FY 1989 AUTHORIZATION AND BUDGET REQUEST FOR THE CONGRESS

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP90-00530R000601460001-9
• Release Decision: RIFPUB
• Original Classification: K
• Document Page Count: 126
• Document Creation Date: December 23, 2016
• Document Release Date: February 12, 2013
• Sequence Number: 1
• Publication Date: March 9, 1988
• Content Type: MISC

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U.S. Department of Justice
Federal Bureau of Investigation
FY 1989 Authorization and
Budget Request for the Congress
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Department of Justice
Federal Bureau of Investigation
Estimates for Fiscal Year 1989
Table of Contents
Page
Number
Organization Chart ........................ ................ 1
Summary Statement.. ............ ................................ 2
Justification of Proposed Changes inAppropriation*Language.. 7
Crosswalk of 1988 Changes ............................................................. 9
Summary of Requirements....... ......................................................... 11
Summary of Resources by Program.. ........................ 12
Justification of Program and Performance: " " "
Criminal Security and Other Investigations .......................... 14
Investigative Support . ............................................................. 50
State and Local Assistance .......................................... .................. 71
Program Direction ......... .................. ..................... 84
Justification of Multi-Activity Program Decrease ................. 93
Financial Analysis - Program Changes .......................... 94
Status of Construction and Summary of New~Facilities ~Requirements ........................ 98
Status of Congressionally Requested Studies, Reports and Evaluations.. 99
Priority Ranking....... .... .................................................. 100
Detail of Permanent Positions by Category ...................... 101
Schedule of Motor Vehicles .............................. 102
...................... 103
Schedule of Aircraft ............................................... ....
Summary of Change. .... ................................................ 104
Justification of Adjustments to Base ... ........ 105
Summary of Requirements by Grade and Object Class .. ............... 108
Consulting and Related Services......... .................................................. 111
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Why is there
Counterint a need for
increases forigence (e CI j dp itional S
ell the Other i rogr~? Is vial Agents for EXECUTIVE SUMMARY RESP~ nvestigative Programs? need for assn sign
NSE t
needed to The additional
nte
coU Special s rvic sarethin
ethehUniteeat posed bts for the PC
deficiency a Part of d States by hostile inte Program are
responsib l itthe FBI's ab ?Wth plan The increase 1ligenceM
ies, lity to daSChared tO coregoeste.d for
9e our FCi ect a serious
Bud
be-In restrain goes ed at this s identified
time due to the need for Programs are grams not
fiscal
incr Additional DE TAILS
Thereasing threat Special Agents are ove Posed b are
.nearly one- r 4.500 offiY the hostile required to
intelli third of vials intelli counter
the ed ce services these are affilint in the Unice serviCeshe S and Unit States In addi ated wit to ser t
tha immigrants t there are tion to the h hostile es and
at are host at come more than Official
States ile or are to this coo 100.000 vial Presence in
fulfill Their intelli of concern to ntry each year h fro ors, students
9ence serei the int m coo
in s easiinj!e1Iii:55e n9aince require ces have erests of ntries
Pect to tuments in the used these the United
f past. groups to
Present offius' re o Du
managers in vials a Continued the intelligence
e to the
requirementse identifiedsators' studentsaietc. n , tOthe threat
es we
resource levethat cannot number of s FBI
1 be adequate Pecific inv PCI Program
vari FBI lY met at Oure
The has currentve
tho e e,in e tigati a OPro,
the ridentified budgetary
e being transmittedptortmreque tver, du et? theds in its
Congress. and the PCI requestaare
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wuEST~:
Was the FBI With inform
of the OFgI rsonnel ? e What Plans to pen
when the new Coi l be the a Consfrstaed
late 1
Kev XECUTIVE SUMMARY RESP ulate is Opene impact n the FCI kl ~NSE New York? ?ad
t
Although the
State he status of FBI has be
Plans to Othe SovieegMilations between
the U.S. Dfed regardin
Opening of to be staffedlate in Kiev ei t Affairs epartment of g
require the Sovie at each cons the specific regarding the
ISAs a prOPortionate Consulate in New ate was not number of
and support personnumber of additio rk (SOVCONyd wilressed. The
to Cover thisnnewSesPeci tabl iAgents
shment.
The U DES :
Human Intelli ?S. intelli sues
9ence T community
Mostboflgovthe most dan e and Signalconsiders
th
Con
duct ie
ed intelli g r?us threats Intelli the Soviets,
which to utilizing offince gatherin to our naetio (SIGINT)
not siOperate. If cial Soviet g activity is ,nal securit
Percents ready Posted i the SOVCONY establishments known to be y.
the U.S.9e of them blithe U. S., itlisstaffed with w bases from
efforts to efOre. ThislwbllPeople who Passible that ea fficiais
demons atiful1Y identif require int never been 9h
demonl on and activities them and determilve investi Posted in
y using teem Propensity for In the past, ehetheir in ellie
snot Porar nt goin Soviets 9ence
snot der establishment assg beyond their have
reassigning them such as igned unde staffing
a f
at utur Amtorg Tradir different g limits
e date n stat
to g Com us
P rese has been states rations consi the consulate anY' and then at
nee that it Bering the
numbers alin NYC
therehile this mad only it mar?Pn ng??f the SO
demonstrate are of y be true lly increase the
counter' that the new her factors ' when rease the
intelli SOVCONy to be considered ring
tovother U.S, 9ence related will eX considered
S
iet thre cities, Present Problems of Ponentiall which
approximately The locatio , special the FBI. NYCncrease the
conside lly twelve miles fro of the new SOVCONs In cou compared
ra? uteri
has a Very 1 difficult the the NyO Y will be ng the
largest in ge Soviet n in Other locations covers
i consulatthe nation. Becemigre Po r locations in 9e is
'ignif' e, the routine ause of theulanion - more the U .S.
erritory s access like
n?tfY increased. The to nature of the business likely the
this
Cates to cover. O Y would have OameOns y would be
ugh there would be
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QUESTION:
By how much has the FBI grown since FY 1981 in terms of positions
and budget authority. How does this compare to the Department of
Justice (DOS) as a whole? How does this compare to the following
agencies within DOJ: Drug Enforcement Administration (DEA);
Immigration and Naturalization Service (INS); United States
Marshals Service (USMS); and the Federal Prison System (FPS)?
EXECUTIVE RESPONSE:
The FBI's FY 1988 budget request to the Congress totals 22,974
positions and $1,484,421,000 in budget authority (direct
funding); this compares to FY 1981 appropriations of 19,306
positions and $680,723,000. Thus, the FY 1988 budget request
represents an increase over FY 1981 of 3,668 positions (19%
increase) and $803,698,000 (118% increase). As large as this
increase in budget authority may appear, it must be remembered
that this amount has not been adjusted for inflation. Quite a
different picture emerges when this increase has been adjusted to
reflect real growth. In terms of real growth from FY 1981, the
FBI has experienced a 69 percent increase in budget authority
(direct funding), significantly lower than the 118 percent
increase in apparent growth. The FBI's apparent/real growth has
lagged significantly behind the apparent/real growth for the DEA,
INS, USMS, FPS, and DOJ as a whole.
---------------------------------------
DETAILS
The first chart below reflects the growth in positions from
FY 1981 through FY-1988 for selected DOS agencies and for DOS as
a whole. The second and third charts reflect the contrast
between apparent growth and real growth for these same
components. _
Growth in Positions
Component
FY 1981
FY 1988
.
Percent
Growth
Incr
ease
INS -
DEA
10,886
15,453
4,567
42%
USMS
4,092
5,730
1,638
40%
FPS
2,177
2,948
771
35%
,
DOS
9,225
12,213
2,988
32%
FBI
55,679
72,814
17,135
31%
19,306
22,974
3,668
19%
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UESTION:
The Senate-passed version of the Intelligence Authorization
for 1988 contains a cost of living n New York Office that would allow the FBISDirectorttoe FBI's Act
provide
additional compensation to FBI employees in that city. of Justice agency would be afforded such treatment
under the Y? No other
is under the of the bill. We understand that the Bureau
support of the Provision.
If passed and signed into law by between tthe he PFBIlandtother bill would
create Federal agencies. Has the FBI considered DOJ and
formulating its Position on the bill? this fairness issue in
?
the Bureau offer to the problem? If so, what solutions can
EXECUTIVE RESPONSE:
This legislation does not create serious inequities
between the FBI and other Federal agencies in New York.
because of the un' personnel que mission and responsibilities of thelFBIaand
problems associated with our ability to carry mission in New York that the Senate Select Committee on
Intelligence (SSCI out this
not unfair. ) Proposed this legislation. It is certainly
SSCI concluded that the high cost of living in the
New York area "inevitably New York Division in terms ofeitsncoutteriintelligences of the
responsibilities." Other Federal agencies with comparable
personnel standards, charged with responsibilities in foreign
intelligence or foreign compensaton affairs have recognized this and
The Provide compensation packages for their employees in NewbYork. F
i of thB sie nigeee An the Federal community for New York because
foreign counterintelligencemresponsibilities., the nusual its
and availability required for P the dnhsran hours
standards of the Agents, the rigid hiring for which requirettopFsecret cAgent
need to encoura e Agents Personnel alike
gto remain in New Yorkptherebyaraising
the experience level of the office and its ultimate effectiveness.
It is m considered b y understanding that the provision now being
y the Intelligence Committees will provide for a
5-year demonstration project to ascertain the effect on
recruitment, retention, and operations of
allowance to the employees of paying an additional
language of the the New York Division. The
ato Provision, as we are advised by staff, will be
"Demonstration the Projects'" Title 5 ~~ " ' U.S.C., Section 4703, under like which is used by OPM to conduct studies
circumstances where Federal agencies have difficulty
in recruiting and retaining competent
the FBI may be personnel. Additionally,
required to consult with and advise OPM, as well
as appropriate Oversight Committees, on the plan formulated for
New York and its results.
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DETAILS :
assigned to the New York
Division a eefacedlwithgdifficult)livin
forefront of these g conditions. In the
which makes the problems is the escalating cost of living
purchase of a house Practically an impossibility
for even a GS-10 or GS-11 SA. The New York employee is confront
ed with many other exorbitant living expenses
evident to this ma g xpenses which are not -
United States. Unessusomenactiontis t kendtolalsevi ie the ion
hardships, the New York Division will be unable to maintaineae
high staffing level which is imperative to the efficiency effectiveness of both the Criminal and Foreign a
Counterintelligence and
programs.
1988 Inteling5/
nce 20/871 thezSenateBversion1of
the Fiscal yeedar out Committee by the Senate Select committee on3Intewas l1 gence. out of
Included in this Bill was Section 402,a which
Director of the FBI is "authorized to provides
appropriate the
additional compensation to the New York Field Division of the
Federal Bureau of Investigation to proprid funds
the
appropriate to defray unusual living expenses associatedawith
such employment." The intent of this with
FBI to decide what, if any, was to allow the
FBI to deci en hat way of a cost of living supplement or housing emp allof ployees investigative to the New York Field Div'-
assigned. program they 1
are
Head There are ongoing discussions between the Hill and FBI
quarters. The provision was voted on by approved. It will be conferenced by ligence Committees in early September the
ne
re rer con ncoveeness.
.
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FEDERAL BUREAU OF INVESTIGATION
EXECUTIVE ASSISTANT DIRECTOR-
LAW ENFORCEMENT SERVICES
EXECUTIVE ASSISTANT DIRECTOR-
ADMINISTRATION
1
J
OFFICE OF
CONGRESSIONAL
AND PUBLIC
AFFAIRS
s
IDENTIFICATION
DIVISION
TRAINING
DIVISION
Z
LABORATORY
DIVISION
ADMINISTRATIVE
SERVICES
DIVISION
RECORDS
MANAGEMENT
DIVISION
LEGAL
COUNSEL
DIVISION
TECHNICAL
SERVICES
DIVISION
EXECUTIVE ASSISTANT DIRECTOR-
INVESTIGATIONS
INSPECTION
DIVISION j I .
