	Background

		CBP and ICE Roles and Responsibilities

DHS is responsible for securing U.S. borders, in collaboration with other  federal, state, local, and tribal entities. Overview of DHS Border Security and Immigration TACCOM Programs

CBP and ICE have separate modernization efforts under each  component’s respective TACCOM program. DHS Components Have Taken Steps to Upgrade Tactical Communications Equipment and Infrastructure, but Could Benefit by Developing Performance and Program Plans

		CBP Has Completed Most TACCOM Modernization Projects in Southwest Border Locations, but Could Benefit from Developing a Performance Monitoring Plan

From 2009 through 2013, CBP completed full modernization projects in 4  of the 9 sectors that constitute the southwest border. ICE Has Taken Some Actions to Modernize Technology on the Southwest Border but Does Not Have Complete Information to Effectively Manage Its Program

ICE has 58 completed, ongoing, or planned projects under its TACCOM  modernization program and has taken some actions to modernize its  TACCOM radio systems, including along the southwest border. By developing a program plan to guide  ICE’s overall TACCOM modernization program, ICE could more clearly  articulate radio user needs, resource needs, and the goals of the  program, as well as allow officials to identify any corrective actions  needed to ensure that ICE radio systems are meeting ICE user needs. Additional Efforts Are Needed to Ensure That CBP and ICE Agents and Officers Receive Necessary Training

		CBP Training

CBP provided training to Border Patrol, OAM, and OFO agents and  officers on its upgraded digital systems in each southwest border location  that received modernization upgrades, but could do more to ensure it is  meeting the training needs of all CBP radio users. Specifically, 8 of  14 CBP radio user groups we met with suggested that radio users be  provided with additional radio training to enhance their proficiency in  using radio systems. ICE Training

ICE provided training on the upgraded digital system in one location, but  has not assessed radio user training needs to identify radio user skills  gaps, developed a plan to ensure training needs are met, or tracked the  training that it provided. According to ICE officials, training was provided to radio users in only one  location along the southwest border—Rio Grande Valley—because of a  lack of resources. Moreover, three of the four groups  of ICE radio user groups we met with in field locations stated that  additional training would help address challenges experienced by radio  users. DHS Is Taking Actions Aimed at Improving Tactical Communications Interoperability, but It Is Too Soon to Determine Whether These Actions Will Address Persistent Challenges

DHS is taking actions to improve tactical communications interoperability  among DHS components and with other federal, state, and local  agencies, but it is too soon to assess whether these actions will address  the various challenges CBP and ICE face in achieving interoperability. In an effort to more fully understand and  address the department’s underlying interoperability challenges, DHS has  developed a draft DHS Communications Interoperability Plan. Specifically, this draft plan outlines goals and initiatives aimed at  addressing various types of interoperability challenges faced by DHS  components. Achieving interoperability among DHS components and state and  local agencies presents unique challenges because many state and  local agency radio systems operate on different frequency bands that  are incompatible with federal radio systems. However, since the DHS  Communications Interoperability Plan has not yet been finalized, it is too  soon to assess the extent to which this guidance will effectively address  the interoperability challenges discussed above. According to DHS  officials, the department intends to finalize the plan and aims to  accomplish the goals outlined in the DHS Communications  Interoperability Plan within 3 to 5 years. Without a program plan to guide ICE’s TACCOM modernization  program efforts, ICE does not have the ability to determine whether its  technology investments are meeting user needs and contributing to  achieving the agency’s mission. Developing and implementing a plan to address radio user  skills gaps, and developing a mechanism to verify that all ICE radio users  receive radio training, would help ensure that the agency can better  monitor and address ICE radio user training needs. Recommendations for Executive Action

To ensure that CBP’s land mobile radio systems are functioning as  intended in each location and are meeting user needs, we recommend  that the CBP Commissioner develop a plan to monitor the performance of  its deployed radio systems. In response to our recommendation that CBP develop and implement  a plan to address any skills gaps for CBP agents and officers related  to understanding the new digital radio systems and interagency radio  use protocols, DHS stated that CBP will work to develop and  implement an action plan to address skills gaps for CBP agents and  officers related to understanding the new digital radio systems and  interagency radio use protocols.
Why GAO Did This Study

