBI’s investigative efforts at the program level we added the FY 2003 AOB totals for these sub-programs back into their previous program SUB-PROGRAMS TRANSFERRED BETWEEN PROGRAMS Sub-program FY 2000 – FY 2002 Program FY 2003 Program Intellectual Property Rights WCC CCP Innocent Images Initiative VCMO CCP OCDETF – VCMO VCMO CEI Major Theft VCMO CEI Violent Gangs VCMO CEI Source FBI Finance Division Analysis at the Investigative Classification Level – Besides conducting analyses of resource utilization at the program sub-program levels we also performed analyses down to the classification level First we first computed the change in agent AOB for each classification between FYs 2000 and 2003 Next we determined which investigative classifications experienced the greatest change in resource utilization both positive change and negative change In line with our objective to analyze the impact on investigative effort we did not include classifications related to training or administrative matters In addition we eliminated any classification that changed or one that did not exist in both FYs 2000 and 2003 59 Classifications Experiencing a Reduction in Resource Utilization – We identified the 30 classifications that endured the largest decrease in AOB between FYs 2000 and 2003 60 Classifications that were eliminated from our analysis are included in the following table 61 59 Classification numbers that embodied disparate classification names for FYs 2000 and 2003 were not included in our analysis Additionally some classifications were eliminated while others were created between FYs 2000 and 2003 making it impossible to accurately compare resource utilization changes within these areas 60 Exhibit 3-14 in Chapter 3 contains a list of the 30 classifications that experienced the largest AOB reductions 61 We only note those classifications that unless eliminated would have been included as one of the 30 classifications experiencing the greatest reduction in AOB - 67 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX I INVESTIGATIVE CLASSIFICATIONS ELIMINATED FROM ANALYSIS OF CLASSIFICATIONS EXPERIENCING THE GREATEST AOB REDUCTION Classification Reason for Number Classification Name Elimination 001A Training – FBI Personnel FY 2000 Training Training – Training Coordinator FY 2003 001B Training-Other Fed State County Local LE Training personnel FY 2000 Training Not in FY 2003 197 Civil Suits and Claims FBI Programs Not in FY 2003 CLASSIFIED INFORMATION REDACTED Not in FY 2003 232A Training Received – White-Collar Crime Training 240 Training Received – Other Training Source OIG analysis of FBI TURK data Classifications Experiencing an Increase in Resource Utilization – We also identified the 30 classifications that endured the largest increase in AOB between FYs 2000 and 2003 eliminating classifications using the same methodology as we did in the top 30 decreasing classifications 62 The classifications that were eliminated and the reason for the elimination are detailed in the following table 63 62 Exhibit 3-11 in Chapter 3 contains a list of the 30 classifications that experienced the largest AOB increases 63 We only note those classifications that unless eliminated would have been included as one of the 30 classifications experiencing the greatest increase in AOB - 68 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX I INVESTIGATIVE CLASSIFICATIONS ELIMINATED FROM ANALYSIS OF CLASSIFICATIONS EXPERIENCING THE GREATEST AOB INCREASE Classification Reason for Number Classification Name Elimination 001G Domestic Terrorism – Training Received Not in FY 2000 001I FCI – Training Received Training 001K International Terrorism – Training Received Not in FY 2000 001L International Terrorism – Training Provided Training 001M NIPCIP-Computer Intrusion – Training Received Training 001Q OC DP – Drugs – Training Received Training 001U Training VCMOP Not in FY 2000 001W WCC – Training Received Training 001Y Firearms Legal Other – Training Received Training 001Z Firearms Legal Other – Training Provided Training 063B HQ Use Only – TURK Not Recorded Administrative 066F Admin Matters Other Administrative 089G Attorney General Protection Detail Not in FY 2000 196E Internet Fraud Not in FY 2000 197A Civil Litigation Not in FY 2000 Not in FY 2000 CLASSIFIED INFORMATION REDACTED Not in FY 2000 Not in FY 2000 209C Health Care Crime Non-Insurance Not in FY 2000 245K OCDETF – Money Laundering - Drugs Not in FY 2000 National Collection Directive FY 2000 Targeting Change in 288B the National Info Infrastructure FY 2003 name 295E Copyright Infringement Signal Theft Matters Not in FY 2000 300H CT Preparedness – WMD Preparedness Not in FY 2000 Innocent Images National Initiative Training 305B Training FY 2000 IINI – Travelers Enticement FY 2003 305C IINI – Producers CP Not in FY 2000 305D IINI – Possessors of CP Not in FY 2000 308A ERT Administrative Matter Administrative 308B ERT Training Received Training 308K ERT Crime Scene – Other Not in FY 2000 314 Intelligence Base Infragard Not in FY 2000 Source OIG analysis of FBI TURK data - 69 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX I FBI Casework – For our analyses of the FBI’s casework we received two data runs from the Automated Case Support ACS system containing all FBI cases worked during our review period We discarded the first data run due to omissions and data organization errors prior to receiving the final one The information was provided in a database file containing 848 717 records separated into the following fields Field Name § § § § § § § § § § § Field Description Office Code Case ID Class Subclass Program Name Sub-program Name Open Date Close Date Days Pending Destroyed Case Previous Class 2 digit alpha designation for office of origin Universal Case File Number UCFN Classification of case Subclassification of case Name of program Name of sub-program yyyymmdd format yyyymmdd format Number of days the case is open “D” designation when case is destroyed Previous classification of case if reclassified In reviewing the data we noted that instead of containing only cases from September 26 1999 through September 20 2003 as we had requested the data run contained cases that closed after the final day of FY 2003 and up to and including December 2 2003 We determined that it was not necessary to request a new data run to correct for this inaccuracy these FY 2004 cases are not included in any of our analyses In addition we discovered 4 977 cases in the database that were designated as having been destroyed Of these 4 977 cases we found 339 that contained opening and closing dates We determined that we could include these 339 cases in any analyses involving case opening and closing dates while we needed to eliminate those that contained no open and close dates We therefore retained the 339 destroyed cases containing open and close dates and eliminated the remaining 4 638 cases that did not contain open and close dates These 4 638 cases reflected one percent of the remaining database of 404 318 cases on which we performed our analyses We confined our casework analysis to the data we obtained from the ACS system and did not review individual case files to determine the actual level of effort expended on any single case Thus if a case was open during a particular timeframe we considered it to be worked during that period - 70 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX II APPENDIX II DESCRIPTIONS OF FBI PROGRAMS National Foreign Intelligence Program NFIP – the FBI’s foreign counterterrorism and counterintelligence work is concentrated within this program Sub-programs found in NFIP include Foreign Counterintelligence FBI Security and International Terrorism National Infrastructure Computer Intrusion Program NIPCIP – work performed in this program involves protection of computer networks and critical infrastructures Work in this program includes Computer Intrusion Criminal Matters and Protection of Transportation Facilities In FY 2002 the National Infrastructure Protection Center was moved to the Department of Homeland Security DHS What remained after this transfer was the Computer Intrusion Program which was moved into the Cyber Division Domestic Terrorism Program DT – the FBI’s resources directed towards “home-grown” terrorists are captured in this program Sub-programs include Counterterrorism Preparedness and Weapons of Mass Destruction White-Collar Crime Program WCC – FBI investigations related to most economic-based crimes including money laundering government fraud public corruption and antitrust matters are captured by this program Organized Crime Drug Program OC D – FBI investigations that identify dismantle or disrupt major international and national organized criminal enterprises fall within this program Cases in this program target large organized crime and drug organizations as well as OCDETF activities Violent Crime Major Offenders Program VCMO – Cases that target the most significant violent crime including crimes against children fugitives and transportation crimes are categorized under this program Civil Rights Program CR – Examples of crimes investigated within this program are hate crimes color of law violations and involuntary servitude slavery issues Cyber Crime Program CCP – Created in FY 2002 cyber crime involves investigating and preventing cyber attacks by foreign adversaries and terrorists and the investigation of all computer-based crime such as Internet-based child pornography sexual predators and Internet fraud The sub-programs that make up the CCP came in part from both the White-Collar Crime and Violent Crime Major Offenders programs - 71 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX II Criminal Enterprise Investigations CEI – The sub-programs that make up CEI originated in the Violent Crimes and Major Offenders Program and involve investigations related to OCDETF gang investigations major theft and violent gangs Applicant Program APP – FBI administrative work involving the selection and processing of new agent and support personnel as well as background investigations for new and current hires federal judges and white house staff is categorized under this program Training TRAIN – Training involving FBI employees as well as state and local personnel falls within this program Miscellaneous Matters MISC – FBI administrative matters are mostly captured by this program including Freedom of Information Act requests accidents involving FBI vehicles and public relations matters - 72 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX III APPENDIX III CROSSWALK OF FBI PROGRAMS AND SUB-PROGRAMS FYS 2000 THROUGH 2003 FBI PROGRAMS National Foreign Intelligence NFIP National Infrastructure Protection Computer Intrusion NIPCIP Domestic Terrorism DT White-Collar Crime WCC FY 2000 SUB-PROGRAMS FYS 2001 2002 SUB-PROGRAMS CI-Foreign Counterintelligence SC-FBI Security TI-International Terrorism CI-Foreign Counterintelligence SC-FBI Security TI-International Terrorism No Sub-programs FY 2003 SUB-PROGRAMS CI-Foreign