$1B later, just one form is online

Heaving under mountains of paperwork, the government has spent more than $1 billion trying to replace its antiquated approach to managing immigration with a system of digitized records, online applications, and a full suite of nearly 100 electronic forms.

A decade in, all that officials have to show for the effort is a single form that's now available for online applications and a single type of fee that immigrants pay electronically. The 94 other forms can be filed only with paper.

This project, run by U.S. Citizenship and Immigration Services, was supposed to cost a half-billion dollars and be finished in 2013. Instead, it's now projected to reach up to $3.1 billion and be done nearly four years from now, putting in jeopardy efforts to overhaul the nation's immigration policies, handle immigrants already seeking citizenship, and detect national security threats, according to documents and interviews with former and current federal officials.

From the start, the initiative was mismanaged, the records and interviews show. Agency officials did not complete the basic plans for the computer system until nearly three years after the initial $500 million contract had been awarded to IBM, and the approach to adopting the technology was outdated before work on it began.

By 2012, officials at the Department of Homeland Security, which includes USCIS, were aware that the project was riddled with hundreds of critical software and other defects. But the agency nonetheless began to roll it out, in part because of pressure from Obama administration officials who considered it vital for their plans to overhaul the nation's immigration policies, according to the internal documents and interviews.

Only three of the agency's scores of immigration forms have been digitized - and two of these were taken offline after they debuted because nearly all of the software and hardware from the original system had to be junked.

The sole form now available for electronic filing is an application for renewing or replacing a lost "green card" - the document given to legal permanent residents. By putting this application online, the agency aimed to bypass the highly inefficient system in which millions of paper applications are processed and shuttled among offices. But government documents show that scores of immigrants who applied online waited up to a year or never received their new cards, disrupting their plans to work, attend school, and travel.

"You're going on 11 years into this project, they only have one form, and we're still a paper-based agency," said Kenneth Palinkas, former president of the union that represents employees at the immigration agency.

DHS officials acknowledge the setbacks but say the government is well on the way to automating the immigration service, which processes about eight million applications a year. The department has scrapped the earlier technology and development method and is now adopting a new approach relying in part on cloud computing.

"In 2012, we made some hard decisions to turn the Transformation Program around using the latest industry best practices and approaches, instead of simply scratching it and starting over," said Shin Inouye, a spokesman for Citizenship and Immigration Services. "We took a fresh start - a fix that required an overhaul of the development process - from contracting to development methodology to technology."

"Since making these changes, we have been able to develop and deploy a new system that is able to process about 1.2 million benefit requests out of USCIS's total annual work volume," Inouye added. "Our goals remain to improve operations, increase efficiency, and prepare for any changes to our immigration laws. Based on our recent progress, we are confident we are moving in the right direction."

Other DHS officials emphasized that if Congress passes immigration reform in the near future, they would have an electronic system that could accommodate any significant changes, including a surge in demand from immigrants seeking legal status. Until then, immigrants and their lawyers say they will remain hugely frustrated by the government's archaic, error-plagued system. Processing immigration applications now often involves shipping paper documents across the country, and delays are legend. A single missing or misplaced form can set back an approval by months.

When the electronic immigration system began in May 2012, it was hailed as "a significant milestone in our agency's history" by the USCIS Director Alejandro Mayorkas, who is now the deputy secretary of homeland security.

The first form that went live was intended for foreigners who were in the United States on certain types of visas who wanted to renew their non-immigrant status. But only a fraction of applicants ever used that form before the agency took it offline, after officials decided to abandon the initial technology and development method and move toward a cloud-based system.

The second form, released in 2013, didn't fare much better. It was designed to allow a certain group of foreigners - those wanting to immigrate to the United States and invest in a business - to apply electronically. Only about 80 people used the online form, DHS officials said. More than 10,000 others opted for old-fashioned paper. It was also pulled.

The third form, which debuted last year, is the one that would allow permanent residents to renew or replace their green cards online. In nearly 200 cases, applicants did not receive their cards or had to wait up to a year, despite multiple requests, according to a June report from the USCIS ombudsman.

The agency also hoped to make it possible for immigrants to pay fees online. There are more than 40 kinds of filing fees that immigrants pay to the government with their applications. As of now, however, only one can be paid online - by those who immigrate to the United States as lawful permanent residents. And even this limited electronic payment system has encountered major problems, such as resistance from immigrants who have trouble because they may not have computers or bank accounts.

The Government Accountability Office has blasted the immigration service for shoddy planning, saying the agency awarded the IBM contract "prior to having a full understanding of requirements and resources needed to execute the program." As a result, basic planning documents were incomplete or unreliable, including cost estimates and schedules.

IBM had as many as 500 people at one time working on the project. But the company and agency clashed. Agency officials, for their part, held IBM responsible for much of the subsequent failure, documents show.

An IBM spokesman declined to address the criticisms, saying that the company's work on Transformation concluded in May.

DHS officials said they are confident that the current paper-based system is not putting the nation at risk.

But others, like Palma Yanni, a Washington immigration lawyer and past president of the American Immigration Lawyers Association, are dubious. "If there are some bad apples in there who should not get a green card, who are terrorists who want to do us harm, how on earth are they going to find these people if they're sending mountains of paper immigration files all over the United States?" Yanni asked.