INTELLIGENCE
DIVISION
CRIMINAL
INVESTIGATIVE
DIVISION
EDWIN MEESE III
Attorney General
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Federal Bureau of Investigation
Summary Statement
Fiscal Year 1989
For 1989, the FBI is requesting a total of $1,503,307,000 in funding, 22,988 permanent positions, and 22,044 workyears. These
direct funded resources represent program increases of $99,011,000 in funding, 925 permanent positions and 464 workyears over the
1989 base level. The 1989 request includes a total of 9,790 special agent positions (9,438 workyears) and 13,198 support
positions (12,606 workyears). The program increases in these categories are 236 special agent positions (125 workyears) and 689
support positions (339 workyears).
This request is being submitted after a thorough review and analysis of requests for increases from all aspects of the FBI that
support the accomplishment of the FBI's mission and related strategic goals. In today's constrained fiscal environment, it is
incumbent upon the FBI that only those requests for resources which are essential to the accomplishment of the agency's mission be
considered. The FBI's 1989 request represents the continued commitment by the Administration to maintain the FBI as an effective
national law enforcement agency dedicated to the investigation of criminal violations, protection of the United States from
hostile intelligence efforts, and the preservation of the rights and well being of citizens. In this regard, the FBI will
continue to emphasize Foreign Counterintelligence (FCI); Organized Crime; Drug Enforcement; White-Collar Crime; and Terrorism
investigations as national investigative priorities. Additional support, both personnel and nonpersonnel, is inexorably needed to
ensure that FBI Special Agents have sufficient resources to meet their responsibilities in these and other investigative areas.
The FBI's budget request for 1989 contains four budget activities incorporating eighteen decisions units. The budget activities
are: Criminal, Security, and Other Investigations; Investigative Support; State and Local Assistance; and Program Direction. The
major initiatives and resource requests for 1989 for the above-mentioned activities are summarized below:
Criminal. Security and Other Investigations:
The investigative programs of this activity are FCI; Organized Crime; Drugs, including organized Crime Drug Enforcement Task
Forces; White-Collar Crime; Terrorism; General Crimes; and Civil Rights, Applicant, and Other Investigations. A program increase
of 816 positions, 410 workyears and $68,187,000 is requested in this activity over the 1989 base level. A significant portion of
the requested increase in budget authority is attributed to confidential case expenditures. Adequate case funding provides
support in the development of priority investigations. To counter the intelligence threat, the FBI engages in counterintelligence
activities designed to reduce the effectiveness of the hostile intelligence presence in the United States.
The 1989 budget request reflects a strengthened emphasis on the investigation of white-collar criminal activities. Since 1984,
management directives in White-Collar Crime investigative programs have increased agent time expended on priority matters from 90
percent in 1984 to 94 percent in 1987. Many nonpriority white-collar crime matters which come to the attention of the FBI are
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referred to local authorities or other Federal agencies which have concurrent jurisdiction. This allows agents to address only
the most complex, long term, and personnel intensive matters. Within the White-Collar Crime Program the FBI's principal
investigative priority continues to be Fraud Against the Government Program with primary emphasis on Department of Defense (DOD)
matters. Pending DOD fraud investigations increased 15 percent in 1987 compared to 1986, as a result of initiatives undertaken
with the Defense Contract Audit Agency and the Defense Procurement Fraud Unit. In 1987, investigations in DOD matters resulted in
178 convictions and pretrial diversions. Fraud against the government places a heavy financial burden on the American taxpayer
and, in addition, it erodes confidence of the public in the government's ability to manage resources.
Bank failures are reaching crisis levels in the United States; fraud is a contributing factor in many of these failures. Pending
bank fraud matters, where losses exceeded $100,000, including massive bank failures, increased 15 percent from 1986 to 1987. It
is anticipated that workload will continue to increase through 1991, proportionate with increases experienced from 1986 to 1987.
The FBI continues to place a high degree of priority on public corruption and election law matters. In 1987, there was a 20
percent increase compared to 1986 in the number of convictions in public corruption matters. An integral part of these
investigations was the expanded use of court authorized electronic surveillance and undercover operations. These are effective,
though personnel-intensive techniques. Heightened environmental awareness and complaints over illegal dumping of toxic waste
materials have resulted in an increase in FBI investigative efforts in cooperation with the Environmental Protection Agency (EPA).
The White-Collar Crime Program enhancements include 119 special agent positions, 130 support positions for a total of 249
positions. The augmented budget authority for this program is $10,735,000.
Organized Crime investigations will continue to focus on the La Cosa Nostra's (LCN) criminal control and domination of four major
national and international unions in the United States: The International Brotherhood of Teamsters; the Laborers' International
Union of North America; the Hotel Employees International Union; and the International Longshoremen's Associations. Recent
successes against the LCN can be attributed to the evolution of the enterprise theory of investigation. This approach requires
that separate investigations conducted against individual members of a specific group of family be combined for prosecution, using
both the civil and criminal provisions of Racketeer Influenced and Corrupt Organizations (RICO). Considerable emphasis will be
placed upon civil RICO investigations which will increase the seizure of assets and forfeiture actions. The resources requested
will enable the FBI, using civil and criminal investigative techniques to increase the prosecution of organized criminal groups.
Organized Crime increases include 6 special agent positions, 58 support positions and $4,590,000 in budget authority. With
increased resources the FBI would be able to further implement the FBI's National Drug Strategy and to continue working closely
with the Drug Enforcement Administration (DEA), Internal Revenue Service, and the U.S. Customs Service to penetrate drug
trafficking organizations in a manner in which financial assets can be identified as proceeds of the illicit activity and subject
to eventual seizure and forfeiture. The FBI will strive to reduce the incidence of illegal drug trafficking perpetrated by major
organized groups including the Sicilian Mafia, Colombian, Mexican and Oriental Organized Crime groups through a systematic,
coordinated and sustained basis. The requested increase would relieve agents from conducting routine and supportive functions and
allow agents to concentrate more fully on strictly investigative activities. The Drug Program increases include 79 support
positions and $3,605,000 in budget authority.
The FBI's Terrorism Program continues to include activities directed at the reduction and prevention of the terrorism problem
through intelligence and criminal investigations. A key element in addressing the international scope of terrorist activities and
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in responding to recent legislation involving extraterritorial jurisdictional responsibilities is the assignment of Legal Attaches
abroad. Requested personnel would be directly involved in the fulfillment of foreign liaison activities vital to the Terrorism
Program.
Investigative Support:
The programs within this activity are: Training; Forensic Services - Federal; Automated Data Processing and Telecommunications;
Records Management; and Technical Field Support and Equipment. This activity provides the training and the "tools" critical to
the FBI's field investigative activities. It includes the maintenance of all investigative records and the entire FBI
communications system. A program increase of 97 permanent positions, 49 workyears and $24,135,000 in budget authority, consisting
of $3,313,000 for personnel and $20,822,000 for nonpersonnel, is requested for 1989.
By 1989, baseline Field Office Information Management System (FOIMS) capabilities will be available to all FBI field offices and
resident agencies. These capabilities would provide for indices, generic case management, administrative reporting, and other
functions. At the baseline FOIMS level, each field office squad would have access to a limited number of computer workstations.
Implementation of extended FOIMS functionality will commence with the installation of intelligent workstations at a ratio of one
workstation for every two agents. The total number of field electronic technicians requested, to support this program is 40
positions, 20 workyears and associated funding of $1,000,000.
Between 1985 and 1987 the number of audio processing examinations increased 23 per cent. This increase of workload resulted in an
extended turnaround time for examinations and a considerable backlog to develop. Electronics engineers are required to address
the audio processing examinations workload. Additional electronics technicians are also required to maintain and service field`
radio communications systems which are part of the digital voice privacy (DVP) network. The current level of field electronics
technicians cannot handle the additional support required for the greatly expanded radio system. To address these technical
areas, an increase of 3 positions (2 workyears) for electronics engineers, 54 positions (27 workyears) for electronics
technicians, and $2,313,000 is requested for 1989.
In 1984, the FBI's Strategic Planning Group considered the impact of initiating a major effort to investigate labor racketeering
matters. As a part of this undertaking, it was discovered that those agents having the most experience and success in labor
racketeering cases were also those agents who were nearest to retirement and who would not be available for the entire duration of
complex, multi-year investigations. Consequently, the FBI began to explore methods by which to institutionalize the investigative
knowled a for the benefit of a younger agent work force. Expert systems provide assistance to human nvo a ec ua
iviti s. The techniques utilized in an expert system are not merely mechanical aids in the handling of large amounts of data..
The expert system is designed to intellectually examine data and provide information which becomes part of the decision making
process. A nonpersonnel request of $6,500,000 for 1989 allows the FBI to continue development of expert systems and to take
advantage of new techniques as they are developed.
The FBI's data communications requirements are supported through the lease of telecommunications lines and circuits that permit
field office personnel to access centralized data bases and information systems at FBI Headquarters and FOIMS data bases in
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regional computer support centers by the Intra-FBI Records Communication System (IRCS). Without additional funding, the FBI would
be forced to restrict access to field office users of the system which would directly effect operations by denying field
investigators the use of intelligence data entered in FOIMS and other automated systems. To address rising IRCS costs, an
increase of $6,131,000 is requested.
Several nonpersonnel items are vital to the FBI. The FBI is re esting $1,890,000 for electronic surveillance a ipment which
includes: $300,000 for concealed body worn radio transmitters, $300,000 for fiber optic microphone systems, and $$1,290,000 for
automatic dialed number records systems. Other nonpersonnel items are $5,115,000 for lease of radio tower sites for the digital
voice privacy radio initiative and $1,186,000 for the purchase of 87 surveillance vehicles.
State and Local Assistance:
The FBI provides state and local law enforcement officials with training, laboratory, fingerprint identification, and information
services. As part of the President's Productivity Improvement Program, the Automated Identification System (AIS) initiative would
accommodate an increased workload without comparable increases in staffing. The projects within AIS would address areas that are
still manual and highly labor-intensive. The approach to increased productivity would be accomplished by three efforts: (1)
implementation of an on-line, automated system with automated card and document transportation; (2) development and implementation
of an automated fingerprint classification system; and (3) development and implementation of an automated fingerprint image
retrieval system. The productivity improvement program would allow a comparably sized staff to process an additional 28 per cent
of work, which equates to a cost avoidance savings of 649 additional workyears by 1997. An increase of $6,380,000 is requested
for nonpersonnel expenditures including $2,500,000 for automated fingerprint readers; $580,000 for process control number reader;
$1,500,000 for AIS-III ADP maintenance; and $1,800,000 for automated classification/phase II research and development. Services
provided to state and local law enforcement are important and because of the benefits provided to these agencies, reciprocal
services are received by Federal authorities.
Program Direction:
This activity consists of two programs: Executive Direction and Control and Administrative Services. Included are the executive
direction, administrative, legal, planning, inspection, and financial management functions of the FBI. Emphasis is being focused
on the relatively small, but very essential, request for enhancements for Legal Counsel and Inspections. The FBI requires five
special agent positions (two workyears) in Legal Counsel to handle forfeiture matters; two positions (one workyear) to perform
Congressional undercover operational audits, and five positions (two workyears) to conduct General Ledger and operational audits
in Inspections and $309,000 in budget authority.
