U.S. Department of Justice
Office of the Attorney General
U.S. DEPARTMENT OF JUSTICE
Fiscal Year 1999
Annual Accountability Report
March 31, 2000
This report is on the DOJ web site at www.usdoj.gov.
This Annual Accountability Report highlights the diverse activities and major
accomplishments of the Department of Justice (the Department) in fiscal year
1999, reflecting the continued dedication and expertise of our employees and
their commitment to the principles of justice and fair treatment for all Americans.
This is the second year that the Department has consolidated statutory reporting
requirements in an accountability report. This year's report also includes our
first statement of performance in compliance with the Government Performance
and Results Act.
In closing the twentieth century, the Department of Justice proudly reports
that crime has continued its steady decline for the seventh straight year in
a row. Preventive and responsive law enforcement programs; investments in crime-fighting
technologies; and greater cross-boundary cooperation at the federal, state,
and local levels have made America a safer and more secure society.
We helped create safer streets and communities in FY 1999. The Office of Community
Oriented Policing Services brought the ranks of funded community police officers
to 103,720, exceeding the President's goal to fund 100,000 cops by the year
2000. A new, automated FBI fingerprint system was put in place to allow law
enforcement agencies to transmit fingerprint information electronically, replacing
a manual card system and drastically reducing the response time for criminal
cases. Tribal communities received 189 grants to improve law enforcement infrastructure
and community policing in Indian Country.
We also renewed our commitment to protect the country's borders and national
security. We established a Five-Year Counterterrorism and Technology Crime Plan,
and the INS continued to strengthen border enforcement while also improving
its naturalization process. Strengthened interagency and international cooperation
in the war against drugs brought about several aggressive high-impact campaigns
targeting illegal supply networks. At the same time, the Department supported
more community-based approaches to reducing demand and use on America's streets.
Also, this year, I am pleased to provide reasonable assurance that our management
control and financial systems, taken as a whole, met the objectives of Sections
2 and 4 of the Federal Managers' Financial Integrity Act. While we still have
a number of material challenges to resolve, the Department is steadily improving
in this area.
As we begin the twenty-first century, we expect our history of achievement
to provide a strong basis for the Department to effectively deal with the challenges
Table of Contents
- DOJ Organizational Chart
- Results in Brief
- Part I: Program Performance
- Part II: Financial Performance
- Chapter VIII Audit Report
Consolidated Audited Financial Statement
- Commentary and Summary
- Managements Overview
- Independent Accountants Reports
- Report of Independent Accountants
- Report of Independent Accountants on Internal Controls
- Report of Independent Accountants on Compliance with Laws and
- Annual Financial Statement
- Consolidated Balance Sheet
- Consolidated Statement of Net Cost
- Consolidated Statement of Changes In Net Position
- Combined Statement of Budgetary Resources
- Combined Statement of Financing
- Combined Statement of Custodial Activity
- Notes to the Principal Financial Statements
- Supplemental Financial and Managements Information
- Consolidated Stewardship Information
- Consolidated Deferred Maintenance
- Consolidated Intra-governmental Assets
- Consolidated Intra-governmental Liabilities
- Consolidated Intra-governmental Earned Revenue and Related Cost
- Consolidating Balance Sheet
- Consolidating Statement of Net Cost
- Consolidating Statement of Changes in Net Position
- Combining Statement of Budgetary Resources
- Combining Statement of Financing
- Audit Division Analysis and Summary of Actions Necessary to
Close the Report
Overview of the Department of Justice
This report provides the President, the Congress, and the American people an
accounting of the programmatic and financial performance of the Department of
Justice (the Department) during fiscal year (FY) 1999.1
It gives a succinct report on what we have achieved and where we need to improve.
It is submitted as a consolidated response to various statutory reporting requirements,
including those of the Government Performance and Results Act (GPRA) of 1993
(P.L.103-62), the Federal Managers Financial Integrity Act (FMFIA) of
1982 (P.L. 97-255), the Government Management Reform Act of 1994 (P.L.103-356),
and the Anticounterfeiting Consumer Protection Act.
Mission: To enforce the law and defend the interests of
the United States according to the law, to provide Federal leadership in preventing
and controlling crime, to seek just punishment for those guilty of unlawful
behavior, to administer and enforce the Nations immigration laws fairly
and effectively, and to ensure fair and impartial administration of justice
for all Americans.
To carry out the Departments mission, the Attorney General directs the
activities of more than 123,000 attorneys, investigators, Border Patrol agents,
deputy marshals, correctional officers, and other employees. Although headquartered
in Washington, DC, most of the Departments work takes place outside Washington.
As a result, the majority of our employees work in any one of more than 2,700
Justice installations around the country and in one of more than 120 foreign
The Departments organizational chart, which follows, shows the component
organizations that carry out most of the Departments day-to-day work.
The major components ("bureaus") include the U.S. Attorneys (USAs),
the Federal Bureau of Investigation (FBI), the Drug Enforcement Administration
(DEA), the Immigration and Naturalization Service (INS), the United States Marshals
Service (USMS), the Federal Bureau of Prisons (BOP), and the Office of Justice
Programs (OJP). Among the offices, boards, and divisions, there are the legal
divisions (Antitrust, Civil, Civil Rights, Criminal, Environment and Natural
Resources, and Tax), the Community Oriented Policing Services (COPS) Office,
and the Justice Management Division. Appendix D contains individual mission
statements for the components.
