Chairman Cochran, Senator Byrd, and distinguished members of the Subcommittee. It is a pleasure to be with you today, and I am pleased to discuss the President’s FY 2004 budget request for the Federal Law Enforcement Training Center (FLETC) – its first under the Department of Homeland Security.
OPENING REMARKS
This marks the first occasion that I am appearing before the Homeland Security Subcommittee since my appointment as Director of the FLETC in July 2002. I want to extend my appreciation to Secretary Tom Ridge and Under Secretary Asa Hutchinson, who have already demonstrated their enthusiastic and unqualified support for the vital role the FLETC is expected to play in the new Department of Homeland Security (DHS). I also want to acknowledge the generous support the Congress has long extended to the FLETC. I stand ready to work with you and direct the FLETC towards successful completion of the objectives set forth by the Administration and Congress in the protection of our national security and interests.
The two pillars upon which the foundation of the FLETC was formed are quality in training and economy of scale. Neither of these can be achieved without the cooperation of our partner agencies. More than 75 federal agencies are now participating in the FLETC concept of consolidated training, which means shared training knowledge and experiences, better use of available funds, and law enforcement training uniformity and standardization. During its 33-year history, more than 500,000 agents and officers, across all three branches of government, have graduated from training conducted at FLETC, ranging from individual agency statutory enforcement responsibilities and the more common elements of training required for all agencies, including ethics, firearms use, physical training, and investigative skills and techniques. Furthermore each dollar provided to FLETC goes for the benefit and use of every partner organization.
Mr. Chairman, as we enter a new era in law enforcement operations in the United States, I believe the FLETC is a good example of the new government approach intended by the legislation creating the DHS: a means to harmonize the work of many law enforcement agencies through common training, while at the same time maintaining quality and cost efficiency. In FY 2003, 65% of the FLETC’s projected training workload will come from nine law enforcement agencies transferred to the new Homeland Security department. In FY 2004, this workload will continue to be above 50% of our estimated total federal training workload. In addition, FLETC maintains robust state, local, and international law enforcement training activities, many of which will help further complement the mission to secure the homeland.
Under the leadership of Secretary Ridge and Under Secretary Hutchinson, FLETC intends to work closely with all segments of DHS. Placing FLETC within the DHS will help to support the “unity of command” and the coordination and efficiency themes sought in the public law that created DHS. FLETC has a long history of service to many of the DHS components--the US Secret Service, the former Customs and Immigration and Naturalization Services including the U.S. Border Patrol (USBP), the Federal Protective Service and more recently, the Transportation Security Administration (TSA).
With the start-up of the Bureaus of Customs and Border Protection and Immigration and Customs Enforcement, FLETC is ready to help facilitate, develop, and implement new training and cross training programs. We recognize that much of this effort and expertise will necessarily come from the agencies involved, but there likely will be significant adjustments made over time to all DHS-related training programs, basic and advanced. Already, an effort is underway to systematically review existing training for these new entities and to address whatever capabilities are needed to meld the duties of the participants. In the meantime, training will continue unabated to achieve all of the hiring expectations of our agencies.
Our experience with the TSA is evidence of our capability to work collaboratively, flexibly and quickly. For example, together our two agencies developed and implemented a new Federal Air Marshal (FAM) training program within days of the September 11, 2001 attacks. FLETC also assisted in the development of the security screeners prototype training and is currently assisting in the prototype of a Federal Flight Deck Officers (FFDO) training program. .
FY 2004 BUDGET REQUEST
In his FY 2004 budget, the President submitted a budget request for the FLETC that included an Operating Expenses (OE) appropriation of $122,379,000 and 754 full-time equivalents (FTE). The request for the Capital Acquisitions (CA) appropriation is for $23,679,000 and provides funding for all of the cyclical maintenance and upkeep of our permanent sites, including renovation of several older facilities in Glynco, GA.
Together, the OE and CA FY 2004 requests total $146,058,000. FLETC’s overall FY 2004 budget is $206,058,000 based on an estimated $60,000,000 in funds to be reimbursed by partner agencies for certain training and related services. As a matter of long established fiscal policy, the FLETC operations are partially covered by agency reimbursements in addition to the appropriation authorized by Congress. Essentially, this has evolved to a point where FLETC funds the mandated entry level training and facility development and operations, while the participating agencies reimburse us for certain training costs and support.
The FY 2004 budget also revises FLETC performance measures to align them with the organization’s mission and funding, consistent with the President’s Management Agenda for budget and performance integration.
OVERVIEW OF OPERATIONS
As part of my FY 2004 budget discussion, I would like to provide the Committee with a brief overview of the operations of the FLETC and the resulting workload.