J A-76 Savings:
Base-level reductions of 393 support workyears and $3,335,000 are planned in anticipation of savings as a result of A-76 Program
reviews being conducted by the FBI. The FBI is currently conducting three A-76 Program reviews in an effort to determine if the
functions in these three areas could be contracted out to the private sector at a lower cost while maintaining at least the
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current level of efficiency and effectiveness. None of the positions under study are agent positions or are investigative in
nature but include various support functions. These studies have not yet been completed; the decrease reflects an estimate of the
savings that may actually be realized based on Government experience to date.
Other Program Decreases:
Three additional program decreases were made to the following programs: Organized Crime - $3,029,000; Technical Field Support and
Equipment - $450,000; and Administrative Services - $150,000.
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Federal Bureau of Investigation
Salaries and expenses
Justification of Proposed Changes in Appropriation Language
The 1989 budget estimates include proposed changes in the appropriation language listed and explained below. New language is
underscored and deleted matter is enclosed in brackets.
Salaries and expenses
For expenses necessary for detection, investigation, and prosecution
of crimes against the United States; including purchase for police-type
use of not to exceed [2,000]?passenger motor vehicles of which 2,600
[1,650] will be for replacement only, without regard to the general pur- 1 850
chase price limitation for the current fiscal year, and hire of passenger
motor vehicles; acquisition, lease, maintenance and operation of aircraft;
and not to exceed $70,000 to meet unforeseen emergencies of a confidential
character, to be expended under the direction of the Attorney General, and
to be accounted for solely on his certificate;[$1,388,492,000]., of which $1,503,307,000
not to exceed [$10,000,000] for automated data processing and telecom- $25,000,000
munications and $1,000,000 or undercover operations shall remain available
until September 30, [198914 of which not to exceed $3,000,000 for research 1990
related to investigative activities shall remain available until expended;
[of which not to exceed $13,000,000 for the construction of the Engineering
Research Facility shall remain available until expended;] and of which not
to exceed $500,000 is authorized to be made available for making payments
or advances for expenses arising out of contractual or reimbursable
agreements with State and local law enforcement agencies while engaged in
cooperative activities related to terrorism: Provided, That the Director
of the Federal Bureau of Investigation may establish and collect fees to
process fingerprint identification records for noncriminal employment and
licensing purposes, and notwithstanding the provisions of 31 U.S.C. 3302,
credit such fees to this appropriation to be used for salaries and other
expenses incurred in providing these services: Provided further, That not
to exceed [$45,000], shall be available for official reception and repre- $70,000
sentation expenses: Provided further, That [not to exceed $8,000,000 for the expansion and renovation of the New York field office] shall remain $11,358,000 for a language
available until expended.. translation system
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 Declassified and Approved For Release 2013/02/12 : CIA-RDP90-00530R000601460001-9
I
E. J. Sharp
DIRECTOR'S APPEARANCE BEFORE THE
HOUSE- APPROPRIATIONS SOBCOMMITTEE
MARCH 22, 1988
3/9/88
PURPOSE: To submit an opening statement for the Director's
appearance before the House Appropriations Subcommittee Hearing,
for review and approval.
DETAILS: The Director's appearance before the House
Appropriations Subcommittee is scheduled for Tuesday, March 22,
1988, at 2:00 p.m. Enclosed opening statement is being submitted
for approval for use by the Director at his appearance before
captioned Subcommittee.
RECOMMENDATION: That the opening statement for the House
Appropriations Subcommittee be approved.
1 -
Mr. Otto
1 -
Mr.
Clarke
1 -
Mr. Revell
1 -
Mr.
Geer
1 -
Mr. Glover
1 -
Mr.
Sharp
1
Director's Office
Mr.
Brixey
1 - Mr. Ahlerich
1
Ms.
Pagelsen
1 - Mr. Bayse
1 -
Mr.
Davis
GMD:mef (14)
1 -
Mr.
Edwards
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 Declassified and Approved For Release 2013/02/12 : CIA-RDP90-00530R000601460001-9
DEPARTMENT OF JUSTICE
WILLIAM S. SESSIONS
STATEMENT OF THE DIRECTOR
FEDERAL BUREAU OF INVESTIGATION
BEFORE THE HOUSE APPROPRIATIONS SUBCOMMITTEE ON
THE DEPARTMENTS OF COMMERCE, JUSTICE, AND STATE,
THE JUDICIARY, AND RELATED AGENCIES
GOOD AFTERNOON, MR.CHAIRMAN. I'M GLAD TO HAVE THIS
OPPORTUNITY TO APPEAR BEFORE THE SUBCOMMITTEE AFTER SUCH A BRIEF
INTERVAL, AND I'D LIKE TO THANK YOU ONCE AGAIN FOR ALLOWING ME TO
APPEAR BEFORE THE SUBCOMMITTEE LAST DECEMBER IN SUPPORT OF OUR
1988 BUDGET.
WE ARE WELL AWARE OF THE ECONOMIC AND FISCAL PRESSURES
BEFORE US. HOWEVER, I BELIEVE THAT THE FBI WILL FACE SERIOUS
PROBLEMS IF ASKED TO ACCEPT INCREASING RESPONSIBILITIES AND
OBLIGATIONS WITHOUT ADDITIONAL RESOURCES. THE FBI'S 1988 BUDGET
HAS FORCED US TO STRIKE A VERY FRAGILE BALANCE BETWEEN THE
AVAILABLE RESOURCES AND THE ABILITY TO MEET OUR INVESTIGATIVE
RESPONSIBILITIES. BECAUSE OF LIMITED RESOURCES, TODAY THE FBI IS
OFTEN UNABLE TO ADDRESS ALL OF THE INVESTIGATIVE RESPONSIBILITIES
AT THE LEVEL WHICH I BELIEVE CONGRESS AND THE AMERICAN PEOPLE
EXPECT.
I REALIZE THAT FISCAL RESPONSIBILITY REMAINS A VITAL
CONCERN TO THE CONGRESS AND THE AMERICAN PEOPLE. THEREFORE, THE
FBI IS SUBMITTING A LIMITED BUDGET REQUEST FOR 1989 TO MEET WHAT
HAS BEEN RELENTLESS GROWTH OF OUR WORKLOAD IN ALL AREAS. WE ARE
SEEKING A MODERATE INCREASE IN AGENT PERSONNEL FOR SOME OF OUR
HIGHEST PRIORITY INVESTIGATIVE PROGRAMS. THE MAJORITY OF OUR
REQUEST IS DEDICATED TO IMPROVING THE OPERATIONAL EFFECTIVENESS
AND PRODUCTIVITY OF OUR EMPLOYEES. TO ACHIEVE THIS END, WE ARE
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 Declassified and Approved For Release 2013/02/12 : CIA-RDP90-0053OR000601460001-9
PROPOSING A NUMBER OF INITIATIVES IN THE AREAS OF AUTOMATION AND
HIGH TECHNOLOGY.
FOR FISCAL YEAR 1989, WE ARE REQUESTING A TOTAL OF
$1,503,307,000; 22,988 POSITIONS; AND 22,044 DIRECT WORKYEARS.
THIS REPRESENTS A NET INCREASE, OVER THE 1989 BASE, OF
$92,047,000;'532 PERMANENT POSITIONS; AND 71 DIRECT WORKYEARS.
MR. CHAIRMAN, I WILL NOW HIGHLIGHT TWO OF OUR
INVESTIGATIVE PRIORITIES, WHITE-COLLAR CRIME AND FOREIGN
COUNTERINTELLIGENCE, WHERE WE BELIEVE PROGRAM GROWTH IS JUSTIFIED
FOR 1989.
WHITE-COLLAR CRIME
THE FBI'S WHITE-COLLAR CRIME INVESTIGATIVE WORKLOAD
CONTINUES TO GROW UNABATED; PARTICULARLY IN THE AREAS OF
DEPARTMENT OF DEFENSE PROCUREMENT FRAUD, BANK FRAUD AND
EMBEZZLEMENT, PUBLIC CORRUPTION AND ELECTION LAW MATTERS, AND
TOXIC WASTE FRAUD INVESTIGATIONS. THE ATTORNEY GENERAL'S
ECONOMIC CRIME COUNCIL RECENTLY IDENTIFIED DEPARTMENT OF DEFENSE
PROCUREMENT FRAUD AS THE TOP WHITE-COLLAR CRIME PRIORITY. THESE
INVESTIGATIONS INVOLVE BRIBERY, IMPROPER CHARGES FOR LABOR,
DEFECTIVE PRICING, PRODUCT SUBSTITUTION, AND FALSE-TEST
CERTIFICATIONS. IN 1987, A LONG-TERM FBI INVESTIGATION OF THE
DEFENSE PERSONNEL SUPPORT CENTER IN PHILADELPHIA LED TO THE
INDICTMENTS OF NINE INDIVIDUALS AND FIVE CORPORATIONS FOR
VIOLATIONS OF FEDERAL RACKETEERING STATUTES, WIRE AND MAIL
FRAUDS, AND FALSE STATEMENTS TO THE UNITED STATES GOVERNMENT.
THESE INDICTMENTS ALLEGE THAT OVER $65 MILLION IN GOVERNMENT
CONTRACTS WERE FRAUDULENTLY AWARDED. THE FBI'S HIGHEST PRIORITY
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BANK FRAUD AND EMBEZZLEMENT INVESTIGATIONS, WHERE THE LOSS
EXCEEDS $100,000, INCREASED BY 15 PERCENT FROM 1986 TO 1987 AND
BY 127 PERCENT FROM 1982 TO 1987. FROM 1982 TO 1987, AGENT
RESOURCES ALLOCATED TO PUBLIC CORRUPTION INVESTIGATIONS -- WHICH
EXCEEDED 1,350 CASES AT THE FEDERAL, STATE, AND LOCAL LEVEL --
GREW BY 27 PERCENT. JUST ONE INVESTIGATION DURING 1987 IN NEW
YORK CITY RESULTED IN 48 SUBJECTS BEING CHARGED IN SYSTEMATIC
KICKBACK SCHEMES. A RELATED CASE IN NEWARK RESULTED IN THE
INDICTMENT OF TEN PUBLIC OFFICIALS FOR ALLEGEDLY PARTICIPATING IN
KICKBACK SCHEMES. ENVIRONMENTAL CRIME CASES EXPANDED FROM 48
CASES IN 1984 TO 168 AT THE END OF 1987. WE CURRENTLY HAVE
ENVIRONMENTAL CRIMES INVESTIGATIONS RANGING FROM ILLEGAL STORAGE,
TRANSPORTATION AND DISPOSAL OF TOXIC WASTE BY UNSCRUPULOUS
COMPANIES TO CORRUPTION OF PUBLIC OFFICIALS AND INFILTRATION OF
DISPOSAL FACILITIES BY ORGANIZED CRIME FAMILIES.
IN SHORT,-OUR REQUEST FOR OUR WHITE-COLLAR CRIME
PROGRAM TOTALS AN ADDITIONAL 119 AGENT AND 130 SUPPORT POSITIONS
AND $10.7 MILLION IN BUDGET AUTHORITY.
FOREIGN COUNTERINTELLIGENCE
WE REQUIRE ADDITIONAL RESOURCES TO COPE WITH THE
CONSTANT THREAT THAT HOSTILE ACTIVITIES OF FOREIGN INTELLIGENCE
SERVICES PRESENT TO OUR NATIONAL SECURITY. RAPID TECHNOLOGICAL
ADVANCES AND EMERGING DIPLOMATIC INITIATIVES UNDERSCORE THE
NECESSITY FOR ENHANCEMENTS TO THE FOREIGN COUNTERINTELLIGENCE
PROGRAM, WHICH IS ONE OF THE PRESIDENT'S HIGHEST-PRIORITY
PROGRAMS.