The lack of communications interoperability—the capability of different electronic communications systems (e.g., radios) to readily connect with one another to enable timely communications—can affect mission operations and the overall effectiveness of agencies responsible for securing the border. DHS continues to face challenges in achieving interoperable radio communications within and among federal, state, and local agencies despite investment by these agencies to improve their radio systems. GAO was asked to evaluate DHS border security and immigration tactical communications (TACCOM) programs and operational impacts resulting from interoperability challenges. This report addresses the extent to which (1) CBP and ICE have upgraded tactical communications equipment and infrastructure along the U.S. southwest border, (2) CBP and ICE have provided tactical communications training to radio users, and (3) DHS has taken actions to improve the interoperability of tactical communications along the U.S. southwest border and what challenges, if any, remain. GAO analyzed DHS documentation; visited four locations, selected for DHS prioritization of technology upgrade projects; and interviewed DHS officials.

What GAO Found

The Department of Homeland Security (DHS), U.S. Customs and Border Protection (CBP), and U.S. Immigration and Customs Enforcement (ICE) have taken steps to upgrade tactical communications equipment and infrastructure, but could benefit by developing performance and program plans. Specifically, CBP has completed modernization projects in four of the nine sectors that compose the southwest border. Since rolling out upgrades—which include replacing and updating equipment and expanding infrastructure—CBP has not established an ongoing performance monitoring plan to determine whether the systems are working as intended. Without such a plan, CBP is not well positioned to assess whether its radio systems are functioning as intended in each location and are meeting user needs. In addition, ICE has taken some actions to modernize its tactical communications radio systems. However, ICE does not have a program plan to manage its portfolio of projects. By developing a program plan to guide ICE's overall tactical communications modernization program, ICE could better manage its program and achieve its program goals.
Additional efforts are needed to ensure that CBP and ICE agents and officers receive necessary training. CBP provided training to its agents and officers on upgraded radio systems in each southwest border location that received upgrades; however, 8 of 14 CBP radio user groups GAO met with suggested that radio users be provided with additional radio training to enhance their proficiency in using radio systems. Further, CBP does not know how many radio users are in need of training. Developing and implementing a plan to address any skills gaps related to the upgraded radio systems would help ensure more CBP radio users are able to effectively use their radios to accomplish the agency's mission. Further, developing a mechanism to identify CBP radio users in need of training would help CBP improve its ability to monitor radio user training needs. ICE provided training on the upgraded radio systems in one location, but 3 of the 4 ICE radio user groups GAO met with in field locations stated that additional training would help address challenges experienced by radio users. Further, ICE officials stated that they did not track the training that the agency provided. Developing and implementing a plan to address any skills gaps for ICE radio users related to understanding the upgraded radio systems would help ensure more ICE radio users are able to effectively use their radios to accomplish the agency's mission. Further, developing a mechanism to track training provided to ICE radio users would help ensure that the agency can address ICE radio user training needs.
DHS is taking actions to improve tactical communications interoperability among DHS components and with other federal, state, and local agencies, but it is too soon to assess whether these actions will address the various challenges CBP and ICE face in achieving interoperability. Specifically, among other actions, DHS developed a draft DHS Communications Interoperability Plan to more fully understand and address the department's underlying interoperability challenges. This draft plan outlines goals and initiatives aimed at addressing various types of interoperability challenges faced by DHS components, but since the plan has not been implemented, it is too soon to assess the extent to which this guidance will effectively address the interoperability challenges faced by DHS components.

What GAO Recommends

GAO recommends that CBP and ICE develop performance and program plans for their modernization programs, mechanisms to track training, and plans to address skills gaps in understanding radio systems. CBP and ICE concurred with the recommendations.