The FLETC conducts basic and advanced training for the vast majority of the federal government’s law enforcement officers. We also provide training for state, local, and international law enforcement officers in specialized areas, and support the training provided by our partner agencies that is specific to their individual mission needs. There are now more than 200 separate training programs offered through the FLETC and its partners. Twenty-three agencies maintain training academy operations at Glynco, GA, three are housed at Artesia, NM and one is located in Cheltenham, MD.
The FLETC provides entry-level training programs in basic law enforcement for police officers and criminal investigators, along with advanced training programs in areas such as marine law enforcement, anti-terrorism, computer forensics, health care fraud, and international banking and money laundering. Training is conducted at Glynco, GA, Artesia, NM, and Charleston, SC facilities.
The Charleston, SC site was established in FY 1996 to accommodate a large increase in the demand for basic training, particularly the former USBP. The training workload increase over a period of years for the former USBP and other former Immigration and Naturalization Service (INS) training categories was the direct result of initiatives to control illegal immigration along the United States’ borders. That training is expected to continue to be of substantial importance with respect to the integration of border personnel and functions.
In addition to the training conducted on-site at the FLETC’s residential facilities, some advanced training, particularly for state, local, and international law enforcement, is exported to regional sites to make it more convenient and affordable for our customers. The use of export sites for other types of training has proven to be highly successful. In using these sites, most of which are local police academies, the FLETC does not incur any capital expenditure obligations.
WORKLOAD
During FY 2002, the FLETC graduated 32,092 students, representing 160,677 student-weeks of training. This total included 22,158 students who were trained at Glynco, GA; 5,952 students trained at Artesia, NM; 959 students trained at the training site in Charleston, SC; and 3,023 students trained in export programs. There were 19,881 basic students; 9,188 advanced students; and 3,023 international students trained, providing for an average resident student population (ARSP) of 3,090.
As a result of the tragic September 11th attacks, our partner agencies’ workload projections increased significantly. FLETC is projecting the greatest increase in training requirements in its history. In FY 2003, the FLETC will train 37,848 students representing 205,692 student-weeks of training. This total includes 30,184 students to be trained at Glynco, GA; 3,423 students at Artesia, NM; 1,899 students in Charleston, SC; and 2,342 students in export programs. A total of 22,746 basic students; 12,760 advanced students; and 2,342 international students are projected for a total ARSP of 3,956. Simply stated, this growth is unprecedented.
Over the years, the FLETC has experienced a number of periods of sustained growth in the training requests by its partner agencies, and we have been able to accommodate most of these increases by being innovative in the use of our existing resources. To meet the training needs, the FLETC continues the six-day workweek at Glynco, GA that was started in January 2002. By implementing this format, FLETC will be able to accelerate training to get students graduated more quickly and “on the streets”. Our inclusion of an additional day of training resulting in a six-day workweek in FY 2002, and into FY 2003, has enabled us to graduate over 2,000 more law enforcement officers and agents than we could have graduated on the normal five-day workweek. Through the use of a multi-year reemployed annuitant hiring authority granted by the Congress in the Supplemental Appropriations, FY 2002 (Public Law 107-206); careful scheduling of instructors and programs; and other measures, good progress has been maintained in meeting requirements. The FY 2004 budget request includes sufficient funding to provide the level of training being requested by our Partner Agencies.
FACILITIES CONSTRUCTION MASTER PLAN
I would also like to brief you on the status of the progress that has been made in expanding the FLETC’s facilities. The FLETC initiated a multi-year facilities construction program at the end of the last decade in order to meet the training growth needs of our partner organizations. Following the terrorist incidents of September 11, 2001, FLETC sites have been used nearly to capacity. For future planning purposes, FLETC contracted with a private firm experienced in facilities and site development to conduct a study that includes Artesia, NM; Glynco, GA; and Cheltenham, MD. The study, which should be completed in late spring, is a three-phase plan that places emphasis on eliminating the capacity shortcomings of Center facilities. With respect to facility construction, I also wanted to take a moment to discuss the Washington DC area site and some other accomplishments.
Initial funds were appropriated in FY 2001 for the development of a training site within the Washington, DC area, primarily for short-term requalification training and as a site for in-service U.S. Capitol Police (USCP) training. The site ultimately selected, following an extensive review of available federal sites, was the former naval communications base in Cheltenham, MD. Since assuming ownership of the Cheltenham, MD property, excellent progress is being made in design and development work. A completely enclosed and environmentally-safe firearms complex is under construction and expected to be completed in the fall of 2003, and construction will begin on a vehicle training complex for non-emergency, obstacle and pursuit driving and related support facilities in the next month or so. Also, consistent with appropriations, FLETC placed the highest priority on completion of an in-service academy operation for the USCP, for which the dedication and opening ceremony was conducted in September 2002. The new building contains classrooms, offices and support capabilities to train 50-100 officers at any one time.