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 Declassified and Approved For Release 2013/02/12 : CIA-RDP90-0053OR000601460001-9
ALTHOUGH THE FOREIGN COUNTERINTELLIGENCE PROGRAM HAS
ENJOYED A SIGNIFICANT INCREASE IN RESOURCES OVER THE LAST FIVE
YEARS, THIS CAME TO AN ABRUPT HALT IN 1988 WHEN THE PROGRAM WAS
ACTUALLY REDUCED BY $5.3 MILLION. THE REDUCTION CAME AT AN
ESPECIALLY UNFORTUNATE TIME BECAUSE OUR RESPONSIBILITIES HAVE
ALSO GROWN SIGNIFICANTLY OVER THE LAST FIVE YEARS AND, INDEED,
CONTINUE TO GROW. FOR EXAMPLE, IN 1988 WE EXPECT A HUGE INCREASE
IN SOVIET VISITORS AND EMIGRES, AND VISITS BY SOVIET SHIPS. WE
PROJECT PERHAPS AS MANY AS 105,000 INDIVIDUALS TO ENTER THE
UNITED STATES IN 1988 AS COMPARED WITH APPROXIMATELY 96,750 IN
1987.
DURING 1987, 11 INDIVIDUALS WERE ARRESTED FOR
VIOLATIONS WITHIN THE FOREIGN COUNTERINTELLIGENCE PROGRAM. I
MIGHT ADD, THAT ONE INDIVIDUAL ARRESTED IN 1986 WAS CONVICTED OF
ESPIONAGE IN 1987. NINE ADDITIONAL INDIVIDUALS WERE CONVICTED
FOR TECHNOLOGY TRANSFER-RELATED OFFENSES, ONE OF WHOM HAD BEEN
EXTRADITED TO THE UNITED STATES IN 1986.
I WOULD NOW LIKE TO ADDRESS SEVERAL SPECIFIC AREAS OF
CONCERN REQUIRING BUDGET INCREASES FOR 1989.
CONFIDENTIAL CASE FUNDING
FIRST, CONFIDENTIAL CASE FUNDING IS THE LIFEBLOOD
NECESSARY TO DEVELOP ALMOST EVERY MAJOR FBI INVESTIGATION. THESE
RESOURCES PROVIDE ESSENTIAL FUNDING IN FAST-MOVING CASES TO PAY
FOR ITEMS SUCH AS SHORT-TERM RENTAL OF SPACE AND VEHICLES,
PURCHASE OF EVIDENCE, TELEPHONE CHARGES AND UTILITIES, AND
TELEPHONE LEASE LINES RELATED TO TITLE III SURVEILLANCES AND PEN
REGISTERS. I CAN ASSURE YOU THAT THESE EXPENSES ARE CLOSELY
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SCRUTINIZED AND APPROVED ON A CASE-BY-CASE BASIS BY SPECIAL
AGENTS-IN-CHARGE OR BY FBI HEADQUARTERS.
EXPENDITURES IN THIS AREA HAVE INCREASED FROM $3.9
MILLION IN 1982 TO.$12.3 MILLION IN 1987. WE ARE REQUESTING AN
ADDITION OF $9.1 MILLION FOR-CONFIDENTIAL CASE FUNDING TO ENSURE
THAT OUR INVESTIGATIONS'ARE NOT INHIBITED FOR LACK OF RESOURCES.
GENERAL AND SPECIAL SUPPORT POSITIONS
SECOND, AS IN PREVIOUS YEARS, THE FBI HAS A CONTINUING
NEED FOR ADDITIONAL SPECIAL AND GENERAL SUPPORT EMPLOYEES. THESE
EMPLOYEES PROVIDE CRITICAL ANALYTICAL AND TECHNICAL SERVICES TO
OUR AGENTS, PRIMARILY IN OUR MOST COMPLEX AND HIGHEST PRIORITY
CASES. THIS ENABLES US TO USE OUR VERY LIMITED AGENT RESOURCES
WHERE WE NEED THEM THE MOST, AND WHERE THEIR UNIQUE SKILLS AND
TRAINING CAN BE MAXIMIZED. TYPICAL OF THIS.CATEGORY OF SUPPORT
EMPLOYEES IS OUR REQUEST THIS YEAR FOR 36 ORGANIZED CRIME
INFORMATION SYSTEM ANALYSTS TO ENHANCE OUR DRUG INVESTIGATION
CAPABILITIES. THESE ANALYSTS WOULD BE RESPONSIBLE FOR OPERATING
THE AUTOMATED INFORMATION SYSTEMS THAT HAVE HELPED THE FBI TO
DISSECT SOPHISTICATED AND COMPLEX DRUG TRAFFICKING NETWORKS AND
OTHER ORGANIZED CRIMINAL ENTERPRISES. THE USE OF KEY SUPPORT
EMPLOYEES IS A BASIC ELEMENT OF THE FBI'S OVERALL EFFORT TO
OBTAIN THE UTMOST COST EFFECTIVENESS AND PRODUCTIVITY FROM OUR
AGENTS.
EXPERT SYSTEMS DEVELOPMENT
THIRD, ARTIFICIAL INTELLIGENCE AND THE USE OF EXPERT
SYSTEMS ARE AMONG THE MOST PROMISING PROJECTS DESIGNED TO BOOST
AGENT PRODUCTIVITY. THE SCOPE AND COMPLEXITY OF FBI
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 Declassified and Approved For Release 2013/02/12 : CIA-RDP90-0053OR000601460001-9
INVESTIGATIONS AND OPERATIONS REQUIRE CAPABILITIES BEYOND
CONVENTIONAL INFORMATION SYSTEMS. EXPERT SYSTEMS FILL
INFORMATION GAPS, SUGGEST COURSES OF INVESTIGATIVE ACTION,
PRESERVE INSTITUTIONAL KNOWLEDGE, AND FACILITATE THE DEVELOPMENT
OF INVESTIGATIVE SKILLS OF NEW AGENTS. IN 1987, EXPERT SYSTEMS
WERE INSTRUMENTAL IN THE INTER0fC'TION AND SEIZURE OF OVER 26 TONS
OF ILLEGAL DRUGS WITH A VALUE OF OVER $10 MILLION.
WE ARE REQUESTING $6,500,000 TO CONTINUE EXPERT SYSTEMS
DEVELOPMENT.
AUTOMATED IDENTIFICATION SYSTEM
FOURTH, THE AUTOMATED IDENTIFICATION SYSTEM IS THE
FBI'S LEADING PRODUCTIVITY INITIATIVE, FURNISHING IMPRESSIVE
PREMIUMS IN THE PROCESSING OF FINGERPRINT CARDS. THE AUTOMATED
IDENTIFICATION SYSTEM IS INCLUDED WITHIN THE PRESIDENT'S
PRODUCTIVITY IMPROVEMENT PROGRAM BECAUSE OF ITS POTENTIAL FOR
IMPROVING PRODUCTIVITY IN GOVERNMENT.
THE PROCESSING OF FINGERPRINT CARDS IS CRUCIAL TO THE
ENTIRE CRIMINAL JUSTICE SYSTEM, INCLUDING ALL FEDERAL, STATE, AND
LOCAL PROCEEDINGS. EXTENSIVE DELAYS IN PROCESSING CRIMINAL
FINGERPRINT CARDS CAN RESULT IN THE RELEASE OF FUGITIVES BEFORE
THEIR TRUE IDENTITIES ARE DETERMINED, INTERFERENCE WITH CRIMINAL
INVESTIGATIONS, AND OBSTRUCTIONS OF PROSECUTORIAL, JUDICIAL,
PENAL, AND PAROLE OR PROBATION ACTIONS. THE AUTOMATED
IDENTIFICATION SYSTEM WILL REPLACE MANUAL CARD AND DOCUMENT
TRANSPORTATION. WITH FURTHER DEVELOPMENT THIS SYSTEM WILL
PROVIDE AUTOMATIC FINGERPRINT CLASSIFICATION, FINGERPRINT IMAGE
RETRIEVAL, AND VOICE-ACTIVATED DATA ENTRY. THE FBI'S CURRENT
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PROCESSING TIME WILL BE REDUCED FROM 14 DAYS TO ONE DAY. A STAFF
OF SIMILAR SIZE WILL BE ABLE TO PROCESS AN ADDITIONAL 28 PERCENT
OF WORK, RESULTING IN A COST AVOIDANCE SAVINGS OF 649 ADDITIONAL
WORKYEARS BY 1997.
WE ARE REQUESTING AN ENHANCEMENT OF $6,380,000 TO
CONTINUE DEVELOPMENT AND PROCUREIMT OF EQUIPMENT FOR THIS KEY
PRODUCTIVITY INITIATIVE.
MR. CHAIRMAN, THIS CONCLUDES MY FORMAL STATEMENT;
HOWEVER, I HAVE A MORE DETAILED STATEMENT OF OUR ACTIVITIES FOR
THE RECORD. I'LL BE GLAD TO ANSWER ANY QUESTIONS YOU MAY HAVE.
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 Ml OWDecla sified a d Apppro ed For elea e 2013/02/12 :CIA-RDP90-00530R000 600 019
Federal Bureau of Investigation
Salaries and expenses
Justification of Proposed Changes in Appropriation Language (continued)
(28 U.S.C. 524; 531-37; 18 U.S.C. 3052, 3059; 22 U.S.C. 4081, 4084;
Department of Justice Appropriation Act, 1988; additional authorizing
legislation to be proposed.)
Explanation of changes
1. Language is being requested for the purchase of additional motor vehicles to support personnel increases and for operational
flexibility. This is required because the FBI has not been able to purchase the additional vehicles needed to support
investigative personnel increases over the past two years. Currently, the FBI has purchased no additional vehicles allowed
for 1988, although there is a documented need for an additional 139 vehicles. At the end of 1987, the FBI had 2,342 vehicles
which exceeded the current replacement cycle of six years or 60,000 miles. Therefore, the FBI is requesting a change in
language to allow the procurement of 1,850 replacement vehicles. For 1989, the FBI anticipates that funding will be available
to procure appproximately 1,362 vehicles, and flexibility is required in the determination as to whether to procure additional
vehicles or replacement vehicles. Therefore, a total ceiling of 2,600 vehicles is required.
2. Language is being requested in order to provide for sufficient carryover funding for multiyear automated data processing and
telecommunications projects currently underway.,
3. In 1988, $13,000,000 was requested for the construction of the Engineering Research Facility; this funding was to be
recurred in 1989. Due to the multiyear nature of major construction projects, no-year funding authority was also requested.
The FBI's 1988 appropriation did not include the requested Engineering Research Facility funding. The deletion is made
because it is not necessary for no-year spending authority to be included in the 1989 appropriation language.
4. Language is being requested to reflect an increased level of expenditures by Headquarters and the Legal Attaches for reception
and representation purposes.
5. The funding of $11,358,000 for a highly sophisticated system to assist with language translation and recording is requested as
"until expended" because of the multiyear nature of the project.
