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11 districts abysmal service Accounting Office agency's Alexis de Tocqueville applications Ascencio Commission assume Border Patrol agents Cato Institute Center for Equal Clinton Administration computer database computer file Congress controlling illegal immigration culture of failure Customs Service December 11 deportation program deporting illegal immigrants district director district offices dramatic drug-sniffing dogs effective El Paso eliminated embassies employees entering the country federal agencies Federal Immigration Agency federal immigration bureaucracy fees Harold Rogers headquarters Houston Chronicle Immigration and Naturalization immigration examinations immigration functions Immigration Law Report immigration policy immigration reform proposals implemented improve INS's inspectors Interpreter Releases Interview with author Investigations Division January John O'Leary JUFFRAS law enforcement functions millions of dollars mismanagement National National Immigration Forum Naturalization Service operation organizational Paso Paul Hill percent petitions problems regional offices responsible September 11 structure tens of millions thousands U.S. citizens visas Warren Leiden Washington Post workers