Counterintelligence SC-FBI Security TI-International Terrorism CP-Computer Intrusion FP-Infrastructure Protection No Sub-programs No Sub-programs AT-Antitrust BF-Bankruptcy Fraud EN-Environmental Crimes FI-Financial Institution Fraud GF-Fraud Against the Government HF-Health Care Fraud IF-Insurance Fraud IP-Intellectual Property Rights ML-Money Laundering PC-Public Corruption SF-Securities Commodities Fraud TM-Telemarketing Fraud ZZ-Other Matters CT-Counterterrorism Preparedness DT- Domestic Terrorism Operations WM-Weapons of Mass Destruction AT-Antitrust BF-Bankruptcy Fraud EN-Environmental Crimes FI-Financial Institution Fraud GF-Fraud Against the Government HF-Health Care Fraud IF-Insurance Fraud IP- Intellectual Property Rights ML-Money Laundering PC-Public Corruption SF-Securities Commodities Fraud TM-Telemarketing Fraud ZZ-Other Matters WF-Other Wire Mail Fraud Schemes Green script indicates creation of a new sub-program Blue script indicates a WCC sub-program transferred to CCP in FY 2003 Red Script indicates VCMO sub-programs transferred to either CCP or CEI in FY 2003 - 73 REDACTED AND UNCLASSIFIED CT-Counterterrorism Preparedness DT- Domestic Terrorism Operations WM-Weapons of Mass Destruction AT-Antitrust BF-Bankruptcy Fraud EN-Environmental Crimes FI-Financial Institution Fraud GF-Fraud Against the Government HF-Health Care Fraud IF-Insurance Fraud ML-Money Laundering PC-Public Corruption SF-Securities Commodities Fraud TM-Telemarketing Fraud ZZ-Other Matters WF-Other Wire Mail Fraud Schemes REDACTED AND UNCLASSIFIED FBI PROGRAMS Organized Crime Drugs OC D Violent Crimes and Major Offenders VCMO APPENDIX III FY 2000 SUB-PROGRAMS FYS 2001 2002 SUB-PROGRAMS FY 2003 SUB-PROGRAMS AC-Asian Criminal Enterprise CO-Columbian Caribbean DD-Community Outreach Program DE-OCDE Task Force LC-La Cosa Nostra MC-Mexican Criminal Syndicates RE-Russian Eastern European Eurasia OM-Other Matters CA-Crimes Against Children DF-OCDE-Task Force-VCMO FU-Fugitives IC-Crimes in Indian Country II-Innocent Images Initiative MT-Major Theft SJ-Special Jurisdiction Matters TC-Transportation Crimes VC-Violent Incident Crimes VW-Victim Witness Assistance ZV-Other Matters VG-Violent Gangs AC-Asian Criminal Enterprise CO-Columbian Caribbean DD-Community Outreach Program DE-OCDE Task Force LC-La Cosa Nostra Italian O C Labor Rack MC-Mexican Criminal Syndicates RE-Russian Eastern European Eurasia OD-Other Matters-Drugs OM-Other Matters-Organized Crime CA-Crimes Against Children DF-OCDE- Task Force-VCMO FU-Fugitives IC-Crimes in Indian Country II- Innocent Images National Initiative MT-Major Theft SJ-Special Jurisdiction Matters TC-Transportation Crimes VC-Violent Incident Crimes VW-Victim Witness Assistance ZV-Other Matters VG-Violent Gangs AC-Asian Criminal Enterprise CO-Columbian Caribbean DD-Community Outreach Program DE-OCDE Task Force LC-La Cosa Nostra Italian O C Labor Rack MC-Mexican Criminal Syndicates RE-Russian Eastern European Eurasia OD-Other Matters-Drugs OM-Other Matters-Organized Crime CA-Crimes Against Children No Sub-programs No Sub-programs No Sub-programs FU-Fugitives IC-Crimes in Indian Country SJ-Special Jurisdiction Matters TC-Transportation Crimes VC-Violent Incident Crimes VW-Victim Witness Assistance ZV-Other Matters Civil Rights CR Green script indicates creation of a new sub-program Blue script indicates a WCC sub-program transferred to CCP in FY 2003 Red Script indicates VCMO sub-programs transferred to either CCP or CEI in FY 2003 - 74 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED FYS 2000-2002 PROGRAMS Applicants APP Training Matters TRAIN Miscellaneous MISC FY 2000 SUB-PROGRAMS APPENDIX III FYS 2001 2002 SUB-PROGRAMS FY 2003 SUB-PROGRAMS BP-Background Investigations ON-Other Non-Reimbursables OR-Other Reimbursables RP- Recruitment and Processing BP-Background Investigations ON-Other Non-Reimbursables OR-Other Reimbursables RP- Recruitment and Processing BP-Background Investigations ON-Other Non-Reimbursables OR-Other Reimbursables RP- Recruitment and Processing FE-Federal ST-State Local FE-Federal ST-State Local FE-Federal ST-State Local No Sub-programs No Sub-programs Cyber Crime Program CCP 64 No Sub-programs IN-Internet Fraud ID-Identity Theft No Sub-programs No Sub-programs IP-Intellectual Property Rights II-Innocent Images National Initiative Criminal Enterprise Investigations CEI 64 No Sub-programs No Sub-programs DF-OCDE Task Force MT-Major Theft VG-Violent Gangs Green script indicates creation of a new sub-program Blue script indicates a WCC sub-program transferred to CCP in FY 2003 Red Script indicates VCMO sub-programs transferred to either CCP or CEI in FY 2003 64 Both the Cyber Crime and Criminal Enterprise Investigations programs were created in FY 2003 - 75 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IV APPENDIX IV FBI ORGANIZATIONAL CHART D D D component existing prior to reorganization effort that began in December 2001 component created in reorganization of December 2001 original reorganization component receiving final approval on March 4 2004 •---- H H H H DIRECTOR SAC Advisory Committee Chief of Staff Inspection Division Office of Public Affairs Congressional Affairs Office I Office of the Ombudsman I Deputy Director H Office of General Counsel H Office of Equal Employment Opportunity H Chief Information Officer I y Office of Professional Responsibility I I Executive Assistant Director for Intelligence Executive Assistant Director for Counterterrorism Counterintelligence Executive Assistant Director for Criminal Investigations I I Executive Assistant Director for Law Enforcement Services Executive Assistant Director for Administration Office of Law Enforcement Coordination I I Office of International Operations Critical Incident Response Group I I Office of Intelligence Counterterrorism Division I Counterintelligence Division II I Office of Strategic Planning r Records Management Division I I I I I I Cyber Division Criminal Investigative Division Training Division Laboratory Division Administrative Services Division Security Division I I I I Criminal Justice Information Services Division Investigative Technologies Division Finance Division Information Resources Division Source http www fbi gov from March 2004 - 76 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX V APPENDIX V FBI PRE-9 11 ORGANIZATIONAL CHART Approved on 07 23 99 DIRECTOR I Office of the General Counsel I I Chief of Staff Inspection Division DEPUTY DIRECTOR Office of Professional Responsibility I Administrative Services Division I I Office of Public and Congressional Affairs Office of Equal Employment Opportunity Affairs I I I I I Finance Division Criminal Justice Information Services Division Information Resources Division Criminal Investigative Division Counterterrorism Division National Security Division Source FBI FY 2001 Authorization and Budget Request for the Congress - 77 REDACTED AND UNCLASSIFIED I I I Investigative Services Division Laboratory Division Training Division REDACTED AND UNCLASSIFIED APPENDIX VI APPENDIX VI CASEWORK IN TOP CLASSIFICATIONS U S NUMBER OF CASES WORKED IN THE TOP 30 INVESTIGATIVE CLASSIFICATIONS EXPERIENCING THE GREATEST REDUCTIONS IN ON-BOARD AGENTS FISCAL YEARS 2000 THROUGH 2003 Investigative Classification 091A Bank Robbery 088A Unlawful Flight to Avoid Prosecution - Crime of Violence 196D Other Wire and Mail Fraud Schemes 029C FIF - $25K - $99 999 Fed-Ins Bank 282A Civil Rights - Color of Law - Force or Violence 209A Health Care Fraud - Government Sponsored Program CLASSIFIED INFORMATION REDACTED 087B Interstate Transportation of Stolen Property - $25K 281F OC DI - Other Major Criminal Organizations 281C OC DI - Mexican Organizations 015B TFIS - Loss of $25K Weapons Explosives 209B Health Care Fraud - Private Insurance Program 049A Bankruptcy Fraud $50K or Court Officer 196B Insurance Fraud 300A CT Preparedness - Special Events 196A Telemarketing Fraud 245C OCDETF - Mexican Organizations 281A OC DI-LCN and Italian Organizations 245F OCDETF - Other Major Criminal Organizations 249A Environmental Crimes 026B ITMSV - Commercial Theft or Chop Shops 281E OC DI - Asian Organizations 281B OC DI - Central South American Organizations CLASSIFIED INFORMATION REDACTED 245D OCDETF VCMO - Gangs 245B OCDETF - Central South American Organizations 281I OC DI - Caribbean Organizations 245I OCDETF - Caribbean Organizations 092C REI - Mexican Organizations 244 Hostage Rescue Team TOTAL Source OIG analysis of FBI ACS data and NFIP Manual - 78 REDACTED AND UNCLASSIFIED Cases 41 336 31 788 8 097 6 051 5 817 4 742 3 641 1 852 1 646 1 642 1 553 1 489 1 451 1 153 1 147 1 044 981 919 783 733 706 664 539 510 494 424 296 242 54 4 121 798 REDACTED AND UNCLASSIFIED APPENDIX VI NUMBER OF CASES WORKED IN THE TOP 30 INVESTIGATIVE CLASSIFICATIONS EXPERIENCING THE GREATEST INCREASES IN ON-BOARD AGENTS FISCAL YEARS 2000 THROUGH 2003 Investigative Classification CLASSIFIED INFORMATION REDACTED 266A AOT-DT-VC-Predicate Offense CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED 196C 089B 164C Securities Commodities Fraud Assaulting or Killing a Federal Officer Crime Aboard Aircraft - All other 253A CLASSIFIED CLASSIFIED CLASSIFIED CLASSIFIED CLASSIFIED CLASSIFIED CLASSIFIED INFORMATION INFORMATION INFORMATION INFORMATION INFORMATION INFORMATION INFORMATION REDACTED REDACTED REDACTED REDACTED REDACTED REDACTED REDACTED CLASSIFIED CLASSIFIED CLASSIFIED CLASSIFIED CLASSIFIED INFORMATION INFORMATION INFORMATION INFORMATION INFORMATION REDACTED REDACTED REDACTED REDACTED REDACTED Fraud Rel Activity - Ident Documents FRAID - Terrorists 174D Bomb Technician Activities CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED 306 300B Serial Killings CT Preparedness - Aviation Security 067D 261G Support Applicant Investigations Security Officer Matters - Other 067B Special Agent Applicant Investigations TOTAL CLASSIFIED INFORMATION REDACTED CLASSIFIED INFORMATION REDACTED Cases 3 140 2 653 2 430 2 119 1 748 1 624 1 293 1 098 1 015 1 002 912 878 695 507 314 261 245 231 220 174 125 78 70 53 46 31 15 12 4 65 0 22 993 Source OIG analysis of FBI ACS data and NFIP Manual 65 No 067B-Special Agent Applicant cases are present because we only reviewed cases originating in FBI field offices All 067B cases in our data set originated at FBI Headquarters - 79 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII APPENDIX VII ORGANIZED CRIME DRUG MATTERS As discussed in Chapter 4 we identified 12 investigative classifications related to Organized Crime Drug OC D matters that were among the 30 classifications that experienced the greatest field agent resource reductions between FYs 2000 and 2003 66 Moreover 11 of these 12 classifications involved drug-related matters 67 These 12 classifications and their on-board agent reductions are presented in the following exhibit ORGANIZED CRIME DRUG CLASSIFICATIONS EXPERIENCING THE GREATEST REDUCTIONS IN AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 AOB Change FYs 2000 – 2003 Classification Name Classification Organized