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Federal Bureau of Investigation
Salaries and expenses
Activity/Program
1. Criminal, Security, &
Other Investigations:
Crosswalk of 1988 Changes
(Dollars in thousands)
Congressional
Appropriation
1988 President's Action on
Budget Request 1988 Request
Pos. WY Amount Pos. WY Amount
a. Other Field Programs........ 9,192 8,917 $583,806 -264
b. Organized Crime ............. 2,934 2,785 162,155 -245
c. Drugs.. ....... .......... ... ... -12
d. Organized Crime Drug
Enforcement.. ........... 546 546 46,254
e. White-Collar Crime.......... 3,124 2,997 176,959 -79
Subtotal .................. 15,796 15,245 $969,174 -600
2. Investigative Support:
a. Training.................... 378 367 $26,692
b. Forensic Services-Federal... 336 325 21,117
c. ADP & Telecommunications.... 569 557 134,559
d. Legal Attaches.............. 78 76 5,977
e. Records Management.......... 1,232 1,191 43,527
f. Technical Field Support
& Equipment ................. 197 159 94.062
Subtotal.. .... ..... 2,790 2,675 $325,934
3. State & Local Assistance:
a. General Law Enforcement
Training .................... 281 273 $19,189
b. Forensic Services-
Non-Federal ... 122 119 9,123
c. Fingerprint Identification.. 2,509 2,521 86,037
d. Criminal Justice Data &
Statistics Services......... 194 189 9,130
Subtotal .................. 3,106 3,102 $123,479
10
10
34
-45
9
Reprogrammings 1988 As Enacted
Pos. WY Amount Pos. WY Amoun
-198 -$33,549 -5 -7 $1,678 8,923 8,712 $551,935
-163 -14,184 -1,014 -1,014 -57,351 1,675 1,608 90,620
-12 -2,469 1,585 1,585 104,873 1,573 1,573 102,404
-546 -546 -46,254
-39 -2,795 -24 -24 -486 3,021 2,934 173,678
-412 -$52,997 -4 -6 $2,460 15,192 14,827 $918,637
10 -$2,295 12 12 $720 400 389 $25,117
140 2 2 120 338 327 21,377
10 966 12 12 380 591 579 135,905
X -78 -76 -5,977
34 628 29 29 1,188 1,295 1,254 45,343
-10 -30,791 -1 -1 -60 151 148 63.21
1
44 -$31,352 -24 -22 -$3,629 2,775 2,697 $290,953
.74 74
11 11
87 87
$10 -10 -10 -$600 273 265 $18,599
59 ... 122 119 9,182
1,299 1 1 60 2,584 2,596 87,396
169 -1 -1 -60 204 199 9,239
$1,537 -10 -10 -$600 3,183 3,179 $124,416
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 M ~ M ~...
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Crosswalk of 1988 Changes (continued)
(Dollars in thousands)
congressional
Appropriation
1988 President's Action on
Budget Request 1988 Request Reprogrammings 1988 As Enacted
Activity/Program Pos. WY Amount Pos. WY Amount Pos. WY Amount Pos. WY Amount
4. Program Direction:
a. Executive Direction &
Control ..........511 492 $26,302 8 8 $251 .. .. -$5 519 500 $26,548
b. Administrative Services.. 771 753 29,949 -22 -21 -3 785 38 X38 1 774 787 770 27 938
Subtotal ............... 1,282 1,245 $56,251 -14 -13 $3 534 38 38 1 769 1 306 1 270 $54,486
Total .................. 22,974 22,267 $1,474,838 -518 -294 -$86,346 ... 22,456 21,973 $1,388,492
congressional Appropriation Actions
The Congress reduced requested funding by 718 positions, 494 workyears, and $86,346,000, of which 718 positions, 494 workyears and
$75,775,000 were program increases and $10,571,000 were reductions to base funding. Base level reductions were applied as
follows: automobiles - $3,000,000; and field technical equipment - $9,571,000.
Proposed Management Productivity savings of 200 positions and workyears and $2,000,000 were restored by Congress.
Reprogrammings
These reprogrammings reflect the reallocation of personnel due to increases in workload and transfers of functional
responsibilities between and among decision units, as well as management initiatives to improve organizational effectiveness and
productivity. Among major reprogramming actions were the creation of anew Drugs decision unit from resources derived from the
Organized Crime and Organized Crime Drug Enforcement decision units; the reallocation of resources from the General Crimes
decision unit to the Terrorism decision unit; the dissolution of the Legal Attaches decision unit and reallocation of these
resources among field investigative programs; the establishment of an Office of Liaison and International Affairs to centralized
activities previously assigned to several different decision units; and the implementation of a field Security Program to perform
investigations of maintenance/contract employees and to perform personnel reinvestigations.
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 M M M MW Dec a sified a d Approved F ro Relea a 2013//02/12 : CIA-RD 990-005 R0006 4600 9
Federal Bureau of Investigation
Salaries and Expenses
Summary of Requirements
(Dollars in thousands)
Perm.
Adjustments to base: Positions
1988 enacted. ................................................................................... 22,456
Uncontrollable increases .................................................................... .... ...
Decreases .......................................... .............................................
1989 Base ........................................................................................... 22,456
Estimates by Budget Activity
1. Criminal, Security, and
1988 As Enacted
Perm.
Pos. WY Amount
Other Investigations....... 15,192 14,827 $918,637
2. Investigative Support........ 2,775 2,697 290,953
3. State and Local Assistance... 3,183 3,179 124,416
4. Program Direction............ 1,306 1,270 54,486
Total 22,456 21,973 $1,388,492
1989 Base
Perm.
Pos. WY
21,973 $1,388,492
... 41,582
-18,814
21,973 $1,411,260
Increase/Decrease
Perm.
Pos. WY Amount
1989 Estimate
Perm.
Pos. WY Amount
15,192 14,827 $931,022 16,008 15,237 $996,180
2,775 2,697 297,855 2,644 2,518 319,606
3,183 3,179 127,031 3,049 3,045 132,273
1,306 1,270 55,352 1,287 1,244 55,248
22,456 21,973 $1,411,260 22,988 22,044 $1,503,307
Approp. Reimb. Total Approp, Reimb. Total Approp. Reimb.
EOY Employment
Full-time permanent.......... 22,287 1,029 23,316 22,287 1,529 23,816 22,378 1,607
Other ........................ 103 103 103 103 103
22,390 1,029 23,419 22,390 1,529 23,919 22,481 1,607
816 410 $65,158
-131 -179 21,751
-134 -134 5,242
-19 -26 -104
532 71 $92,047
23,985 91 78 169
103
24,088 91 78 169
? .
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Fbdlg Bassi of Irn+estic3atim
E ias~s
Salaries and
Summary of Resources by
(0-llais in thou ris)
Estimates
1987 As Eructed
1967 Adza1
1988 As F7lacted
L989 Base
1989 Bstinate
Pam Pem
Perm
Firm.
FEB.
F't ams
Fos.
WY
Amount
R.
WY
Amount
lbs.
WY
Amount
I.
WY Amami
R.
WY
Aaomt
Fos WY Amount
Wmina Sanity and
other In tigatons:
Offier Field Pmgr s......
8,923
8,614
$512,523
8,481
7,898
$472,619
8,923
8,712
$551,935
8,923
8,712
$553,519
9,347
8,925
$602,776
424
213
$49,257
Organized Qin ...........
1,675
1,590
83,123
1,674
1,562
96,728
1,675
1,608
90,620
1,675
1,608
92,713
1,739
1,640
94,274
64
32
1,561
[tugs .....................
1,573
1,567
94,696
1,921
1,795
97,117
1,573
1,573
102,404
1,573
1,573
107,288
1,652
1,613
110,893
79
40
3,605
White-Cb]]ar Q-ime........
3,021
2.915
158.384
3.071
2.871
152.101
3.021
2.934
173,678
3.021
2.934
177.502
3.270
3.069
188,237
249
125
10,735
Subtotal ..................15,192
14,686
$648,726
15,147
14,126
$818,565
15,192
14,827
$918,637
15,192
14,827
$931,022
16,008
15,237
$996,180
816
410
$65,158
Mmmsti atr e Support:
Training.................. 400
389
$23,896
424
413
$ 26,877
400
389
$25,117
400
389
$28,379
381
370
$28,218
-19
-19
-$161
fir` Services - Federal 338
327
19,640
338
285
18,107
338
327
21,377
338
327
21,712
319
308
21,551
-19
-19
-161
ADP & 1] .. 591
578
132,048
591
601
122,048
591
579
135,905
591
579
136,413
590
558
149,696
-1
-21
13,283
Aeocads Pianagemat........ 1,295
1,254
41,306
1,328
1,243
41,969
1,295
1,254
45,343
1,295
1,254
46,289
1,155
1,114
45,101
-140
-140
-1,188
1ldnital Field Support &
EYKipnert ............... 151
148
68.741
151
152
87.142
151
148
63.211
151
148
66.062
199
168
75.040
48
20
9.978
Subtotal .................. 2,775
2,696
$285,631
2,832
2,694
$296,143
2,775
2,697
$290,953
2,775
2,697
$297,855
2,644
2,518
$319,606
-131
-179
$21,751
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 Declassified and Approved For Release 2013/02/12: CIA-RDP90-00530R000601460001-9
Federal air em of Invtiqa~
Salaries and Hoses
&ruar of Reso~ao~ i. Pto~~ (oartirned)
(ibUats in ids)
Estimates 1987 As FYecbed
BY I.
Pos. WY Amoizt
State and Ic 1 Assistarroe:
1987 Actual 1988 As FYulad
Rs. WY Amoizt Bas. WY. Amoint
1989 awe 1989 Estimate
perm Pam Fay.
Rs. WK A>totzt Fes. WI A>~rit Fes WY Aaazt
General Ia J FM t
599
$18
273
265
837
$18
273
265
$18,837
...
...
...
i
i
273
265
756
$16
261
244
$14,262
273
265
,
,
122
119
348
9
Tra
n
ng ............
Forensic Svgs. - NarFled.
122
119
,
8,346
122
154
9,750
37
122
584
2
119
596
2
9,182
396
87
122
584
2
119
2,596
9,348
89,447
2,455
2,467
,
94,732
-129
-129
$5,285
Fir xIK-irt Idert...... 2,584
2,596
78,682
2,584
2,374
68,5
,
,
,
,
Q
imi
l Justice Data &
399
9
]99
194
356
9
5
-5
-43
m
-
75
654
7
204
199
9.239
204
199
.
.
statistics Se vices..
204
1.99
8.486
204
1
.
03
183
3
179
3
416
$124
183
3
3,179
$127,031
3,049
3,045
$132,273
-134
-134
$5,242
Subtotal ...............3,183
3,179
$112,270
3,171
2,947
$100,2
,
,
,
,
Program Directiarc
EeOi i Di ectim and
896
$28
519
500
548
$26
519
500
$27,049
531
505
$27,358
12
5
$309
Otrdznl .............
519
500
$24,446
519
492
,
716
787
770
,
27.938
787
770
28,3x3
756
739
27,890
31
31
-413
Administrative mopes
787
770
27,230
787
788
64.
612
93
306
1
270
1
486
$54
1,306
1,270
$66,352
1,287
1,244
$55,248
-19
-26
$-104
Subtotal ...............1,306
1,270
$51,676
1,306
1,280
,
$
,
,
,
044
2
307
503
$1
532
71
047
$92
Total .................22,456 21,831
$1,296,303
22,456
21,047
$1,308,523
22,456
21,973
$1,388,492
22,456
21,973
$1,411,260
22,988
,
2
,
,
,
764
1,029
1,529
1,607
78
RMjA it mWe W (WYs) 712
Total WYs ............... 22,453
21,811
23,002
23,502
23,651
149
Other WYs:
lb]iday ................... 68
Oveitime
229
2
2,229
2,258
29
AID ....................... 2,221
............ 267
Other
2,024
205
,
267
267
069
26
267
247
26
178
.........
Total Obqxensab1e WYs..... 25,009
24,106
25,569
,
,
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 M 4WDecl ssified and App oved For elease 2013/02/12 :CIA-RDP 00-005 R0006 114600 10 9
Federal Bureau of Investigation
Salaries and expenses
Justification of Program and Performance
Activity Resource Summary
(Dollars in thousands)
Activity: Criminal, Security, 1988 As Enacted
and Other Perm.
Investigations Pos. WY Amount
Other Field Programs ............ 8,923 8,712 $551,935
Organized Crime ................. 1,675 1,608 90,620
Drugs ........................... 1,573 1,573 102,404
White-Collar Crime .............. 3,021 2,934 173,678
1989 Base
Perm.
