THE TWO PRINCIPAL FUNCTIONS OF BORDER CONTROL ARE INSPECTION OF PERSONS AND GOODS AT PORTS OF ENTRY AND PATROLLING BETWEEN PORTS TO PREVENT SURREPTITIOUS ENTRY. THE PRINCIPAL AGENCIES INVOLVED IN THESE KEY FUNCTIONS ARE THE U.S. CUSTOMS SERVICE AND THE IMMIGRATION AND NATURALIZATION SERVICE, WITH OTHER AGENCIES PROVIDING SUPPORT AND SPECIALIZED SKILLS IN THEIR AREAS OF RESPONSIBILITY. IN THE PROBLEM ANALYSIS, TWO MAJOR ISSUES WERE IDENTIFIED: OVERALL LACK OF COORDINATED BORDER MANAGEMENT AND THE OVERLAP AND DUPLICATION OF EFFORT IN THE PRINCIPAL BORDER CONTROL FUNCTIONS. THE PRINCIPAL DUPLICATION WAS FOUND IN THE PATROLLING BETWEEN LAND PORTS OF ENTRY AND IN THE PRIMARY INSPECTION AT PORTS OF ENTRY. MASSIVE WORKLOADS AND DUPLICATE MANAGEMENT SYSTEMS ARE REPORTED TO COMPOUND THE PROBLEMS. OPTIONS FOR DEALING WITH THESE PROBLEMS ARE CONSIDERED, RANGING FROM ASSIGNING BUDGET PRIORITY TO SELECTED FUNCTIONS TO CREATION OF AN EXPANDED BORDER MANAGEMENT AGENCY. A REVISED MANAGEMENT STRUCTURE IS NEEDED, WHICH CAN ACHIEVE MAXIMUM EFFECTIVENESS WITH AVAILABLE RESOURCES, RESPOND TO CHANGING PRIORITIES, AND PROVIDE ADEQUATE BORDER CONTROL, AS WELL AS BETTER SERVICE TO THE PUBLIC. CONSOLIDATION OF THE CUSTOMS SERVICE AND THE IMMIGRATION AND NATURALIZATION SERVICE INTO A BORDER MANAGEMENT AGENCY IS RECOMMENDED TO PROVIDE CENTRAL MANAGEMENT OVER THE KEY BORDER FUNCTIONS AND RESOURCES. CRITERIA ARE SUGGESTED FOR MINIMIZING OPPOSITION AND TURBULENCE THAT MIGHT ATTEND REORGANIZATION. COMMENTS RECEIVED FROM THE DEPARTMENTS AND AGENCIES INVOLVED IN BORDER OPERATIONS GENERALLY AGREE WITH THE FINDINGS, BUT LACK CONSENSUS ABOUT WHICH DEPARTMENT SHOULD HAVE RESPONSIBILITY FOR A NEW BORDER MANAGEMENT AGENCY. (RCB)