Crime Drug Investigation OC DI Classifications OC DI – Mexican Organizations 281C OC DI – La Cosa Nostra and Italian Organizations 281A OC DI – Other Major Criminal Organizations 281F OC DI – Central South American Organizations 281B OC DI – Caribbean Organizations 281I OC DI – Asian Organizations 281E Organized Crime Drug Enforcement Task Force OCDETF Classifications OCDETF – Mexican Organizations 245C OCDETF – Other Major Criminal Organizations 245F OCDETF – Central South American Organizations 245B OCDETF – VCMO – Gangs 245D OCDETF – Caribbean Organizations 245I Racketeering Enterprise Investigations REI Classifications REI – Mexican Organizations 092C Total -119 -103 -76 -44 -43 -40 -123 -62 -61 -37 -31 -28 -767 Source OIG analysis of FBI TURK data We conducted additional analyses for each of these 12 OC D-related classifications based upon the type of criminal organization that the 66 Classification 245D OCDETF – VCMO – Gangs was transferred from the VCMO Program during FY 2002 and assigned to the Criminal Enterprise Investigations Program in FY 2003 Although this is the only OCDETF related classification not assigned to the OC D Program we include Classification 245D in our discussion of OC D matters in order to keep all OCDETF-related classifications together 67 The one classification not specifically related to drug investigations is 092C which involves racketeering enterprise investigations - 80 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII investigative classification targeted These analyses presented in the following sections identify the FBI field offices experiencing the greatest agent utilization reductions in these specific investigative areas Mexican Organizations Among the 12 classifications related to OC D matters three were specifically involved Mexican organizations Classification 281C OC DI – Mexican Organizations Classification 245C OCDETF – Mexican Organizations and Classification 092C REI – Mexican Organizations The following exhibit presents field agent utilization for the entire FBI within these classifications for FYs 2000 through 2003 TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 l1a1 2s1c 2000 • 245C 11 092c l 2001 2002 FISCAL YEAR Source OIG analysis of FBI TURK data - 81 REDACTED AND UNCLASSIFIED 2003 REDACTED AND UNCLASSIFIED APPENDIX VII Field Offices – We reviewed data at the field office level and determined that the majority of FBI field offices saw reductions within these classifications The following three exhibits present these results and highlight those field offices that experienced the most significant changes in on-board agents CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 281C OC DI – MEXICAN ORGANIZATIONS FISCAL YEARS 2000 THROUGH 2003 2 ATLANTA 0 -2 -4 CHICAGO DALLAS HOUSTON KANSAS CITY -6 ALBUQUERQUE -8 EL PASO -10 SAN FRANCISCO -12 -14 PHOENIX -16 SAN ANTONIO -18 LOS ANGELES -20 Source OIG analysis of FBI TURK data - 82 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 245C OCDETF – MEXICAN ORGANIZATIONS FISCAL YEARS 2000 THROUGH 2003 4 ALBUQUERQUE 2 ATLANTA 0 -2 -4 -6 -8 -10 LOS ANGELES HOUSTON -12 PHOENIX DALLAS SAN DIEGO -14 SAN ANTONIO -16 Source OIG analysis of FBI TURK data CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 092C REI – MEXICAN ORGANIZATIONS FISCAL YEARS 2000 THROUGH 2003 LAS VEGAS INDIANAPOLIS PORTLAND 0 -1 KANSAS CllY -2 DALLAS J PHOENIX EL PASO -4 LOS ANGELES -5 SAN ANTONIO SAN DIEGO -7 Source OIG analysis of FBI TURK data - 83 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII As shown in the previous three exhibits most of the offices experiencing the greatest on-board agent reductions within classifications related to Mexican organizations oversee territory along or near the southwest border of the United States In fact the San Antonio and Phoenix field offices both of which contain jurisdiction on the southwest border experienced significant reductions in each of the three classifications reviewed In addition to our review of on-board agents we also analyzed casework data from the FBI’s Automated Case Support ACS system Specifically for each classification related to Mexican organizations we compared the number of cases opened in each field office in FY 2000 to the number opened in FY 2003 After determining both the number and percentage change for each field office we identified those offices experiencing the greatest reductions for each classification The following three tables highlight those field offices that experienced the greatest reductions in the number of cases opened within each classification As in our analysis of on-board agent reductions in these classifications several of the field offices in our casework analyses are on or near the southwest border of the United States 281C OC DI – MEXICAN ORGANIZATIONS FIELD OFFICE FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change LOS ANGELES ALBUQUERQUE CHICAGO KANSAS CITY PHOENIX DETROIT SAN FRANCISCO EL PASO HOUSTON SAN ANTONIO SALT LAKE CITY ATLANTA MINNEAPOLIS CHARLOTTE PORTLAND SEATTLE 42 22 37 18 16 13 12 23 14 8 8 7 7 5 6 5 6 1 19 1 2 2 2 14 5 1 1 1 1 0 1 0 -36 -21 -18 -17 -14 -11 -10 -9 -9 -7 -7 -6 -6 -5 -5 -5 Source OIG analysis of FBI ACS data - 84 REDACTED AND UNCLASSIFIED Percentage Change -85 71% -95 45% -48 65% -94 44% -87 50% -84 62% -83 33% -39 13% -64 29% -87 50% -87 50% -85 71% -85 71% -100 00% -83 33% -100 00% REDACTED AND UNCLASSIFIED APPENDIX VII 245C OCDETF – MEXICAN ORGANIZATIONS FIELD OFFICE SAN ANTONIO LOS ANGELES KANSAS CITY CHARLOTTE CLEVELAND HOUSTON INDIANAPOLIS OMAHA SACRAMENTO FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 19 13 9 9 6 7 5 5 5 3 3 0 1 0 1 0 0 0 -16 -10 -9 -8 -6 -6 -5 -5 -5 Percentage Change -84 21% -76 92% -100 00% -88 89% -100 00% -85 71% -100 00% -100 00% -100 00% Source OIG analysis of FBI ACS data 092C REI – MEXICAN ORGANIZATIONS FIELD OFFICE SAN FRANCISCO ALBUQUERQUE CHARLOTTE DALLAS LAS VEGAS FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 2 0 -2 1 0 -1 1 0 -1 1 0 -1 1 0 -1 Percentage Change -100 00% -100 00% -100 00% -100 00% -100 00% Source OIG analysis of FBI ACS data Central South American Organizations Two classifications involving Central South American organizations were among those investigative areas with the greatest reductions in agent utilization Classifications 281B OC DI – Central South American Organizations and 245B OCDETF – Central South American Organizations As illustrated in the following exhibit agent utilization for these two classifications decreased in each year from FY 2000 through FY 2003 - 85 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 2458 2000 2001 2002 FISCAL YEAR Source OIG analysis of FBI TURK data Field Offices – The following two exhibits contain field office-level analyses of changes occurring within these classifications Unlike our analysis of Mexican organizations we found no geographic commonality among those field offices experiencing the greatest reductions However we did determine that the most significant reductions related to Central South American organizations generally occurred within the FBI’s larger offices CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 281B OC DI – CENTRAL SOUTH AMERICAN ORGANIZATIONS FISCAL YEARS 2000 THROUGH 2003 2- --- - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - MIAMI BALTIMORE TAMPA CHICAGO SAN JUAN HOUSTON NEWARK -4 LOS ANGELES -6 PHILADELPHIA -8 -10 -12 NEW YORK CITY -14 - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - Source OIG analysis of FBI TURK data - 86 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 245B OCDETF – CENTRAL SOUTH AMERICAN ORGANIZATIONS FISCAL YEARS 2000 THROUGH 2003 4 2 TAMPA CLEVELAND 0 J LOS ANGELES -4 NEWARK HOUSTON -6 NEW YORK CITY PHILADELPHIA -8 SANJUAN -10 -12 -14 -16 -18 J O J 2 J 4 J 6 MIAMI J 8 Source OIG analysis of FBI TURK data As with Mexican organizations we reviewed casework data for those classifications related to Central South American organizations 281B OC DI – CENTRAL SOUTH AMERICAN ORGANIZATIONS FIELD OFFICE CHICAGO LOS ANGELES NEWARK MIAMI CHARLOTTE PITTSBURGH BALTIMORE NEW HAVEN NEW YORK TAMPA FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 7 1 -6 5 0 -5 8 3 -5 13 9 -4 3 0 -3 3 0 -3 2 0 -2 2 0 -2 9 7 -2 3 1 -2 Source OIG analysis of FBI ACS data - 87 REDACTED AND UNCLASSIFIED Percentage Change -85 71% -100 00% -62 50% -30 77% -100 00% -100 00% -100 00% -100 00% -22 22% -66 67% REDACTED AND UNCLASSIFIED APPENDIX VII 245B OCDETF – CENTRAL SOUTH AMERICAN ORGANIZATIONS FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 10 3 -7 3 0 -3 3 0 -3 2 0 -2 2 0 -2 2 0 -2 3 1 -2 FIELD OFFICE MIAMI HOUSTON TAMPA ALBANY CHICAGO LOS ANGELES PHILADELPHIA Percentage Change -70 00% -100 00% -100 00% -100 00% -100 00% -100 00% -66 67% Source OIG analysis of FBI ACS data Caribbean Organizations The following exhibit illustrates on-board field agent utilization in the two Caribbean-related classifications listed among those investigative areas with the greatest reductions in on-board agents Classification 281I OC DI – Caribbean Organizations and Classification 245I OCDETF – Caribbean Organizations TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 125 117 68 1 i i 2811 i i 2451 1 70 68 44 2000 2001 2002 51 2003 FISCAL YEAR Source OIG analysis of FBI TURK data Field Offices – The following two exhibits illustrate on-board agent changes experienced by each FBI field office from FYs 2000 through 2003 in matters related to Caribbean organizations - 88 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 281I OC DI -- CARIBBEAN ORGANIZATIONS FISCAL YEARS 2000 THROUGH 2003 2 - ----- - - - - - - - - - - - - - - - - - - - - - - - - - BOSTON NORFOLK -2 NEWARK PHILADELPHIA WASHINGTON I 4 MIAMI NEW YORK CITY SAN JUAN CLEVELAND -6 BALTIMORE -10 L ------------------------------ Source OIG analysis of FBI TURK data CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 245I OCDETF -- CARIBBEAN ORGANIZATIONS FISCAL YEARS 2000 THROUGH 2003 4- ----- - - - - - - - - - - - - - - - - - - - - - - - - - 7 PHILADELPHIA ANCHORAGE WASHINGTON -2 -3 HOUSTON BUFFALO CLEVELAND BOSTON NEW YORK CITY I SAN JUAN 4 -5 -6 L - - - - - - - - - - - - MIAMI ----------- Source OIG analysis of FBI TURK data - 89 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII Similar to matters involving Central South American organizations the decrease in agent utilization in classifications associated with Caribbean enterprises occurred within some of the FBI’s larger field offices New York City Washington and Miami Our analysis of casework in matters related to Caribbean organizations revealed that several of the offices experiencing the greatest reductions in case openings did not open any 281I and 245I cases in FY 2003 281I OC DI -- CARIBBEAN ORGANIZATIONS FIELD OFFICE SAN JUAN BOSTON MIAMI PITTSBURGH PHILADELPHIA WASHINGTON ALBANY COLUMBIA FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 11 4 -7 9 4 -5 9 5 -4 4 0 -4 4 1 -3 3 0 -3 2 0 -2 2 0 -2 Percentage Change -63 64% -55 56% -44 44% -100 00% -75 00% -100 