Pos. WY Amount
8,923 8,712 $553,519
1,675 1,608 92,713
1,573 1,573 107,288
3,021 2.934 177,502
1989 Estimate
Perm.
Pos. WY Amount
9,347 8,925 $602,776
1,739 1,640 94,274
1,652 1,613 110,893
3,270 3,059 188,237
Increase/Decrease
Perm.
Pos. WY Amount
424
64
79
249
213 $49,257
32 1,561
40 3,605
125 10,735
Total ......................... 15,192 14,827 918,637 15,192 14,827 931,022 16,008 15,237 996,180 816 410 65,158
This budget activity includes resources for managing and coordinating field investigations and resources for all field investigative
operations for the FBI. The operations are conducted out of 59 field offices and more than 390 resident agencies located throughout the
United States and Puerto Rico. Field offices are responsible for all investigations including the national priority law enforcement
areas of organized crime, drugs, white-collar crime, terrorism, and foreign counterintelligence. This activity also includes the field.
legal attaches program.
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 M MW Declaissified and Approved For Release 2013/02/12 :CIA-RDP90-00530R000 001460001-9
1988 As Enacted 1989 Base 1989 Estimate Increase/Decrease
Perm. Perm. Perm. Perm.
Pos. WY Amount Pos. WY Amount Pos. WY Amount Pos. WY Amount
Other Field Programs .............. 8,923 8,712 $551,935 8,923 8,712 $553,519 9,347 8,925 $602,776 424 213 $49,257
Long Range Goal: To reduce the incidence of various general criminal activities; to conduct appropriate applicant, civil rights,
and fugitive investigations as directed by law and the Attorney General; and to counter within the United States the hostile
activities of foreign intelligence officers, agents, and terrorists.
Major Obiectives:
To conduct thorough, penetrative, and timely background investigations on candidates for appointment by and employment with the
White House, the Department of Justice, including the Drug Enforcement Administration, certain Congressional committees, and other
Federal agencies.
To investigate alleged violations of various Civil Rights statutes, and provide, on a timely basis, the results of civil rights
investigations to the Department of Justice for prosecutive action or referral to another Federal agency.
To effectively recruit, process, investigate, and appoint the most qualified individuals available to meet the internal staffing
needs of the FBI, and certain categories of candidates for appointment by the Drug Enforcement Administration.
To investigate threats and assaults against, kidnapings, or assassination of the President, Vice President, executive department
heads, members of Congress, Justices of the Supreme Court, other designated Government officials, and Federal law enforcement
officers; kidnapings; incidents involving the sexual exploitation of children; extortions; crimes aboard aircraft; tampering with
consumer products; thefts of controlled substances; and other personal crimes under FBI jurisdiction.
To locate and apprehend local and state fugitives charged under the Fugitive Felon Act with unlawful flight to avoid arrest,
prosecution, or confinement for violent crimes, substantial property thefts, and drug violations; to locate and apprehend major
Federal drug offenders sought by the Drug Enforcement Administration; United States military personnel who desert under aggravated
circumstances; and to assist local and foreign police agencies in criminal investigations.
To assist Interpol in criminal investigations in those foreign countries not covered by an FBI Legal Attache. To conduct
investigations in fraud and related activities in connection with identification documents without a disclaimer.
To achieve the maximum bank robbery solution rate and most effective prosecutive results possible by providing an immediate
investigative response to reported offenses and conducting logical investigation to identify, locate, and apprehend individuals
responsible for these crimes.
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 M M M Declassified an d Approved F ro Release 2013/ 22/12: CIA-RD 990-005 R000 001460001-9 M M M M
To identify, investigate, and develop cases for prosecution against individuals and organized groups involved in thefts from
interstate shipments or engaged in the interstate transportation of stolen property, motor vehicle theft rings, other Federal
property crimes,,and the fencing of stolen goods.
To investigate serious personal and major property crimes committed on Indian reservations, in Federal correctional institutions,
and on United States Government property; thefts of United States property, funds, weapons, and explosives from Federal buildings,
supply depots, and. installations; and Selective Service Act matters. To investigate impersonation situations where a person
assumes or pretends to be an officer or employee acting under the authority of the United States.
To identify, penetrate, and neutralize activities inimical to the United States.
To prevent terrorist acts and to locate, identify, and arrest persons advocating terrorism or committing or supporting terrorists
acts.
Base Proc;ram Description: Other Field Programs is the largest investigative program in the Criminal, Security, and Other
Investigations budget activity. The program consists of a myriad of diverse investigative activities, including civil rights
-flatters, applicant matters, state and local fugitive matters, personal crimes, property crimes, crimes on Indian reservations,
thefts of. Government property, and other, security investigations.
The Civil Rights, Applicant, and Other Investigations portion of this decision unit addresses several distinct areas, including
background investigations, civil rights investigations, and FBI employment matters. The suitability and trustworthiness of
candidates for appointment to executive and managerial positions and candidates for appointment to positions which are sensitive
within the Federal Government are matters of fundamental concern for all citizens. The prompt and thorough investigation of
alleged violations of Federal civil rights statutes is basic to constitutional guarantees. In addition, the citizenry expects the
FBI to attract and employ the most qualified applicants for its internal staffing needs.
Through the Fugitive Program the FBI assists state and local law enforcement agencies seeking felons who cross state boundaries to
avoid prosecution or confinement. General Government Crimes Program investigations are directed toward serious personal and major
property crimes committed on Indian reservations and United States property, including approximately 430 major Department of
Defense installations, civilian agency buildings and sites, national parks and recreational areas, and Federal penitentiaries and
correctional facilities. General Property Crimes Program investigations focus on thefts from interstate shipment, the interstate
transportation of stolen property and/or motor vehicles, individuals and groups engaged in such activities, and fences dealing in
stolen property. The Personal Crimes Program addresses a group of offenses involving the common characteristics of threatened-or
actual injury or loss of life including threats against the President, Vice President, executive department heads, Supreme Court
Justices, members of Congress and others; bank robberies; kidnapings; extortions; tampering with consumer products; theft of
controlled substances; and aircraft hijackings and other crimes aboard an aircraft. Beginning in 1986, the Personal Crimes
Program became responsible for the investigation of matters involving the sexual exploitation of children through violations of
the White Slave Traffic Act and the Interstate Transportation of Obscene Matter statutes.
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 'and M W OW Decl ified Approved For elease 2013/ 22/12: CIA-RD 990-005 R000 001460001-9 = r
The FBI is the lead Federal law enforcement agency in the United States Government's fight against terrorism. The FBI defines
terrorism as the unlawful use of force or violence against persons or property to intimidate or coerce a government, the civilian
population, or any segment thereof in furtherance of political or social objectives. The FBI categorizes terrorism as either
domestic or international depending on origin, base, and objectives of the terrorist organization. Domestic terrorist groups
originating in the United States are pursuant under the Attorney General's Guidelines for Domestic Security/Terrorism (DS/T)
Investigations. DS/T investigations are used to assemble intelligence information on terrorist groups, but provide the safeguards
designed specifically to protect the rights of United States citizens and other persons protected by the Constitution of the
United States. FBI Headquarters personnel examine these cases to insure that the investigative procedures being utilized are in
compliance with the DS/T Investigative Guidelines.
The reactive portion of the program utilizes all the resources and techniques of the FBI to aggressively investigate and prosecute
terrorists who commit violent and/or illegal acts in the United States. The reactive portion of the program also includes the FBI
response to high risk terrorist takeovers and hostage barricade situations. To provide the President and the Attorney General
with a civilian law enforcement alternative to those of military force, the FBI has instituted and is continuing to develop and
train a Hostage Rescue Team (HRT).
The FBI Legal Attache's mission is to establish and maintain close personal liaison with all principal law enforcement and
intelligence/security services throughout designated foreign countries thereby providing the means by which FBI responsibilities
in the field can be met. The Legal Attache program provides for the prompt and continuous exchange of information and assistance
to foreign law enforcement and other agencies. By way of reciprocation, the FBI assists. cooperative foreign agencies with their
legitimate and lawful interests in the United States.
Civil Rights, Applicant and Other Investigations
Accomplishments and Workload:
Estimate
1986
1987
1988
1989
Investigative Matters Received
Reimbursable Applicant (except DEA) ........................
10,573
15,708
32,200
32,200
Nonreimbursable Applicant (except FBI Applicant) ...........
26,805
26,379
30,400
37,800
Other Investigations .......................................
10,655
4,119
4,100
4,100
Civil Rights.. . ... ..... .............
6,272
6,142
6,200
6,200
Total Investigative Matters Received ......................
54,305
52,348
72,900
80,300
FBI Applicant Matters Receive
Support Applicants Tested ..................................
4,323
15,740
14,404
4,375
Special Agent Entrance Tests Received ......................
8,301
9,848
9,464
16,500
Special Agent Language Tests Received ......................
992
1,166
1,172
1,947
Special Agent Interviews Received ..........................
2,195
2,978
2,540
6,600
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 Declassified and Approved For Release 2013/ 22/12 : CIA-RD 990-00530R000 001460001-9
1986
DEA Applications Received (Reimbursable) ................... 986
Specialty Support Applicants Processed ............... ... 385
Investigative Matters Completed
Estimate
1987 1988 1989
718 444 990
453 453 500
Reimbursable Applicant (except DEA) ........................ 10,816 15,440
Nonreimbursable Applicant (except FBI Applicant) ........... 27,267 25,624
Other Investigations ....................................... 10,572 3,806
Civil Rights . ... ...... ........ .................... 6,287 6,198
Total Investigative Matters Completed .................... 54,942 51,068
1' t Matters Handled
an
FBI A
15,930 29,850
26,000 30,240
4,100 4,100.
6,200 6,200
52,230 70,390
pU
Applicant Tests... ..... 4,323 15,740 14,404
Support sc
Specialty Applicant Cases Processed Processed......................... 385 453 453
Special Agent Entrance Tests Processed ..................... 8,301 9,848 9,464
Special Agent Language Tests Processed ..................... 992 1,166 972
Special Agent Accounting Tests Processed ................... 810 759 640
Special Agent Interviews Processed ......................... 2,195 2,978 2,540
DEA Applicant Cases Processed (Reimbursable) ............... 986 718 444
Special Agents Hired........................................ 431 789 528
Support Employees Hired .................................... 2,000 1,628 1,772
4,375
500
16,500
1,947
1,267
6,600
990
1,056
1,750
NOTE: The number of requests for background investigations requested by other agenices (except DEA) has remained relatively
constant over the past five years, averaging 3,940 requests annually. A dramatically increasing number of requests have been
received since January 1, 1987. In the six-month period ending June 30, 1987, 3,351 requests for investigations were received.
Six hundred of the increased investigation requests were anticipated. About 400 nonrecurring requests were for the staffs of the
Congressional committees investigating the Iran-Contra matter and unexpected cases from the White House. As a result of the
increased level of requests, cases pending beyond scheduled completion increased from 43 in January to 417 in June 1987, and the
inventory of cases grew from 603 to 1,455. This increase has been almost totally within the nonreimbursed category of cases, and
is attributed to increased sensitivity throughout government to security concerns, an apparent high level of personnel turnover at
client agenices, and initiatives by those agencies to meet hiring plans. The requesting agenices are being asked to provide
estimates of their request levels for future years to assist the FBI in programming resources for these investigations. Most have
indicated that their levels of requests may continue to increase.
General Crimes
1986
1987
1988
1989
Total Investigative Matters Pending From Previous Year.......
28,896
28,078
28,333
28,243
5
5
Origin Investigative Matters Received ........................
31,892
30,481
31,188
31,
9
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 M M Declassified an d Approved For Release 2013/02/12 71A-RDP90-00530R00060 446000 --9
Estimate
Item
.1986
1987
1988
1989
Auxiliary Office Investigative Matters Received
.41,952
39,063
40,508
40,740
Total Investigative Matters Received.........................