For FY 1999, the Department received an appropriated and fee-funded budget
totaling approximately $21 billion (P.L. 105-277, 106-31, 106-51), a 4.9-percent
increase over the FY 1998 budget. Most of this increase went toward funding
additional immigration and detention and incarceration initiatives.
Part I of this report summarizes 1999 program results. In accordance with GPRA, it reports
the actual levels of performance achieved compared to specific targets identified
in our 1999 Summary Performance Plan.2 Where appropriate, this report also provides other descriptive information
in order to give a richer and more complete picture of the activities and results
achieved during the year. In compliance with FMFIA, it identifies major management
challenges and describes our progress toward their resolution.
Part I is organized according to the seven Core Functions set forth in the
Departments Strategic Plan.3 The Strategic
Plan provides the overarching framework for the Departments performance
planning and reporting activities. Within each Core Function, the report is
further subdivided according to our long-term Strategic Goals and specific 1999
Performance Goals. Actual results for 1999, as well as for 1997 and 1998, are
provided in tabular form, with data sources included. (More detailed data source
and data reliability information is provided in Appendix E.) Where we did not
meet planned levels of performance, an explanation is provided. The first part
of the document also includes a discussion of summary findings of FY 1999 program
This is the first year of performance reporting under GPRA. Preparing the report
has helped focus our attention on improvements needed in the scope, utility,
and clarity of our goals and indicators in a number of areas. Some of these
improvements have already been incorporated in our Summary Performance Plan
for FY 2001; others will be implemented over time.
The task of developing measurable goals and valid and useful indicators is
a challenging one. In the law enforcement arena, it is complicated by the inherent
difficulty of measuring the preventive and deterrent effects of our work. It
is also complicated by the risks associated with setting targets that may unwittingly
and adversely skew performance. Our "bottom line" is justice. It is
not achieving particular numbers of arrests, indictments, convictions, or asset
seizures. Therefore, in accordance with departmental policy, no targets were
set for these activities in our 1999 or subsequent performance plans; however,
actual 1999 figures are provided in this report4.
Part II of the report describes the Departments financial performance
during 1999. It includes the Departments 1999 consolidated financial statement,
the report of the independent auditors, and the summary and commentary prepared
by the Departments Inspector General.
Five appendices include (A) a glossary of abbreviations and acronyms used in
this report, (B) a summary of criminal caseload statistical reports on intellectual
property crimes, (C) a list of Justice component web sites, (D) the mission
statements of individual Justice components, and (E) data source and data validation
information to support performance indicators.
This report is on the Departments web site at www.usdoj.gov.
Results in Brief
- In 1999, serious crime continued its downward trend, due in part to the
collaborative efforts of the Department of Justice and other Federal, state,
and local law enforcement agencies (see Figure 1).
Seven Year Drop in Crime
- In one of the most complex and successful multi-agency and multijurisdictional
investigations ever, the Department substantially diminished the ability of
the Amado Carillo Fuentes organization to move cocaine and other drugs into
and around the United States. Termed Operation "Impunity," the investigation
netted the arrests of three cell heads operating in the United States and
90 of their subordinates. It disabled all facets of the Fuentes organization,
headquartered in Juarez, Mexico, including its drug and money transportation
systems and the local U.S. distribution groups (see Figure 2).
- A joint U.S.-Colombian investigation, Operation "Millennium,"
disrupted a consortium of trafficking networks responsible for shipping vast
quantities of cocaine from Colombia through Mexico and into the United States.
Among those arrested by the Colombian government was drug kingpin Alejandro
Bernal-Madrigal, believed by law enforcement officials to be one of the most
significant international drug traffickers and money launderers presently
operating (see Figure 2).
Major Drug Trafficking Organizations Disrupted
- The FBI continued its successful assault on organized crime, reducing membership
in La Cosa Nostra by about 18 percent and dismantling four Asian and three
Russian criminal enterprises.
- In 1999, USAs continued to prosecute the most violent criminal offenders
under the Anti-Violent Crime Initiative and through the enhanced criminal
provisions of the Violent Crime Control Act of 1994. They filed a total of
7,392 violent criminal cases against 9,175 offenders during 1999, a 7-percent
increase over the number of cases filed in 1998.
- The FBI launched the Innocent Images National Initiative to address on-line
child pornography and child sexual exploitation, the most significant and
fastest growing crime problem involving children. The FBI also found and safely
returned home 90 children who had been abducted.
- FBI Safe Streets Task Forces (SSTFs) and DEA Mobile Enforcement Teams (METs)
continued to help local communities deal with drug-related violence. In 1999,
there were 170 SSTFs and 53 new MET deployments.