00% -100 00% -100 00% Source OIG analysis of FBI ACS data 245I OCDETF -- CARIBBEAN ORGANIZATIONS FIELD OFFICE BOSTON NEW YORK HOUSTON ALBANY ATLANTA COLUMBIA CLEVELAND JACKSONVILLE LAS VEGAS MIAMI NEWARK FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 6 0 -6 6 0 -6 3 0 -3 2 0 -2 2 0 -2 2 0 -2 3 1 -2 2 0 -2 2 0 -2 4 2 -2 2 0 -2 Source OIG analysis of FBI ACS data - 90 REDACTED AND UNCLASSIFIED Percentage Change -100 00% -100 00% -100 00% -100 00% -100 00% -100 00% -66 67% -100 00% -100 00% -50 00% -100 00% REDACTED AND UNCLASSIFIED APPENDIX VII La Cosa Nostra and Italian Organizations Only one of the OC D investigative classifications we identified involved organizations related to La Cosa Nostra LCN and Italian enterprises Classification 281A OC DI La Cosa Nostra and Italian Organizations The following exhibit presents field agent utilization within this classification for FYs 2000 through 2003 TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 2000 2001 21HJ2 2003 Fl1SCAIL YEAIR Source OIG analysis of FBI TURK data Field Offices – As shown in the following exhibit by far the most significant on-board agent reductions within LCN and Italian organization matters occurred in the New York City and Newark field offices According to FBI program documents investigations involving these organizations are concentrated in the New York City Metropolitan area thus these results were not surprising - 91 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 281A OC DI – LA COSA NOSTRA AND ITALIAN ORGANIZATIONS FISCAL YEARS 2000 THROUGH 2003 5 1 - - - - - - BOSTON BUFFALO PHILADELPHIA CLEVELAND KANSAS CllY -10 -15 -20 NEWARK -2 5 -------------------- N Ew i v o RK _ c1 1Y'_l ______________J Source OIG analysis of FBI TURK data Our review of 281A case openings which follows showed no significant reductions 281A OC DI – LA COSA NOSTRA AND ITALIAN ORGANIZATIONS FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Percentage FIELD OFFICE Cases Opened Cases Opened Change Change BOSTON 8 1 -7 -87 50% KANSAS CITY 7 0 -7 -100 00% NEWARK 11 4 -7 -63 64% PHILADELPHIA 6 1 -5 -83 33% NEW HAVEN 7 4 -3 -42 86% NEW ORLEANS 3 1 -2 -66 67% ATLANTA 1 0 -1 -100 00% BUFFALO 1 0 -1 -100 00% CHICAGO 9 8 -1 -11 11% DALLAS 2 1 -1 -50 00% HOUSTON 1 0 -1 -100 00% PHOENIX 1 0 -1 -100 00% SAN FRANCISCO 1 0 -1 -100 00% TAMPA 3 2 -1 -33 33% Source OIG analysis of FBI ACS data - 92 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII Asian Organizations As with LCN and Italian organization matters only one classification associated with Asian organizations experienced the most significant reductions in on-board agents between FYs 2000 and 2003 The following exhibit reveals the field agent resource utilization for this classification 281E OC DI – Asian Organizations TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 117 2002 2f i li1 2003 FISCAi 'l'lEAR Source OIG analysis of FBI TURK data Field Offices – As illustrated in the following exhibit the majority of the FBI’s field offices experienced a decrease in onboard agents in Classification 281E between FYs 2000 and 2003 Although the most significant agent utilization reductions were not concentrated in a specific geographic area they generally occurred within the FBI’s larger field offices In fact five of these field offices including New York City and Los Angeles are among the FBI’s ten largest offices 68 68 In addition to the Los Angeles and New York City field offices these offices include the Houston San Francisco and Washington field offices - 93 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 281E OC DI – ASIAN ORGANIZATIONS FISCAL YEARS 2000 THROUGH 2003 6- - - - - - - - - - - - - - - - - - - - - - - - - - - 7 NEWARK 4 2 SAN DIEGO HOUSTON -4 PORTLAND SEATTLE SAN FRANCISCO LAS VEGAS -6 LOS ANGELES -8 -10 NEW YORK CITY -12 L _________________________________ Source OIG analysis of FBI TURK data As shown in the following exhibit almost every field office that experienced the greatest reductions in Asian organization matters contain territory that borders either the Pacific or Atlantic Ocean 281E OC DI – ASIAN ORGANIZATIONS FIELD OFFICE SAN FRANCISCO LOS ANGELES ANCHORAGE BALTIMORE HONOLULU NEW YORK SEATTLE MINNEAPOLIS NEWARK BOSTON WASHINGTON FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 18 4 -14 18 5 -13 9 0 -9 6 0 -6 7 2 -5 8 3 -5 6 1 -5 6 2 -4 12 8 -4 4 1 -3 3 0 -3 Source OIG analysis of FBI ACS data - 94 REDACTED AND UNCLASSIFIED Percentage Change -77 78% -72 22% -100 00% -100 00% -71 43% -62 50% -83 33% -66 67% -33 33% -75 00% -100 00% REDACTED AND UNCLASSIFIED APPENDIX VII Other Criminal Organizations Of the 30 classifications with the most significant agent utilization reductions three investigative areas did not pertain to a specific type of criminal organization Classifications 245D OCDETF – VCMO Gangs Classification 281F OC DI – Other Major Criminal Organizations and Classification 245F OCDETF – Other Major Criminal Organizations The following exhibit illustrates the agent utilization within these classifications for FYs 2000 through 2003 TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 2000 1111 Cit 2001 ta J I ii 2002 2003 ON-BOARD AG ENTS Source OIG analysis of FBI TURK data Field Offices – We discerned no similarities among the field offices with the greatest reductions in agent utilization within these classifications As shown in the following exhibit the offices affected were large medium and small with no geographic connectivity among them - 95 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 245D OCDETF – VCMO - GANGS FISCAL YEARS 2000 THROUGH 2003 8 --- - - CHICAGO 6 I I __ •••-•---·1••-·11I•11 ---··•I•11 • -- 4 NEWARK ST LOUI S SAN ANTONIO 2 I NEW ORLEANS SAN FRANCISCO SAN JUAN ATLANTA -10 -12 -14 -16 -1s LOS ANGELES L _______________ ______________ Source OIG analysis of FBI TURK data CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 281F OC DI – OTHER MAJOR CRIMINAL ORGANIZATIONS FISCAL YEARS 2000 THROUGH 2003 2 ----------------- NtW HAVEN J J JACKSON Al BJIHY DETROIT COLUMlllA I IllWAUKEE LOUISVILLE SPRINGFIELD NEWARK WASHINGTON PHll AOELPfflA 8 Source OIG analysis of FBI TURK data - 96 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 245F OCDETF – OTHER MAJOR CRIMINAL ORGANIZATIONS FISCAL YEARS 2000 THROUGH 2003 2- - - - - - - CHICAGO --------------------------------------- PHILADELPHIA SAN JUAN EL PASO -l -3 -4 -5 BALTIMORE MEMPHIS DETROIT MIAMI INDIANAPOLIS ATLANTA -6 -7 _ __ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _WASHINGTON _ _ _ __ _ J Source OIG analysis of FBI TURK data The following three tables provide information about reductions in case openings within matters involving other criminal organizations 245D OCDETF – VCMO - GANGS FIELD OFFICE MIAMI ATLANTA DALLAS DENVER MILWAUKEE OKLAHOMA CITY SACRAMENTO FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 4 0 -4 3 0 -3 3 0 -3 3 0 -3 3 0 -3 3 0 -3 3 0 -3 Source OIG analysis of FBI ACS data - 97 REDACTED AND UNCLASSIFIED Percentage Change -100 00% -100 00% -100 00% -100 00% -100 00% -100 00% -100 00% REDACTED AND UNCLASSIFIED APPENDIX VII 281F OC DI – OTHER MAJOR CRIMINAL ORGANIZATIONS FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Percentage FIELD OFFICE Cases Opened Cases Opened Change Change DETROIT 30 4 -26 -86 67% PHILADELPHIA 28 2 -26 -92 86% SPRINGFIELD 18 2 -16 -88 89% BIRMINGHAM 14 0 -14 -100 00% PITTSBURGH 12 0 -12 -100 00% NORFOLK 12 1 -11 -91 67% INDIANAPOLIS 11 1 -10 -90 91% JACKSON 11 1 -10 -90 91% LOUISVILLE 14 4 -10 -71 43% ALBANY 11 2 -9 -81 82% DALLAS 10 1 -9 -90 00% NEWARK 11 2 -9 -81 82% SALT LAKE CITY 11 3 -8 -72 73% Source OIG analysis of FBI ACS data 245F OCDETF – OTHER MAJOR CRIMINAL ORGANIZATIONS FIELD OFFICE CHARLOTTE MEMPHIS ATLANTA NORFOLK INDIANAPOLIS PHILADELPHIA COLUMBIA DETROIT PITTSBURGH ST LOUIS FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 9 1 -8 7 0 -7 7 1 -6 6 0 -6 5 0 -5 5 0 -5 5 1 -4 4 0 -4 4 0 -4 5 1 -4 Source OIG analysis of FBI ACS data - 98 REDACTED AND UNCLASSIFIED Percentage Change -88 89% -100 00% -85 71% -100 00% -100 00% -100 00% -80 00% -100 00% -100 00% -80 00% REDACTED AND UNCLASSIFIED APPENDIX VIII APPENDIX VIII VIOLENT CRIME MATTERS Six of the 30 investigative classifications that experienced the most significant reductions in on-board agents from FYs 2000 through 2003 fall within the realm of violent crime 69 Three of these fall into the Violent Crime Major Offenders VCMO Program while the others are located within the Criminal Enterprise Investigations CEI Program VIOLENT CRIME CLASSIFICATIONS EXPERIENCING THE GREATEST REDUCTIONS IN FIELD AGENT UTILIZATION FISCAL YEARS 2000 THROUGH 2003 AOB Change FYs 2000 – Program Number Classification Name 2003 VCMO 088A Unlawful Flight to Avoid Prosecution – Crime of Violence VCMO 091A Bank Robbery -81 VCMO 244 Hostage Rescue Team -24 CEI 087B CEI 026B CEI 015B Interstate Transportatio n of Stolen Property $25K ITSMV Interstate Transportation of Stolen Motor Vehicle –Commercial Theft or Chop Shops TFIS Theft From Interstate Shipment – Loss of $25K Weapons Explosives Total -101 -29 -29 -21 -285 Source OIG analysis of FBI TURK data As was the case with OC D matters we identified trends in the field offices most affected by agent utilization reductions in these violent crime classifications Additionally we reviewed changes in the number of case openings for each of the six violent crime classifications at the field office level between FYs 2000 and 2003 Our analyses of agent utilization and case openings are presented in the following sections 69 Actually 7 of the 30 classifications experiencing the most significant reduction in on-board agents fall within the VCMO and CEI programs However Classification 245D OCDETF – VCMO Gangs located within the CEI Program is an OCDETF classification that was discussed in Appendix VII along with the other OCDETF classifications - 99 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII Violent Fugitives Classification 088A Unlawful Flight to Avoid Prosecution – Crime of Violence involves the investigation of fugitives charged with a violent crime The following exhibit details the general decline in field agent resources utilized within this classification for FYs 2000 through 2003 TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 170 138 2000 2001 200 2 20113 FISCAL YIEAR Source OIG analysis of FBI TURK data Field Offices – The following exhibit shows the changes that occurred within all FBI field offices As shown several offices experienced significant resource utilization reductions in this fugitive area many of which were among the FBI’s larger offices - 100 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 088A UNLAWFUL FLIGHT TO AVOID PROSECUTION – CRIME OF VIOLENCE FISCAL YEARS 2000 THROUGH 2003 2 -SAN DIEGO 0 ·2 SAN RANCISCO SALT LAKE CITY BOSTON DETROIT MIA BALTIMORE PHILADELPHIA WASHINGTON NEW YORK CITY -8 NEWARK o Source OIG analysis of FBI TURK data Besides the reductions in field agent utilization this investigative area experienced the greatest