Also, design work already has been completed and construction begun for most of the remaining projects, the majority of which will be completed by late 2003. The District of Columbia Metropolitan Police Department (MPDC) has transferred $4,000,000 to FLETC to help defray the cost of the firearms range complex. MPDC is one of the principal agencies specifically incorporated into the legislation as a partner organization at Cheltenham, MD. In total, the FLETC projects more than 60 agencies in the Washington, DC area will receive requalification training at Cheltenham, MD when it is opened.
With respect to other construction, I should note that in Artesia, NM the new Administration Building was completed this year. We expect to complete the new dining hall in June. Design has begun on a new classroom building that was funded in the FY 2003 appropriation. In Glynco, GA, the new Port-of-Entry Building became operational in March 2003. Later this year we plan to complete the renovation or construction of the Indoor Firearms Building, the Administrative Building and the Anti-Terrorism Building. Next year we plan to complete a Firearms Multi-Activity Building and an indoor Firearms range.
SELECTED OTHER ACHIEVEMENT HIGHLIGHTS
I would also like to discuss briefly some of the FLETC’s other specific achievements based on the past support of Congress and the Administration.
In FY 2002, the Center’s overall performance against its most critical performance target, the Student Quality of Training Survey measure, was very good. A total of 99.3% of all graduating basic training students expressed satisfactory or higher rating of their training. Also, the FLETC’s training costs measurement was below the cost figure established for the variable unit cost per basic student-week of training. The plan projected a weekly cost of $927, and the actual cost was $802. The volume of training conducted and the efficient management of facilities scheduling allowed us to realize reductions in costs.
In FY 2002, the FLETC had its third complete audit of its financial records and systems and received another “unqualified opinion” for its operations. By changing processes and procedures, the FLETC has been able to meet mandated goals. Systems standardization and integration played major roles in achieving fast-close and data quality end-of-year submissions.
During FY 2002, on behalf of U.S. law enforcement agencies, FLETC assumed the lead for the establishment of a United States International Law Enforcement Academy (ILEA) operation in Gaborone, Botswana, the first of its kind on the African continent. The official opening ceremonies were conducted in March 2003, with the President of Botswana and other African nation dignitaries participating. The academy, like similar sites in Europe and the Far East--under the joint direction of the Departments of State, Justice and now Homeland Security-- is providing training to law enforcement officers from nations throughout that region, and is jointly funded by the Government of Botswana and the U.S. Department of State.
The FLETC also has begun partnering with the Office of Personnel Management (OPM) to provide law enforcement training on the new OPM GOLEARN.gov training site. This partnership initiated on January 20, 2003, provides the first responder communities (law enforcement, firefighter, public safety and health, and security personnel) secure, encrypted access to both general and customized law enforcement training. We are excited about the great opportunities that lie ahead in the field of this technology through the use of “blended learning” –combining the best uses of distance learning and hands-on residential learning.
Finally, I want to note the progress that is being made in the area of accreditation and standardization of federal law enforcement training based on an FY 2002 appropriation and other authorized funds. This project is fully underway. FLETC is working in collaboration with federal agencies, including the Federal Bureau of Investigation, the Drug Enforcement Administration, and the U.S. Postal Inspection Service; private organizations; professional associations; and others, to develop a format to accredit training facilities, instructors, and programs and courses provided by every federal law enforcement organization. When fully implemented over the next several years, this project may prove to have the most far-reaching impact on the way law enforcement training is conducted at the federal level since the establishment of consolidated training itself.
CLOSING
In closing, let me assure you that FLETC is committed to providing the highest quality law enforcement training at the lowest possible cost. Substantial savings are being realized through the operation of consolidated training sites. We are also aware of the important opportunities and challenges that lay ahead.
The FY 2004 budget request provides the resources to enable the FLETC to manage its responsibilities and continue to serve as a leading Government provider of high-quality law enforcement training to Federal, state, and local law enforcement officers. With the requested funds, the FLETC will provide cost-effective and contemporary law enforcement training, support the specialized training needs of state, local and international agencies, and deliver preventive and investigative law enforcement methodologies and terrorism training. I look forward to continuing to work with you and your support to successfully accomplish these objectives.
I also want to publicly commend the remarkable people at FLETC and in our partner agencies who have contributed so much already to the success of consolidated training. Their talented assistance will continue to be of great benefit.
Mr. Chairman and Members of the Subcommittee, this concludes my prepared statement. I would be happy to answer any questions you may have at this time.
