Summary The events of September 11 brought the Immigration and Naturalization Service (INS) to the forefront of the nation’s attention. Although all 19 hijackers entered the country legally, three overstayed their visas. And, on March 11, 2002, INS sent student visa notifications for two of the (now deceased) 19 hijackers to the aviation school they attended, provoking an intensification of long-standing criticism of INS for weak management controls, among other things. An underlying theme of criticism concerns what many believe are overlapping and unclear chains of command with respect to INS’s service and enforcement functions. There appears to be a consensus among the Administration, Congress, and commentators that the immigration system, primarily INS, is in need of restructuring. There also appears to be a consensus among interested parties that INS’s two main functions — service and enforcement — need to be separated. There has not been a consensus, however, with regard to how the restructuring should take place.