reduction in case openings by far of any other classification identified in the top 30 decreasing classifications The FBI opened 13 384 violent fugitive investigations in FY 2000 but reduced that to only 1 767 in FY 2003 This significant drop in case openings amounts to a decrease of 87 percent The following table lists the field offices that experienced a reduction of at least 25 case openings As seen from the list 42 of the FBI’s 56 field offices opened significantly fewer violent fugitive cases in FY 2003 than in FY 2000 Notably the New York City Field Office after opening 376 violent fugitive cases in FY 2000 opened none in FY 2003 - 101 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII 088A UNLAWFUL FLIGHT TO AVOID PROSECUTION – CRIME OF VIOLENCE FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Percentage FIELD OFFICE Cases Opened Cases Opened Change Change NEWARK 1 130 22 -1 108 -98 05% MIAMI 867 23 -844 -97 35% LAS VEGAS 802 67 -735 -91 65% WASHINGTON 650 26 -624 -96 00% BOSTON 594 8 -586 -98 65% BALTIMORE 575 20 -555 -96 52% ST LOUIS 499 77 -422 -84 57% PHILADELPHIA 576 155 -421 -73 09% ALBUQUERQUE 400 1 -399 -99 75% NEW YORK 376 0 -376 -100 00% SAN ANTONIO 370 5 -365 -98 65% DETROIT 523 184 -339 -64 82% CHARLOTTE 352 25 -327 -92 90% CHICAGO 387 62 -325 -83 98% SEATTLE 303 12 -291 -96 04% SAN FRANCISCO 333 45 -288 -86 49% PHOENIX 291 29 -262 -90 03% INDIANAPOLIS 253 10 -243 -96 05% MILWAUKEE 247 7 -240 -97 17% NEW HAVEN 261 40 -221 -84 67% LOS ANGELES 294 74 -220 -74 83% DENVER 232 15 -217 -93 53% SALT LAKE CITY 234 17 -217 -92 74% MOBILE 207 6 -201 -97 10% PITTSBURGH 206 8 -198 -96 12% CLEVELAND 487 298 -189 -38 81% SACRAMENTO 197 27 -170 -86 29% CINCINNATI 158 7 -151 -95 57% NORFOLK 157 15 -142 -90 45% JACKSONVILLE 133 7 -126 -94 74% MINNEAPOLIS 189 65 -124 -65 61% HOUSTON 85 0 -85 -100 00% DALLAS 93 10 -83 -89 25% ATLANTA 144 67 -77 -53 47% PORTLAND 100 23 -77 -77 00% RICHMOND 74 5 -69 -93 24% SAN DIEGO 77 13 -64 -83 12% BIRMINGHAM 61 4 -57 -93 44% JACKSON 62 6 -56 -90 32% MEMPHIS 33 3 -30 -90 91% OMAHA 28 2 -26 -92 86% NEW ORLEANS 31 6 -25 -80 65% Source OIG analysis of FBI ACS data - 102 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII Bank Robbery Between FYs 2000 and 2003 the number of agents working on bank robbery investigations significantly dropped The following exhibit provides an overview of the on-board agents involved in such investigations during this period TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 Source OIG analysis of FBI TURK data Field Offices – Changes in agent utilization of all field offices in 091A matters are highlighted in the following exhibit As shown virtually every office had some sort of on-board agent reduction Furthermore many of the significant utilization declines occurred in the FBI’s larger field offices like Chicago and Los Angeles - 103 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 091A BANK ROBBERY FISCAL YEARS 2000 THROUGH 2003 4 ---------------------------------- OKLAHOMA CITY 3 2 NEW YORK CITY 0 T -1 -2 3 SEATTLE PHOENIX -4 BALTIMORE CINCINNATI LOS ANGELES TAMPA SAN FRANCISCO 5 -6 CHtcAGO 7 Source OIG analysis of FBI TURK data In our review of casework in 091A matters we found that although 3 field offices opened at least 111 fewer cases in FY 2003 than FY 2000 091A case openings in the majority of FBI field offices increased during this timeframe Field offices experiencing the greatest reductions in cases openings in this classification are highlighted in the following exhibit - 104 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII 091A BANK ROBBERY FIELD OFFICE FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change LOS ANGELES CINCINNATI PHOENIX TAMPA SEATTLE NORFOLK ALBANY SACRAMENTO OMAHA LAS VEGAS KANSAS CITY INDIANAPOLIS COLUMBIA MINNEAPOLIS MILWAUKEE SAN JUAN WASHINGTON DENVER 689 238 220 242 288 64 64 197 98 151 114 121 124 83 90 21 55 123 561 113 109 182 229 16 29 165 70 126 93 103 112 71 83 16 52 121 -128 -125 -111 -60 -59 -48 -35 -32 -28 -25 -21 -18 -12 -12 -7 -5 -3 -2 Percentage Change -18 58% -52 52% -50 45% -24 79% -20 49% -75 00% -54 69% -16 24% -28 57% -16 56% -18 42% -14 88% -9 68% -14 46% -7 78% -23 81% -5 45% -1 63% Source OIG analysis of FBI ACS data Hostage Rescue Team Another violent crime classification that experienced a reduction in field agent resource utilization was Classification 244 Hostage Rescue Team The following exhibit illustrates the decline in the number of on-board agents involved in these investigative matters between FYs 2000 through 2003 - 105 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 69 tOO - 1 FISCAi YEA FI 1 Source OIG analysis of FBI TURK data Field Offices – When analyzing the resource utilization changes at the field office level we found that no office experienced significant fluctuations whether increasing or decreasing in on-board agents Instead the majority of the utilization reduction in 244 matters occurred within the Critical Incident Response Group CIRG which provides tactical support to FBI field offices for incidents ranging from hostage rescue to fugitive apprehension Thus it was not surprising that CIRG accounted for a large portion of the overall reduction in this investigative classification Interstate Transportation of Stolen Property Resource utilization for investigations involving the transportation of stolen property across state lines valued at $25 000 or more are tracked in Classification 087B Interstate Transportation of Stolen Property - $25K This violent crime area was also among the 30 classifications experiencing significant field agent resource utilization reductions The following exhibit provides the on-board agents utilized in this investigative area between FYs 2000 through 2003 - 106 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 2000 201' 11 20012 Fl SCAL YEAR Source OIG analysis of FBI TURK data Field Offices – The following exhibit represents the agent resource utilization changes among FBI field offices As illustrated the majority of offices experienced on-board agent reductions involving investigations of 087B matters Additionally the greatest agent utilization declines occurred in the FBI’s larger field offices Baltimore Dallas New York City Phoenix and Washington - 107 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 087B INTERSTATE TRANSPORTATION OF STOLEN PROPERTY-$25K FISCAL YEARS 2000 THROUGH 2003 1 0 --- - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - i 0 5 BIRMINGHAM 0 0 - - - JL - rw-r -r- ' _ TTTl _TW T' TIT -- T'lf TTV 'T'll 'T'T'll 'TTITl 'TTIT - 1'11 0 5 -1 0 -1 5 -2 0 BALTIMORE DALLAS -2 5 PHOENIX -3 0 WASHINGTON -3 5 -4 0 -4 5 NEW YORK CITY _l__ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ __ Source OIG analysis of FBI TURK data As shown in the following exhibit three of the field offices experiencing the greatest reductions in 087B case openings Chicago Los Angeles and Dallas were among the largest FBI field offices 087B INTERSTATE TRANSPORTATION OF STOLEN PROPERTY-$25K FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Percentage FIELD OFFICE Cases Opened Cases Opened Change Change CHICAGO 18 6 -12 -66 67% LOS ANGELES 13 2 -11 -84 62% DALLAS 17 8 -9 -52 94% LAS VEGAS 9 0 -9 -100 00% CINCINNATI 9 1 -8 -88 89% NEWARK 12 5 -7 -58 33% BIRMINGHAM 9 3 -6 -66 67% LITTLE ROCK 6 0 -6 -100 00% LOUISVILLE 9 3 -6 -66 67% OKLAHOMA CITY 6 0 -6 -100 00% BALTIMORE 5 0 -5 -100 00% DETROIT 12 7 -5 -41 67% INDIANAPOLIS 7 2 -5 -71 43% MINNEAPOLIS 7 2 -5 -71 43% Source OIG analysis of FBI ACS data - 108 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII Interstate Transportation of Stolen Motor Vehicles Classification 026B ITSMV – Commercial Theft or Chop Shops was another investigative area involving violent crime that experienced a significant reduction in field agent resource utilization The overall number of on-board agents working on these matters from FYs 2000 through 2003 is shown in the following exhibit TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 2000 2-001 2002 2003 FISCAL YEAR Source OIG analysis of FBI TURK data Field Offices – Changes in agent utilization within each FBI field office are highlighted in the following exhibit for investigations involving 026B matters Although some field offices actually had utilization increases in this area the changes were nominal In turn the majority of the offices experienced on-board agent reductions with the most significant declines occurring in larger offices with the exception of El Paso and Knoxville - 109 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 026B ITSMV – COMMERCIAL THEFT OR CHOP SHOPS FISCAL YEARS 2000 THROUGH 2003 1 0 ----------------------------TAMPA BALTIMORE 0 5 -1 0 -1 5 -2 0 ATLANTA EL PASO KNOXVILLE MIAMI DETROIT NEW YORK CITY -2 5 SAN DIEGO -3 0 WASHINGTON J -3 5 _ ___ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ Source OIG analysis of FBI TURK data Within 026B investigative matters we determined that the greatest reduction in case openings in any one field office was only eight However nearly all of the offices listed as experiencing the greatest reductions in case openings did not open any 026B investigations in FY 2003 026B ITSMV – COMMERCIAL THEFT OR CHOP SHOPS FIELD OFFICE FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change LAS VEGAS LITTLE ROCK JACKSONVILLE NEW ORLEANS CHARLOTTE CHICAGO BIRMINGHAM DALLAS HONOLULU KNOXVILLE NEWARK 8 6 5 6 4 4 4 4 3 3 3 0 0 0 1 0 0 1 1 0 0 0 -8 -6 -5 -5 -4 -4 -3 -3 -3 -3 -3 Source OIG analysis of FBI ACS data - 110 REDACTED AND UNCLASSIFIED Percentage Change -100 00% -100 00% -100 00% -83 33% -100 00% -100 00% -75 00% -75 00% -100 00% -100 00% -100 00% REDACTED AND UNCLASSIFIED APPENDIX VIII Theft From Interstate Shipment Of the six violent crime classifications experiencing significant field agent resource utilization reductions the final one identified was Classification 015B TFIS – Loss of $25K Weapons Explosives The following exhibit illustrates the on-board agents involved in this investigative area from FYs 2000 through 2003 TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 Source OIG analysis of FBI TURK data Field Offices – We found that several FBI field offices experienced some sort of reduction in on-board agents from FYs 2000 to 2003 as depicted in the following graph Many of the changes were nominal however we did note that four of the FBI’s six largest field offices experienced the most significant field agent utilization declines - 111 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX VIII CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 015B TFIS – LOSS OF $25K WEAPONS EXPLOSIVES FISCAL YEARS 2000 THROUGH 2003 -1 SAN FRANCISCO NEW YORK CllY -3 LOS ANGELES -4 -5 -6 -1 -II - - - - - -• CHICAGO Source OIG analysis of FBI TURK data Our analysis of Classification 015B revealed that the FBI overall opened 241 fewer cases in FY 2003 than in FY 2000 The following exhibit details those field offices with the greatest reductions in case openings in 015B matters 015B TFIS – LOSS