73,844
69,544
71,695
72,335
Total Investigative Matters ...............................
102,740
97,622
100,029
100,578
in Investigative Matters Completed .......................
Ori
32,297
30,483
31,150
31,658
g
Auxiliary Office Matters Completed .. ...... ...............
42,420
38,806
40,636
40,570
Total Investigative Matters Completed ........................
74,717
69,289
71,786
72,228
Complaints Filed .............................................
3,647
3,687
3,701
3,721
Informations Filed .. ............. .........................
568
634
650
679
Indictments Returned .........................................
3,863
3,646
3,751
3,772
Subjects Arrested ............................................
3,540
3,423
3,481
3,500
Subjects Located .............................................
837
829
850
880
Recoveries ($000) ............... . ... ..................
$137,779
$133,411
Potential Economic Losses Prevented ($000) ....................
$59,619
$181,855
Undercover Operations -
Group I ...................................................
23
20
22 .
24
Group II .. ... .....................................
51
50
55
58
Informant Matters Pending ... .. ....................
2,326
2,348
2,370
2,400
Federal Convictions and Pretrial Diversions ..................
4,208
4,276
4,301
4,325
Fines Levied in Federal Courts ($000) . ......................
$6,622
6,759
Local Convictions and Pretrial Diversions ....................
1,015
1,204
1,250
1,257
Fines Levied in Local Courts ($000) ..........................
$556
730
Workload Inputs
Terrorist Incidents ..........................................
17
0*
0
0
Persons Killed .............................................
1
0*
0
0
Persons Injured............................................
19
0*
0
0
Title III Requests .........................................
20
4
4
4
Initial ....................................................
7
1
1
1
Renewal .............................................'..
13
3
3
3
Workload outputs
Arrests & Locates - Domestic Terrorism .......................
113
133
138
140
Convictions - Domestic Terrorism .............................
98
87
91
109
Terrorist Incidents Prevented................................
8
4*
4
4
*Calendar year figures are actuals as of February 1, 1988.
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 M M M ! Declassified d a Approved For Release 2013/02/12 :CIA-RDP 00-005 03 R0006 1146000 --9 = . =
Legal Attaches
(Figures reflect total Legal Attaches, not only Legal Attaches/Terrorism)
Estimate
Item
1986
1987
1988
1989
Potential Economic Loss Prevented ($000) ......................
$1,003,259
$5,004,000 "
$2,000,000
$2,000,000
Investigative Matters Received ...............................
7,941
8,406
9,247
10,088
Investigative Matters Concluded ..............................
5?,710
6,050
6,655
7,260
Pending Matters ..............................................
2,231
2,356
2,592
2,828
Agencies/Contacts ............................................
230/NA
192/646
212/711
232/776
NOTE: Increases within Legal Attache workload are in response to the projected opening of offices in Brasilia, Singapore, Manila,
Madrid, Vienna, Tel Aviv, New Delhi, Brussels, Barbados, and the establishment of liaison offices in Miami and San Juan as well as
augmentation of personnel and other resources in existing offices. It is estimated that the commitment of resources would provide
for an increase in and more frequent liaison contacts as well as an increase in investigative matters handled. This increase is
estimated at 30 percent.
There were 718 DEA background investigations conducted in 1987. The Special Agent and Support Applicant Unit has the
responsibility for background investigations for Special Agents, Diversion Investigators, Intelligence Research Specialists, and
Chemists for the DEA. The hiring decision is not made by the FBI in these matters and the mission is restricted to performance of
the background investigations on a reimbursable basis for DEA.
During 1987, 3,388 background investigations were requested by other agencies (except DEA) under the nonreimbursable applicant
program. Among these were 1,065 requests from the White House (248 Presidential appointments and 817 staff) and 120 requests for
investigations on Presidential appointments to Federal judiciary, U. S. Attorney and U. S. Marshal positions. Many of these
requests were of an expedite nature. In addition, 1,550 reimbursable investigations were requested by the Department of Energy,
and 1,115 by components of the Department of Justice and the Administrative Office of the United States Courts.
On January 25, 1988, in Little Rock, Arkansas, the alleged victim of a racially motivated arson was sentenced to seven years in
prison on charges of arson, conspiracy to commit arson, and mail fraud. The FBI had initiated an extensive civil rights
investigation in September 1986, when the residence of the victim, a black United States Department of Agriculture (USDA)
employee, was burned, allegedly because he had recently won a racial discrimination suit against the USDA.
The FBI launched an intensive civil rights investigation into the confrontation which occurred January 17, 1987, between black and
white marchers in Forsyth County, Georgia and white spectators. The investigation, which included interviews of known white
supremacists in the surrounding area, is believed to have contributed to the peaceful atmosphere of the marches during the
following week and on January 16, 1988.
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 r Declassified an d Approved For Release 2013/02/12 :CIA-RDP90-00530R00060146000 --9 = Ml
"Ten Most Wanted Fugitive," Claude Lafayette Dallas, Jr., who had claimed he would not be taken alive, was arrested without
incident in Riverside, California, by FBI Agents on March 8, 1987. Dallas had escaped from the Idaho State Penitentiary in March
1986, where he was serving a 30 year sentence for the murder of two Idaho Department of Fish and Game Conservation Officers, shot
in 1981 when they attempted to arrest him for game violations.
On July 4, 1987, four inmates, including two murderers, escaped from the New Mexico State Penitentiary. The subjects abducted a
family and fled to California, where one of the subjects raped the mother and sexually assaulted the 11-year-old girl. All four
subjects were subsequently arrested on July 30, 1987, as the result of intensive investigation by FBI agents.
On December 30, 1986, Gary Willard Hambright, a teacher at the Child Development Center located on the Presidio Army Base in San
Fransisco, was charged by U.S. Army Criminal Investigative Division with sexually abusing a three-year-old boy. Due to procedural
deficiencies, this indictment was dismissed. The FBI was requested to enter the investigation; thereafter, more than 60 children
in Hambright's class were interviewed. Physical examinations determined that two children had contracted chlamydia, a venereal
disease, and two children had physical injuries consistent with sexual abuse. Hambright was indicted on Federal charges and
surrendered to Federal authorities in October, 1987.
A Memphis Field Office undercover operation, initiated in December, 1984, was a joint investigation with the Memphis Police
Department to identify, actively infiltrate, and prosecute operators of commercialized auto theft and truck stripping operations,
commonly known as '!chop shops," as well as retagging operations in the Tennessee, Arkansas, and northern Mississippi areas. In
addition, the operation attempted to identify and prosecute brokers and thieves who supply the "chop shops," as well as
individuals who participated in insurance fraud schemes by arranging for the theft of their vehicles and thereafter filing false
insurance claims. Accomplishments realized to date include 152 indictments, 143 arrests, 142 felony convictions, $3,640,000 in
recoveries (majority of which was automobiles), and $58,000 in fines. Further prosecutions are expected.
Program Changes: 1989 Base 1989 Estimate Increase/Decrease
Perm. Perm. Perm.
Pos. WY Amount Pos. WY Amount Pos. WY Amount
Other Field Programs............ 8,923 8,712 $553,519 9,347 8,925 $602,776 424 213 $49,257
Increases of 424 positions and $49,257,000 are requested for Other Field Programs. The requested increases will enable the FBI to
meet its mandated responsibilities and objectives in all critical areas. Detailed information regarding this program can be
obtained from the " Special Analysis of Field Programs Exhibit. "
Non-Reimbursable Applicant Program
The FBI experienced an unexpected increase from a relatively stable average of 2,294 nonreimbursed requests for background
investigations per year in the prior five years to 3,388 requests in 1987 -- about a 48 percent increase. About 400 of the
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 M M Declassified and Approved For Release 2013/ 22/12 : CIA-RD 990-00530R0006 11460001-9
requests were for update investigations for Presidential appointees and the White House staff and for background investigations of
the staffs of the Congressional committees investigating the Iran-Contra matter. These requests are considered nonrecurring.
When these nonrecurring cases are deducted, there was still a 28 percent increase in requests over the 2,327 requests received in
1986. Investigative requests in the first three months of 1988 are exceeding the same period of 1987 by about 35 percent. The
.FBI has conservatively estimated the 1988 investigative request level at 3,300 cases, which is only a 10 percent increase over the
recurring request level of 1987. The FBI estimates that 4,200 requests for investigation will be received in 1989 -- a general
increase of 10 percent over 1988, plus 600 investigations in 1989 associated with the Presidential transition.
While timeliness standards have been generally met in Presidential appointment (PA) cases, the increase in investigations received
in 1987 caused erosion of efforts to improve the timeliness of investigations of White House, National Security Council, and
certain Congressional committee staff members and of those conducted for Assistant United States' Attorneys, Department of Justice
positions and other non-PA matters. Additional resources are required to address the increase in investigative requests and to
prevent further deterioration of completion-time standards so that employing entities can promptly fill these often sensitive and
critical staff positions. In addition, workload data in this element shows there has been an increase in field investigative
matters received from 17,825 in 1982 to the estimated 37,800 in 1989. This reflects both the increased caseload and efforts to
expand the scope and improve the thoroughness of these investigations. There have been no significant increases in funded field
positions for this additional workload.
Reimbursable Applicant Program
Twenty reimbursable field Agent positions were transferred from the Office of Personnel Management (OPM) in 1987 to the FBI to
conduct approximately 600 BIs each year on the nonprofessional staffs of the USAs' Offices. OPM had previously conducted these
investigations. No support positions were transferred.
The Atomic Energy Act, as amended, requires the FBI to conduct background investigations on applicants and employees of the
Department of Energy (DOE) and the Nuclear Regulatory Commission (NRC) who are being considered for "Q-sensitive" clearances. By
letter dated Septmeber 22, 1986, the Department of Energy advised that it expected to increase its usual level of investigative
requests from about 1,500 per year to 3,900. Complete and comprehensive initial and periodic reinvestigations of these personnel
are absolutely necessary to ensure that national security directives and concerns are met.
The Supervisory Special Agents who supervise these cases are presently unable to complete all tasks assigned due to their program
management, case direction responsibilities, and the supervision of the current support complement. The increase in both DOE and
USAs' support staff caseload nearly doubles the workload, and the support staffing requested below would substantially increase
the personnel supervision needs.
DOE has requested an average of 1,481 investigations per year over the past five years. About 14.5 FBIHQ support positions have
been used for these investigations. Using only caseload ratios, a 163.3 percent increase in DOE case load would indicate that 38
total positions (an increase of 23.5 positions) would be needed to handle the expected increase in cases. However, caseload
ratios do not fully account for variations in the amount of work and supervision required in different kinds of cases. Most of
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the expected increase in DOE matters pertains to updating reinvestigations. Due to the fact DOE is apparently several years
behind in its update program, the investigative time span of these cases may substantially exceed the usual five-year span
normally covered by these investigaitons. To develop the most accurate forecast of resource needs, similar update investigations
were reviewed and it was determined that an increased complement of reimbursable support positions is needed to direct these
investigations.
Terrorism Legal Attaches
In recent years with new extradition, mutual assistance, prisoner exchange treaties, and new legislation in the area of terrorism,
the Legal Attache's role has become increasingly important. The Legal Attache Program is directly responsible for worldwide
investigative initiatives against terrorists, including the arrest and extradition of fugitives to stand trial for their crimes.
Eight agent positions and four support positions are requested in support of the Terrorism subprogram. This request includes one
agent and one support each for Manila, the Philippines; Madrid, Spain; Vienna, Austria; Tel-Aviv, Israel and one agent each for
New Delhi, India; Brussels, Belgium; Bonn, Germany; and London, England. A non-personnel increase of $634,000 is also requested
for operational expenses in the following Legal Attache posts: Manila, the Philippines; Madrid, Spain; Vienna, Austria; Tel-Aviv,
Israel; and New Delhi, India.