- The OCDETF program continued its focus on targeting drug trafficking organizations,
including foreign-based organizations or those with connections to them. These
organizations are responsible for the importation of most of the illegal narcotics
sold in the United States. In FY 1999, based on data submitted for the first
6 months of the fiscal year, 30 percent of OCDETF investigations targeted
Mexican drug trafficking organizations or organizations connected to them;
11.2 percent targeted Colombian drug trafficking or related organizations;
and 8.9 percent targeted Caribbean-based organizations or related groups.
- The FBIs National Instant Criminal Background Check System denied
firearm purchases to more than 60,000 people, who were disqualified for having
criminal histories, dishonorable discharges, or restraining orders (see Figure
3). Since the Brady Law went into effect in 1994, an estimated 470,000 persons
have been denied firearms, based on checks conducted at the Federal or state
Brady Law Background Check Results
- OJP awarded about $4.3 billion to jurisdictions in all 50 states and U.S.
territories. Funds supported state and local programs; the Crime Victims Fund;
juvenile justice programs; research, evaluation, and demonstration activities;
Weed and Seed programs; criminal justice statistical activity; and the Public
Safety Officers Benefits program (see Figure 4).
FY 1999 Office of Justice Programs Awards
- The Department began the process of establishing a new National Domestic
Preparedness Office in the FBI to coordinate the Nations planning and
preparation for responding to terrorist attacks, including the possible use
of weapons of mass destruction.
- The FBI successfully transitioned from its old manual fingerprint card
system to a new Integrated Automated Fingerprint Identification System. The
new system allows law enforcement agencies to transmit fingerprint information
electronically and drastically reduces average response time for criminal
casesfrom days to 2 hours. The FBI also successfully implemented its
new National Criminal Identification Center.
- A new Safe Schools/Healthy Students Initiative was launcheda joint
undertaking of the Departments of Justice, Education, and Health and Human
Servicesto provide funding to help communities prevent school violence
and promote healthy child development. The Departments of Justice and Education
also joined forces with the Department of Energy to produce a guidebook for
local school and law enforcement officials on The Appropriate and Effective
Use of Security Technologies in U.S. Schools.
- In one of the most significant antitrust cases ever, the Departments
Antitrust Division obtained after-trial findings from the court supporting
our claims against Microsoft Corporation.
- The Department met the Presidents goal of funding an additional 100,000
community police officers to help protect Americas communities (see
Community Oriented Policing Services
- The Department won the largest environmental case ever under the Clean
Air Act, resulting in a record fine of $83.4 million and a settlement that
will prevent 75 million tons of nitrous oxide (NOx) air pollution over the
next 27 years and reduce by one-third the total NOx emissions from diesel
engines by 2003.
- The Department filed a civil lawsuit against the largest cigarette companies
in an effort to recover billions of dollars spent by the Federal Government
each year on smoking-related health care costs.
- The Antitrust Division, through its international cartel enforcement program,
brought in historic, record criminal fines totaling more than $1.1 billion,
including a $500 million fine against one of the largest vitamin manufacturers
in the world.
- INS cut the average processing time from 28 months to 12 months and completed
more than 1.2 million applications for naturalization, including 872,000 persons
sworn in as new naturalized U.S. citizens.
- INS' Operation "Seek and Keep," a year-long multiagency investigation,
resulted in the dismantling of the most complex alien smuggling ring ever
encountered by Federal authorities. This illegal, dangerous, and exploitive
activity grossed an estimated $220 million over 3 years. Eighteen alien smugglers
have accepted guilty pleas and are now out of business.
- The INS deported 62,838 criminal aliens. Since 1995, the number of criminal
aliens deported each year has increased by an average of 19 percent (see Figure
Criminal Aliens Removed from the United States
- The Department successfully surmounted its biggest computer issue everY2K
preparationand experienced no incidents related to the New Millennium.
- The Department made significant progress in improving its financial management.
In 1999, independent auditors gave unqualified opinions on 9 out of 10 of
our reporting entities. INS received a qualified opinion.
- In 1999, the Departments law enforcement efforts resulted in more
than $610 million being forfeited from criminals and criminal activity, undermining
the economic motivation and the financial base of criminal organizations and
activities. This money was deposited into the Asset Forfeiture Fund, and the
Department distributed some of those assets to state and local law enforcement
agencies participating in the underlying criminal investigations. In this
way, criminals, not taxpayers, help foot the bill for law enforcement.
- The Department continued to experience increases in numbers of persons
detained, with an average daily population of 32,119 in USMS custodyan
11.9-percent increase over FY1998 and 16,563 in INS custodya 12-percent
increase over FY 1998 (see Figure 7).
Average Daily Detention Population in Custody
- The Federal prison population also continued to grow. At the end of 1999,
there were 133,047 persons (not including 642 INS prisoners in Eloy) in BOP
custody, an increase of 10,731 since 1997. The overcrowding rate systemwide
rose from 22 percent in FY 1997 to 31 percent in FY 1999. In medium security
institutions, it climbed from 37 percent in FY 1997 to 51 percent in FY 1999.
While the high-security inmate population continued to climb, the overcrowding
rate dropped slightlyfrom 52 percent in 1997 to 50 percent in FY 1999as
new penitentiaries came into use (see Figures 8 and 9)
Bureau of Prisons Inmate Population*
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