OF $25K WEAPONS EXPLOSIVES FIELD OFFICE CASE OPENINGS – FISCAL YEARS 2000 THROUGH 2003 FY 2003 FY 2000 Number Percentage FIELD OFFICE Cases Opened Cases Opened Change Change CHICAGO DALLAS NEWARK NEW YORK INDIANAPOLIS SAN FRANCISCO COLUMBIA MEMPHIS LOS ANGELES KANSAS CITY PORTLAND HOUSTON TAMPA 74 33 36 29 15 13 10 14 10 6 6 8 8 9 3 12 9 2 0 0 4 1 0 0 3 3 -65 -30 -24 -20 -13 -13 -10 -10 -9 -6 -6 -5 -5 Source OIG analysis of FBI ACS data - 112 REDACTED AND UNCLASSIFIED -87 84% -90 91% -66 67% -68 97% -86 67% -100 00% -100 00% -71 43% -90 00% -100 00% -100 00% -62 50% -62 50% REDACTED AND UNCLASSIFIED APPENDIX IX APPENDIX IX WHITE-COLLAR CRIME MATTERS As noted in Chapter 4 of the 30 FBI investigative classifications that experienced the greatest field agent resource utilization reductions from FYs 2000 through 2003 8 pertained to white-collar crime matters and are listed in the following exhibit Included in these eight classifications are those related to health care fraud telemarketing fraud and insurance fraud all of which are crime areas that an FBI official thought would see a growth in the near term WHITE-COLLAR CRIME CLASSIFICATIONS EXPERIENCING THE GREATEST REDUCTIONS IN AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 Classification Number Classification Name Financial Institution Fraud 029C FIF - $25K - $99 999 Fed-Insured Bank AOB Change FYs 2000 2003 -50 Health Care Fraud 209A Health Care Fraud – Government Sponsored Program 209B Health Care Fraud – Private Insurance Program -89 -32 Other Fraud Investigative Areas 196A Telemarketing Fraud 196D Other Wire Mail Fraud Schemes 196B Insurance Fraud 049A Bankruptcy Fraud $50K or Court Officer -37 -35 -28 -26 Environmental Crimes 249A Environmental Crimes Total Source OIG analysis of FBI TURK data -25 -322 We conducted additional analyses of each of these classifications and identified any trends in the FBI field offices most affected by field agent resource utilization reductions in these investigative areas In addition we performed analyses of case openings at the field office level for each classification Our analyses are presented in the following sections Financial Institution Fraud We identified one investigative area related to financial institution fraud FIF that experienced a significant reduction in field agent resource utilization Classification 029C FIF – $25K - $99 999 Fed-Insured Bank As shown in the following graph the overall number of on-board agents involved in these investigations declined in each year from FY 2000 through FY 2003 - 113 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IX TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 75 64 FY 2000 FY 2001 FY 2002 Source OIG analysis of FBI TURK data FY 2003 Field Offices – The following exhibit shows field agent utilization changes among all FBI field offices As shown every office except for one experienced on-board agent reductions in 029C matters from FYs 2000 through 2003 70 Although an FBI official speculated that changes in this area would have a greater impact on smaller field offices we found that the most significant declines primarily occurred in the FBI’s larger field offices CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 029C FIF – $25K - $99 999 FED-INSURED BANK FISCAL YEARS 2000 THROUGH 2003 '1 'lflll irn rp ·1r···11 -1r111r I m111r• 1n ·2 PHILAOl l PHJA OK AtlOWIA CITY -3 CtUCAOO D TROIT Source OIG analysis of FBI TURK data 70 The San Juan Field Office was the only office that had an increase in the number of on-board agents handling Classification 029C matters from FY 2000 to 2003 however this increase only amounted to 0 01 on-board agents - 114 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IX We found that overall the FBI opened only 230 new 029C cases in FY 2003 compared to the 1 456 it opened in FY 2000 reflecting a reduction of 1 226 case openings Among individual field offices we identified several that reduced their openings of 029C investigations by at least 22 cases 029C FIF - $25K - $99 999 FED-INSURED BANK FIELD OFFICE DETROIT CHICAGO CLEVELAND PHILADELPHIA OKLAHOMA CITY DALLAS SEATTLE PHOENIX CINCINNATI NEW ORLEANS MINNEAPOLIS MILWAUKEE WASHINGTON KANSAS CITY LOUISVILLE PITTSBURGH ATLANTA DENVER SAN ANTONIO BOSTON CHARLOTTE HOUSTON SALT LAKE CITY INDIANAPOLIS FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 97 14 -83 67 1 -66 65 5 -60 61 7 -54 56 7 -49 58 10 -48 46 4 -42 40 1 -39 43 6 -37 45 9 -36 39 4 -35 34 0 -34 37 4 -33 32 2 -30 34 5 -29 30 1 -29 39 11 -28 29 1 -28 33 5 -28 33 7 -26 27 1 -26 28 3 -25 27 4 -23 26 4 -22 Percentage Change -85 57% -98 51% -92 31% -88 52% -87 50% -82 76% -91 30% -97 50% -86 05% -80 00% -89 74% -100 00% -89 19% -93 75% -85 29% -96 67% -71 79% -96 55% -84 85% -78 79% -96 30% -89 29% -85 19% -84 62% Source OIG analysis of FBI ACS data Health Care Fraud Although the FBI expects the incidence of health care fraud to dramatically increase over the next decade as the general population ages and health care spending increases two of the eight white-collar crime classifications experiencing significant field agent resource utilization reductions involve health care fraud matters Classifications 209A Health Care Fraud – Government Sponsored Program and 209B Health Care Fraud - 115 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IX – Private Insurance Program The following exhibit presents the on-board agent data utilized in each of these classifications from FYs 2000 through 2003 TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 Z09B J ·2000 2001 2002 2003 FISCAL YEAR Source OIG analysis of FBI TURK data Field Offices – The following two exhibits identify field agent utilization changes among FBI field offices for 209A and 209B matters As illustrated the majority of the offices experienced a decrease in onboard agents in each of these health care fraud areas Although the most significant agent utilization reductions were not concentrated in a specific geographic area they generally occurred within the FBI’s larger field offices We did however note that the Tampa and Washington field offices had considerable on-board agent declines in both 209A and 209B investigative matters - 116 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IX CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 209A HEALTH CARE FRAUD – GOVERNMENT SPONSORED PROGRAM FISCAL YEARS 2000 THROUGH 2003 2 NEWARK 0 -1 -2 01 NVER DETROIT MEMPHIS PHtLAOEl PHIA LOS ANGELES -6 -7 WASHINGTJ I -10 TAMPA -11 -12 Source OIG analysis of FBI TURK data CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 209B HEALTH CARE FRAUD – PRIVATE INSURANCE PROGRAM FISCAL YEARS 2000 THROUGH 2003 2 P HILADELPHIA 0 ·• -2 TAMPA ·• PHOENIX -S -7 WASHINGTON DALLAS Source OIG analysis of FBI TURK data - 117 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IX Besides the on-board agent reductions we identified the changes in case openings at the field office level for both health care fraud areas As shown in the following two exhibits 209A matters overall experienced greater decreases in case openings within field offices than did 209B matters 209A HEALTH CARE FRAUD – GOVERNMENT SPONSORED PROGRAM FIELD OFFICE SACRAMENTO DETROIT CHICAGO BALTIMORE TAMPA DENVER WASHINGTON MIAMI BOSTON SAN FRANCISCO PITTSBURGH NEW YORK RICHMOND BIRMINGHAM COLUMBIA PHILADELPHIA PORTLAND FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 132 23 -109 49 16 -33 31 10 -21 24 4 -20 22 4 -18 21 5 -16 20 4 -16 35 20 -15 20 6 -14 18 4 -14 22 9 -13 27 15 -12 22 11 -11 14 4 -10 11 1 -10 13 3 -10 11 2 -9 Source OIG analysis of FBI ACS data - 118 REDACTED AND UNCLASSIFIED Percentage Change -82 58% -67 35% -67 74% -83 33% -81 82% -76 19% -80 00% -42 86% -70 00% -77 78% -59 09% -44 44% -50 00% -71 43% -90 91% -76 92% -81 82% REDACTED AND UNCLASSIFIED APPENDIX IX 209B HEALTH CARE FRAUD – PRIVATE INSURANCE PROGRAM FIELD OFFICE WASHINGTON CLEVELAND PHILADELPHIA MINNEAPOLIS NEW ORLEANS PITTSBURGH BOSTON NORFOLK SAN DIEGO NEW YORK PHOENIX CHARLOTTE DENVER SAN FRANCISCO TAMPA FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 19 3 -16 15 6 -9 19 10 -9 10 2 -8 11 3 -8 9 1 -8 8 3 -5 5 0 -5 7 2 -5 17 13 -4 4 0 -4 4 1 -3 4 1 -3 3 0 -3 5 2 -3 Percentage Change -84 21% -60 00% -47 37% -80 00% -72 73% -88 89% -62 50% -100 00% -71 43% -23 53% -100 00% -75 00% -75 00% -100 00% -60 00% Source OIG analysis of FBI ACS data Other Fraud Investigative Areas We identified four other fraudulent classifications in which the FBI’s agent utilization significantly decreased Specifically these were Classifications 196A Telemarketing Fraud 196B Insurance Fraud 196D Other Wire Mail Fraud Schemes and 049A Bankruptcy Fraud $50K or Court Officer The following exhibit provides an overview of the field agent resource utilization within each of these four classifications from FYs 2000 through 2003 - 119 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IX TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 Bali krnpky Fraud t 049A TelemarkeHng Fra ud 196A 1 • l11surance Fraud 196ESJ 1 iOtJiler W ire MaH Fraud Schemes 196D t 244 111 200 J 209 1 1 ii 2002 2G9 Source OIG analysis of FBI TURK data Field Offices – As depicted in the following four exhibits the majority of the field offices experienced field agent utilization reductions of some kind in each of these other fraud-related areas We further noted that the most significant on-board agent declines primarily occurred in the FBI’s larger offices and were located in offices dispersed throughout the United States - 120 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IX CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 196D OTHER WIRE MAIL FRAUD SCHEMES FISCAL YEARS 2000 THROUGH 2003 7 ATLANTA 6 MILWAUKEE NEW HAVEN 3 -1 -3 DALLAS HOUSTON MIAMI PHOENIX WASHINGTON SALT LAKE CITY CHICAGO -7 -9 Source OIG analysis of FBI TURK data CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 196A TELEMARKETING FRAUD FISCAL YEARS 2000 THROUGH 2003 PKILA0ELPHIA DENVER _ ATLANTA PHOENIX SAN DIEGO MIAMI -5 LOS ANGELES -7 Source OIG analysis of FBI TURK data - 121 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IX CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 196B INSURANCE FRAUD FISCAL YEARS 2000 THROUGH 2003 -1 -2 TAMPA LOS ANGELES SAN FRANCISCO Source OIG analysis of FBI TURK data CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 049A BANKRUPTCY FRAUD $50K OR COURT OFFICER FISCAL YEARS 2000 THROUGH 2003 -1 -1 S CHICAGO SAN DIEGO LOS ANGELES -2 S DA LAS 5 Source OIG analysis of FBI TURK data - 122 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IX The following four tables list the greatest reductions in case openings among field offices for the other fraud related investigative matters 196D OTHER WIRE MAIL FRAUD SCHEMES FIELD OFFICE SALT LAKE CITY NEW YORK KNOXVILLE LOS ANGELES BOSTON CLEVELAND SEATTLE CHICAGO RICHMOND DENVER OKLAHOMA CITY JACKSON ATLANTA CHARLOTTE DALLAS HOUSTON INDIANAPOLIS NEWARK NEW ORLEANS PORTLAND BIRMINGHAM OMAHA SAN ANTONIO FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 