Terrorism-Legal Attaches
Personnel Request
Office
Agent Positions
Support Positions
Total
Manila
1
1
2
Madrid
1
1
2
Vienna
1
1
2
Tel-Aviv
1
1
2
New Delhi
1
...
1
Brussels
1
...
1
Bonn
1
...
1
London
1
1
Total
8
4
12
The Philippines is presently covered by Legat, Hong Kong which is staffed by one agent and one support employee and is responsible
for a territory consisting of Hong Kong, Pakistan, Indonesia, Malaysia, the Philippines, Singapore and Thailand. Thirty-one
percent of Legat, Hong Kong's caseload involves the Philippines. The establishment of a Legal office in Manila would allow for
the development of an FBI related caseload as well as to provide for expanding liaison contacts, providing for a more timely
exchange of information.
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The Legat office in Madrid, Spain would cover a territory consisting of Spain, Portugal, and North and West Africa. Legat, Paris
has handled an average of 37 cases monthly in Algeria, Andorra, Baleric Islands, Gibraltar, Liberia, Morocco, Portugal, Sierra
Leone and Spain, with 79 percent of these matters being addressed in Spain and Portugal. The region is described as a staging
area for terrorist activities in Europe, Central America and the Middle East. The Euckadi Ta Afkatasuna (Basque Fatherland and
Liberty Movement), a terrorist group dating back to 1968, has historically targeted civil guards, policemen and military officers.
At present, Austria, Lichtenstein and Switzerland are covered by Legat, Bern. Bern is staffed by two agents and two support
employees and maintains an average caseload of 152 investigative matters, 32 percent of which involve Austria. The assignment of
additional personnel in Vienna would allow for enhancing liaison contacts, development of an FBI related caseload and a reduction
in travel time expended by the Legat covering Austria on a road trip basis. Hostile intelligence agencies operate freely in
Austria, which serves as a staging area for terrorist activity in Europe.
Additional personnel in Tel-Aviv would handle a territory consisting of Israel, Turkey, Crete, Cyprus, Egypt, South and East
Africa. Legat, Tel-Aviv would serve to establish liaison with intelligence services in Jordan, Egypt, Saudi Arabia, Bahrain,
Qatar, United Arab Emirates and Oman. Terrorist organizations impacted upon would include the Amal, Hizbollah, Abu Nidal
Organizations, Al Fatah, Popular Front for the Liberation of Palestine (PFLP), and the Democratic Front for the Liberation of
Palestine (DFLP).
The United States is host to approximately 200,000 Sikhs; extremist Sikhs have allegedly been responsible for terrorist activity
including threat and extortion letters, murders, kidnapping, and assassination plots. At present, there are approximately 35
investigations pending of Sikh terrorism, and the establishment at a Legat Office in New Delhi would permit greater coverage of
that threat.
An office in Brussels would enable coverage of a territory consisting of Belgium, Luxembourg (presently covered by Legat Paris)
and the Netherlands (presently covered by Legat Bonn). The establishment of an office in Brussels would serve to reduce travel
demands placed on Legats who presently cover the Benelux countries on a road trip basis.
One Assistant Legal Attache is requested for assignment to Bonn, Germany, (for specific assignment to West Berlin) which is
currently staffed by four agents and four support employees serving a territory of Germany and the Netherlands. This Legal
Attache post has experienced an increase in agent time devoted to special terrorism cases such as the "Labelle Disco Bombing" and
the hijacking of the cruise ship "Achille Lauro." In addition, the United States Government has decided that most U.S. hostages
from the Middle East and Europe would be returned to the U.S. medical facilities in Wiesbaden, Federal Republic of Germany, for
treatment and subsequent debriefing. Legat Bonn has been tasked to help coordinate and support hostage reception and terrorist
activities. Legat, Bonn must maintain a state of readiness as well as commit resources to operational demands.
The Legat in London, which is currently staffed by four agents and four support personnel and assigned a territory consisting of
Denmark, Finland, Iceland, Norway, Republic of Ireland and the United Kingdom, has experienced an increase in terrorism
investigative/liaison activities. The requested position would permit Legat, London the flexibility to adequately respond to
increased tasking associated with current and forecasted terrorism program demands, permit the initiation of new contacts as well
as to cement existing liaison contacts.
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1988 As Enacted 1989 Base 1989 Estimate Increase/Decrease
Perm. Perm. Perm. Perm.
Pos. WY Amount Pos. WY Amount Pos. WY Amount Pos. WY Amount
Organized Crime ......... 1,675 1,608 $90,620 1,675 1,608 $92,713 1,739 1,640 $94,274 64 32 $1,561
Long-Range Goal: To eliminate the La Cosa Nostra (LCN) and other organized criminal groups as significant threats to American
society through sustained, coordinated investigations that support successful prosecutive action.
To effect, maintain and enhance liaison with friendly foreign police and intelligence agencies in support of FBI Headquarters and
field offices in their management of the FBI's responsibilities.
Major Objectives:
To penetrate the hierarchy of the LCN by identifying the leadership and membership of these groups in an effort to determine their
complicity in criminal activity as well as determine the extent of interrelationships among the LCN families and thereby develop
successful prosecutions for specific violations of Federal Statutes, including the Racketeer Influenced and Corrupt Organizations
(RICO) and the Continuing Criminal Enterprise (CCE) statutes.
To further determine the extent of influence and control the LCN has established within the legitimate labor union community in
the United States; continue to pursue investigation against the LCN through an aggressive and successful Labor Racketeering
Program within the FBI that will eliminate this control and have a lasting and positive impact upon the nation's economy.
To continue the enhancement and installation of the Organized Crime Information System (OCIS) in field locations which will enable
the FBI to collate the vast quantity of information concerning organized criminal activity so that complex associations between
members of organized criminal groups may be identified.
To utilize the civil provisions of the RICO statute in order to rid the labor movement of the debilitating influence of the LCN
while simultaneously removing a major financial and political resource of the LCN.
To develop and maintain a national intelligence base which will consist of quality, high level informants to penetrate the
organizational structure and operations of organized crime groups; cooperating witnesses to provide first hand testimony as to the
day-to-day operations of these illegal organizations and sponsor their subsequent entry into the Witness Security Program if
necessary; and liaison efforts with other Federal, state, local, and foreign law enforcement agencies.
To provide overall coordination and management oversight of efforts relating to the use of sophisticated and sensitive
investigative techniques including court approved Title-III intercepts, consensual monitorings, undercover operations, aircraft
surveillances, physical surveillances, and to perform a wide variety of administrative and investigative support functions.
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To improve through active participation the level of cooperation between foreign agencies and the FBI on matters relating to
Organized Crime responsibilities.
To expand existing liaison internationally as necessary to support the increasing investigative responsibilities of the FBI.
Base Program Description: The primary focus of this decision unit is the illegal activities of the LCN. The LCN, as well as
other organized criminal groups such as the emerging Asian Organized Crime groups in the U.S., affect the social, financial, and
political framework of American society by directing and/or becoming involved in labor racketeering, corruption of public
officials, illegal infiltration of legitimate business, loansharking, illegal gambling, and gangland slayings. There are few
businesses or industrial sectors in American society that are not affected by organized crime groups.
Recent investigations focusing on the criminal activities of the 25 LCN families have developed intelligence information which
reinforces previous information that indicated many of the unions within the United States are being influenced or directed in an
illegal manner by the LCN. The evidence presented in these'cases has demonstrated that the LCN's influence in labor unions allows
for the disruption of the competitive free market in various industries such as concrete, construction, trucking, and the air
freight industry.
The recent successes against the LCN can be attributed to the evolution of the Enterprise Theory of Investigation. This approach
requires that separate investigations conducted against individual members of a specific group or family be combined for
prosecution, using both the civil and criminal provisions of RICO. Under this approach, the group or family is named as the
enterprise. Convictions on this basis result not only in significant periods of incarceration, but provide for the seizure of
assets accumulated by the enterprise through its illegal activity, and can prohibit members of the enterprise from associating
with corrupted labor unions, infiltrated businesses, compromised institutions, or even with other members.
Organized crime investigations require numerous techniques which have proved to be resource intensive and extend over lengthy
periods of time, as can be seen in the accomplishments. In order to penetrate the close knit, secretive organizations, such as
the LCN, the FBI employs a variety of sophisticated investigative techniques, such as, court ordered electronic intercepts, long-
term undercover operations; extensive physical surveillance, including the use of aircraft; high echelon, quality informant
coverage; and cooperating witnesses. In addition, the FBI's Organized Crime Program complements its investigative efforts and
maximizes its investigative resources by providing FBIHQ and field locations with computer based capabilities via OCIS. OCIS
personnel assist in the collection, collation, analysis, and dissemination of investigative information relative to organized
crime matters. Within OCIS, particular emphasis is placed upon link analysis of relationships which exist between or among
organized crime groups and/or between corrupt organizations and union officials or business leaders or public officials.
Within this decision unit is the Investigative Support Program, which provides witness security protection, aircraft support,
coordination of undercover operations, Special Operations Groups/Off Premise Sites (SOG/OPS), as well as a myriad of
administrative activities that support all- FBI investigative decision units. Aircraft surveillance enables discreet contact with
a moving target even though the target is using evasive maneuvers to elude surveillance and allows for accompanying ground units
to be clear of the target, where ground units might be unable to get close enough to observe the target without detection. The
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undercover technique has opened avenues of investigative pursuit not available in the context of the traditional investigative
process. Undercover agents have the ability, in certain situations, to penetrate the highest levels of criminal activity. The
undercover technique also allows for more effective and safer use of sources and informants, in that the information obtained from
the undercover operative may preclude the necessity for sources/ informants to testify in court. SOG/OPS are used to support the
integrated functions of surveillance, tactical mobility, undercover operations, sensitive and complex Title III electronic
surveillance installations, and the tracking of extremely sensitive and surveillance-conscious subjects.
The FBI Legal Attache's mission is to establish and. maintain close personal liaison with all principal law enforcement and
intelligence/security services throughout designated foreign countries thereby providing the means by which FBI responsibilities
in organized crime are met efficiently, effectively, and expeditiously. The Legal Attache program provides for the prompt and
continuous exchange of information and assistance to foreign law enforcement and other agencies. By way of reciprocation, the FBI
assists cooperative foreign agencies with their legitimate and lawful interests in the United States.
Accomplishments and Workload: The statistical accomplishments and estimates for the Organized Crime Program are presented in the
Estimate
Item 1986 1987 1988 1989
Field Investigative Matters Handled .......................... 5,751 5,499 5,740 5,991
Title IIIs Initiated .. . ............................... 58 34 46 56
Organized Crime Informants Matters ........................... 2,849 2,697 2,816 2,940
Informations and Indictments ................................. 913 760 817 877
Convictions/Pre-trial Diversions .............................. 612 679 729 782
OCIS:
Offices Requiring OCIS Personnel ............................. 41 52 56 56
Pending Cases:
With Data Entered Into OCIS ............................... 2,168 2,207 2,304 2,316
No Data Entered Into OCIS ................................. 3,583 3,292 3,436 3,675
Title III Records (*):
Entered Into OCIS ........................................ 19,347 4,773 6,000 6,426
Not Entered Into OCIS (Estimated) ........................ 107,700 69,687 94,740 94,924
Backlog of Data Entry in Days .......................... 14,244 15,435 16,732 18,137
Equivalent Number of Workyears Needed
to Reduce Backlog (beyond 117 funded) ......................... 55 59 64 70
*OCIS data concerning Title III records includes both the Organized Crime and Drug Programs.
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