76 24 -52 68 34 -34 33 2 -31 75 44 -31 70 40 -30 46 18 -28 41 17 -24 65 44 -21 33 13 -20 27 9 -18 41 23 -18 21 4 -17 58 42 -16 33 17 -16 61 45 -16 28 13 -15 34 19 -15 36 21 -15 46 31 -15 26 11 -15 19 8 -11 20 9 -11 27 17 -10 Source OIG analysis of FBI ACS data - 123 REDACTED AND UNCLASSIFIED Percentage Change -68 42% -50 00% -93 94% -41 33% -42 86% -60 87% -58 54% -32 31% -60 61% -66 67% -43 90% -80 95% -27 59% -48 48% -26 23% -53 57% -44 12% -41 67% -32 61% -57 69% -57 89% -55 00% -37 04% REDACTED AND UNCLASSIFIED APPENDIX IX 196A TELEMARKETING FRAUD FIELD OFFICE LOS ANGELES SAN DIEGO MIAMI LAS VEGAS TAMPA DENVER SEATTLE BUFFALO BIRMINGHAM HOUSTON KNOXVILLE PHILADELPHIA PHOENIX SACRAMENTO SALT LAKE CITY FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 31 11 -20 12 1 -11 10 0 -10 7 0 -7 7 1 -6 5 0 -5 6 1 -5 7 3 -4 4 0 -4 4 0 -4 4 0 -4 6 2 -4 9 5 -4 4 0 -4 6 2 -4 Percentage Change -64 52% -91 67% -100 00% -100 00% -85 71% -100 00% -83 33% -57 14% -100 00% -100 00% -100 00% -66 67% -44 44% -100 00% -66 67% Source OIG analysis of FBI ACS data 196B INSURANCE FRAUD FIELD OFFICE BOSTON OKLAHOMA CITY DETROIT LOUISVILLE CLEVELAND NEW YORK PHOENIX ATLANTA BIRMINGHAM CHARLOTTE SAN ANTONIO CHICAGO LOS ANGELES FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 16 4 -12 13 2 -11 13 4 -9 8 0 -8 8 1 -7 8 1 -7 7 0 -7 8 2 -6 7 1 -6 7 1 -6 7 1 -6 7 2 -5 5 0 -5 Source OIG analysis of FBI ACS data - 124 REDACTED AND UNCLASSIFIED Percentage Change -75 00% -84 62% -69 23% -100 00% -87 50% -87 50% -100 00% -75 00% -85 71% -85 71% -85 71% -71 43% -100 00% REDACTED AND UNCLASSIFIED APPENDIX IX 049A BANKRUPTCY FRAUD $50K OR COURT OFFICER FIELD OFFICE LOS ANGELES CHICAGO BOSTON BUFFALO DALLAS SALT LAKE CITY NEW YORK ATLANTA MINNEAPOLIS OMAHA PHILADELPHIA DENVER SEATTLE FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 135 13 -122 20 1 -19 20 2 -18 13 1 -12 13 1 -12 12 1 -11 9 0 -9 8 0 -8 8 0 -8 8 0 -8 9 1 -8 7 0 -7 11 4 -7 Percentage Change -90 37% -95 00% -90 00% -92 31% -92 31% -91 67% -100 00% -100 00% -100 00% -100 00% -88 89% -100 00% -63 64% Source OIG analysis of FBI ACS data Environmental Crimes Classification 249A Environmental Crimes was another investigative area among the eight white-collar crime classifications experiencing significant field agent utilization reductions The following exhibit identifies the number of on-board agents involved in this investigative area from FYs 2000 through 2003 and shows that the utilization of field agents handling such matters decreased in each fiscal year TOTAL FBI FIELD AGENT RESOURCE UTILIZATION FISCAL YEARS 2000 THROUGH 2003 N l1 2l IO l 'ISCAI ' AR Source OIG analysis of FBI TURK data - 125 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IX Field Offices – As illustrated in the following exhibit virtually every field office experienced reductions in the utilization of field agents on 249A matters However only three offices Dallas Houston and New Orleans had an on-board agent decrease that was greater than one CHANGES IN ON-BOARD AGENTS IN FBI FIELD OFFICES 249A ENVIRONMENTAL CRIMES FISCAL YEARS 2000 THROUGH 2003 O i ------------------ -0 i -1 $ HOIJSTO IIIEWORLEA S -2 IDAII LA S Source OIG analysis of FBI TURK data The following table shows reductions in the number of environmental crime investigations opened in field offices from FY 2000 through FY 2003 Although we observed no common factors between field offices experiencing the greatest reductions we di d note that most of them revealed in our analysis experienced reductions of 100 percent - 126 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX IX 249A ENVIRONMENTAL CRIMES FIELD OFFICE HOUSTON KNOXVILLE DETROIT TAMPA LOUISVILLE BALTIMORE ANCHORAGE MOBILE WASHINGTON CINCINNATI CLEVELAND NEWARK PHILADELPHIA SAN DIEGO SAN FRANCISCO FIELD OFFICE CASE OPENINGS FISCAL YEARS 2000 THROUGH 2003 FY 2000 FY 2003 Number Cases Opened Cases Opened Change 14 0 -14 13 1 -12 9 0 -9 9 0 -9 8 0 -8 7 0 -7 6 0 -6 7 1 -6 7 1 -6 5 0 -5 6 1 -5 5 0 -5 5 0 -5 5 0 -5 5 0 -5 Source OIG analysis of FBI ACS data - 127 REDACTED AND UNCLASSIFIED Percentage Change -100 00% -92 31% -100 00% -100 00% -100 00% -100 00% -100 00% -85 71% -85 71% -100 00% -83 33% -100 00% -100 00% -100 00% -100 00% REDACTED AND UNCLASSIFIED APPENDIX X FEDERAL BUREAU OF INVESTIGATION RESPONSE S E C R E T • U S Department of Justice V Federal Bureau of Investigation Washington D C 20535-0001 September 10 2004 Ms Carol S Taraszka Regional Audit Manager Chicago Regional Office Office of the Inspector General U S Department of Justice 500 W Madison Street Suite 3510A Chicago IL 60661 - 2590 Dear Ms Taraszka In connectio n with the audit The Internal Effects of the FBI ' s Repriori tization Efforts a t tached is the FBI ' s response to the audit report The FBI has conduct ed c lassi fi cat i on and sensit i vity reviews Att ached i s the a u d i t repo rt w tr1 p ort Jon mar-kings Irc adcii t ion the Crimina l lrtvest igat ion Divisi o n p rovi d id t he following o trroeni' n Tha second pa -agrr p lh is o c Y airly lelt ateo1 considering the m11mbeic C f pron ctive invest ig l ion b eing pu2·sued i1 inij t orgmn i zl€ ld crim b al ent e r p ri sefJ 7 wh ite col ' ar c r i me air d p ublic corruption The p 1 t ar p iph as iritten would be fin e if w1 wei e onl y e n9 ged in v iolent ux ime2 and civ i 1 Jd gh a Page 1 2 The c l rt i s missing datai f os t he Organized Crime D 'cUIJI rogr nt 7JNCLASSl l 'IE J WHEN SE ARATED E'ROM cu ssn'lED DOCUMEN'l ' l S E C R E 'J - 128 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX X S E C R E T Page 37 Exhibit 3 - 1 1 reflects an AOB change for 196C cases with numbers reflected as 73 and 54 CID could not determine the significance of these numbers AOB for 196C cases were as follows 159 in 2000 177 in 2001 182 in 20 0 2 and 250 in 20 03 Overa l l the purpose of the last column of numbers is suspect Pages 40 and 46 Case classifications and names are not readable Page 49 x t1ibL 4 2 should r e l ct 91 f l g tnt s f o i - tltt Dinig Prog m i FY 2002 E it 'i 'iti b1t ll- 3 5houl d reflf lc· _ 1 67-J fore tho 20 2 FSL l1ot r m d de ing the FSL fo 1 · CEI o A ccord1ngr t JiiH I G 'ft'ieifl lB 11ttle H iri t t eti d iriection W@ g i v n to t h fi ld with r ga rcdl to th r e n J o d J i 1t icm i i ndl tl Ye r -iJpeei£ic tmd et it would have cm v tolant crinl investt9at lor 1s i o Rc1 the c O FBI co r -po E ·a ted a spsctB of this reprioritization and the program plans it issues annually to the field Although we observed sligh changes in the priority list between the two fiscal years as shown in Exhibit 4-7 the FBI•s national priorities for violent crime matters have essentiall y remained the same since FY 2001 This paragraph seems to implicitly criticize that our prioriti es withi n t he program have not changed as a result of 9-11 and that we sJ1ould ha ' e reprio r-itized based on their resource utilization ajalysis This is incorrect Pr orities UNCLA SSIFIED WEEN SEPARATED FROM CLASSIFIEiJ DOCUMEN1'S S E C R E T -2- - 129 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX X S E C R E T are based on the crime problem and not resource utilization All of our intelligence and latest crime survey indicates that the crime problems identified as priorities have not changed and thus the priorities should not be changed The paragraph also seems to imply criticism about the lack of written direction given to the field based on input from unnamed FBI officials The program plan contains specific direction and courses of action for the field in the SAC Guidance section for each goal and objective In addition to the program plan and the field guidance ECs on the list previously provided CID also issued guidance regarding priorities in EC dated 10 21 2003 66F-HQ-A1246974 - A Serial 582 In addition to previous guidance VCS recently issued updated guidance on appropriate response to bank robberies in l' ai 110 f Ll e 2 S n i l 953 There a I' 'e o t h T' ' pecific E8 regD rd ing on specif c nitiatives such aa the Child Prosti ution 1 r i i tiat i Ye 1 Retuil The-ft IITT itiativev Violent Cith t 1 1td ti 1ti ve l_ £ j t'11el l ae guid@ Xi C@ E si JCel 1 t€d t o dea l ing wH h FAI 1JS sH1 d ' 'S lL the c a lcl with o t her · crimixu l ilf1 '®1Stigr it i re vic l e rrrt c cimz effo ii ti would focus pl ' 'i l1ll - i J 'i ly on t hi b Lq p l ayer '· acwevor SACe w n adlviB C to u£J8 th ili - cl isc rE t ' on in ai l loca ting i i ir1 ted viol1 r ilt e rime xt rnou cce to rnl ltt l JC' that wer l' moi t problemCTLatic within t h ef r j u r ' sdictior i A i 'i i pJ -oi p - jfilB FBI offieial stiolted th tir the 'HI I s r h i also 111 i l ad ing lfi rs' of all r C1 D did n nt iaau• guid 1t of t hi xh dl t o S 1 Cs e 8 ai at d SACs are supposed t0 eet abl i sh priorit ies based on t he aticnal d n iti e e d ivi d_on 7 i Gtdl the c riJtl ® and iilllli 'H' © t problem j d t tifi d in t h i r M ct iidingly I h l i guidanc @ t't 5oun' fi i$ s J im o m t ine d in th proqr mt l l an ' Consider dev l o i 1 1 gi l lv Elbt rtio n rm idlio ls i mil@ r to tb 11 cn £i pz e1 1entedl in thi 'l ireport tc rn tiist in 1' 1 o lntHJ J g lU prcgrx an1s l'J UNCLAS LFIED WHEN EPAR 'l rnD J ROJY-1 CLl- S SlF i ta JJOCUMEI J'T 'S S E C R E T - 130 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX X S E C R E T The CID already does this in a variety of ways That said the CID concurs with the recommendation We appreciate the efforts of the OIG to assist the FBI in adapting to the post 9 11 environment and the significant changes the organization has undergone Should you have any further questions please contact me at 202 324 2901 or Ms Robin Dinerman at 202 324 - 6389 Sincerely Lei ½''1 ' I Donal d W 'I'hompson sJr I Acting Assist@nt Director v I n pe cti on Division UNCLASSIFIED WHEN SEPA'RATED FROM C Jl SSIFIED DOCUMENTS S E C R E T -4- - 131 REDACTED AND UNCLASSIFIED 1 _ 'ef¼ r -- REDACTED AND UNCLASSIFIED APPENDIX XI OFFICE OF THE INSPECTOR GENERAL AUDIT DIVISION ANALYSIS AND SUMMARY OF ACTIONS NECESSARY TO CLOSE THE REPORT In its response to our draft audit report the FBI concurred with our recommendation and stated that its Criminal Investigative Division CID was already performing the detailed reviews that we recommended Appendix X In addition to responding to the recommendation the FBI expressed some disagreement with nine specific areas of the draft report as noted in Appendix X The first part of this appendix is a response to those comments made by the FBI The second part analyzes the FBI’s response to the recommendation and summarizes actions necessary to close the recommendation Part I – OIG Response to FBI Comments In its response the FBI questioned certain data values we obtained in our analyses disagreed with information contained in three paragraphs and expressed problems with three exhibits The following are our responses to each of the FBI’s comments Executive Summary The FBI commented on the second paragraph found on page i of the Executive Summary of the draft audit report which stated Prior to 9 11 the FBI was a more traditional reactive law enforcement agency a crime occurred and the FBI investigated it According to the FBI since the reprioritization it is striving to incorporate more proactive intelligence-based tactics and operations into its procedures particularly in terrorism-related matters The FBI’s response states The second paragraph is not fairly stated considering the number of proactive investigations being pursued against organized criminal enterprise white collar crime and public corruption The paragraph as written would be fine if we were only engaged in violent crimes and civil rights In order to clarify the meaning of the paragraph in question we have altered it slightly Our changes are noted in bold text as follows - 132 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX XI Prior to 9 11 the FBI utilized more of its field agent resources to investigate traditional criminal activity than to investigate matters related to terrorism According to the FBI since the reprioritization it is striving to incorporate more proactive intelligence-based tactics and operations into its procedures particularly in terrorism-related matters Incorrect Data Values The FBI claimed that certain OIG-determined AOB values in Exhibit 3-11 on page 37 of the draft audit report are incorrect The FBI response states Exhibit 3-11 reflects an AOB change for 196C cases with numbers reflected as 73 and 54 CID could not determine the significance of these numbers AOB for 196C cases were as follows 159 in 2000 177 in 2001 182 in 2002 and 250 in 2003 Overall the purpose of the last column of numbers is suspect Using FBI source data we determined the AOB for 196C cases to be 135 in FY 2000 and 208 in FY 2003 We contacted the FBI’s TURK Program Manager and she confirmed that the values we computed were correct As to the purpose of the last column of the exhibit being “suspect ” its purpose is to provide additional information on the percentage change in AOB from FY 2000 through FY 2003 We believe that such an analysis is valid and consistent with our audit objective The FBI also questioned the accuracy of FSL data presented in Exhibits 4-2 and 4-3 on pages 49 and 50 respectively The FBI states “Exhibit 4-2 should reflect 491 agents for the Drug Program in FY 2002 ” and “Exhibit 4-3 should reflect 1677 for the 2002 FSL not considering the FSL for CEI ” We reviewed our analyses of FSL data and determined the discrepancy the FBI notes in its response resulted from the FBI reviewing material from a different data set For all of our analyses we utilized the final adjusted FSLs for each fiscal year provided to us by the FBI’s Resource Management and Allocation Office The FBI on the other hand appears to have utilized the initial FSLs established for each fiscal year In order to clarify this issue we spoke to an official in the Resource Management and Allocation Office who - 133 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX XI advised that essentially both data sets could be considered correct Because we consistently utilized the final adjusted FSLs throughout our report we did not make the change that the FBI suggested However in order to clarify this issue we added footnote 12 on page 9 of the report stating that we utilized final adjusted FSLs in every analysis we have included in our report Missing Unreadable and Incomplete Materials In its response the FBI noted that four exhibits in the draft audit report were either missing data were unreadable or were incomplete The FBI states that on • page 12 “The chart is missing data for the Organized Crime Drug Program ” • pages 40 and 46 “Case classifications and names are not readable ” • page 55 ”Exhibit 4-6 is incomplete ” We reviewed these issues and found that on page 12 data for the Organized Crime Drug Program is listed as the second entry under the Field Agent FSL Subtotal header Additionally we were able to read the classifications and names in the exhibits on pages 40 and 46 as were other FBI personnel who performed a line item sensitivity and classification review on both charts Finally while the FBI states Exhibit 4-6 on page 55 is incomplete it provides no further details to explain what the exhibit is missing We believe the exhibit contains all necessary and pertinent data Violent Crime Program The FBI noted that some of our statements on page 55 of the draft audit report regarding the FBI’s violent crime program are inaccurate The relevant paragraph on page 55 of our report states Direction to Field Offices – According to FBI officials little written direction was given to the field with regard to the reprioritization and the specific impact it would have on violent crime investigations Rather the FBI incorporated aspects of this reprioritization into the program plans it issues annually to the field We reviewed the program plans related to violent crime matters for FYs 2001 and 2003 and found that field offices were given a list of national priorities for - 134 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX XI violent crime matters as a guide for prioritizing investigations Although we observed slight changes in the priority list between the two fiscal years as shown in Exhibit 4-7 the FBI’s national priorities for violent crime matters have essentially remained the same since FY 2001 In its response the FBI states This paragraph seems to implicitly criticize that our priorities within the program have not changed as a result of 9-11 and that we should have reprioritized based on their resource utilization analysis This is incorrect Priorities are based on the crime problem and not resource utilization All of our intelligence and latest crime survey indicates that the crime problems identified as priorities have not changed and thus the priorities should not be changed The FBI further disagrees with information in the same paragraph on page 55 The FBI response states The paragraph also seems to imply criticism about the lack of written direction given to the field based on input from unnamed FBI officials The program plan contains specific direction and course of action for the field in the SAC Guidance section for each goal and objective In addition to the program plan and the field guidance ECs on the list previously provided CID also issued guidance regarding priorities in EC dated 10 21 2003 66F-HQA1246974-A Serial 582 In addition to previous guidance VCS recently issued updated guidance on appropriate response to bank robberies in same file Serial 963 There are other specific ECs regarding on specific initiatives such as the Child Prostitution Initiative Retail Theft Initiative Violent Cities Initiative as well as guidance ECs related to dealing with FAMS and TSA In order to clarify the meaning of our statements we have altered the paragraph in question Our changes are noted in bold text as follows - 135 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX XI Direction to Field Offices – According to FBI officials written direction was provided to the field detailing changes w ithin the violent crime program necessitated by the FBI’s reprioritization This direction took the form of electronic communications and announcements of investigative initiatives related to specific types of violent crime Additionally the FBI incorporated aspects of its reprioritization into the program plans it issues annually to the field We reviewed the program plans related to violent crime matters for FYs 2001 and 2003 and found that field offices were given a list of national priorities for violent crime matters as a guide for prioritizing investigations These priorities are based upon the violent crime problems identified by each field office Although we observed slight changes in the priority list between the two fiscal years as shown in Exhibit 4-7 the FBI’s national priorities for violent crime matters have essentially remained the same since FY 2001 This implies that the nation’s violent crime problems have not changed The FBI also disagrees with aspects of the following portion of a paragraph found on page 56 of the draft audit report …As was the case with other criminal investigative programs FBI officials stated that the FBI’s violent crime efforts would focus primarily on the “big players ” However SACs were advised to use their discretion in allocating limited violent crime resources to matters that were most problematic within their jurisdictions The FBI’s response states This is also misleading First of all CID did not issue guidance of this kind to SACs as stated SACs are supposed to establish priorities based on the national priorities and the crime problem identified in their divisions and allocate resources accordingly This guidance is also contained in the program plan - 136 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX XI Based on the material we collected and information we obtained during the audit we continue to stand behind our statement that SACs were to use their discretion in allocating violent crime resources to the most problematic areas in their jurisdictions Specifically our support includes 1 the FBI’s 2003 Program Plans 2 an EC issued by the Criminal Investigative Program Management and Coordination Unit and 3 a statement made by the Assistant Director of the Criminal Investigative Division during an interview with OIG personnel In order to further clarify our statements we have altered the relevant portion of the paragraph in question Our changes are noted in bold text as follows …As was the case with other criminal investigative programs the FBI’s violent crime program was directed to leverage its limited resources Specifically according to an FBI memorandum field offices were to concentrate their violent crime efforts primarily on criminal enterprises Additionally SACs were advised to keep the FBI’s national priorities in mind while directing their limited violent crime resources to matters that were most problematic within their jurisdictions - 137 REDACTED AND UNCLASSIFIED REDACTED AND UNCLASSIFIED APPENDIX XI Part II – Status of Recommendations and FBI Actions Necessary to Close the Audit Recommendation Number 1 Resolved The FBI stated that it concurs with our recommendation to consider developing evaluation models similar to the ones presented in our report and in that the FBI’s Criminal Investigative Division CID already does this in a variety of ways In order to close this recommendation please provide us with examples of the evaluation models CID utilizes to manage its programs These models should contain information regarding OC D VCMO and WCC activities at the investigative classification level the same level of detail to which our analyses extended Additionally please provide us with examples of how other non-CID programs such as the National Foreign Intelligence Program Domestic Terrorism Program and the National Infrastructure Protection Computer Intrusion Program utilize information at this level to assist in the management process - 138 REDACTED AND UNCLASSIFIED