The SBInet PMO  workforce includes a mix of government and contractor support staff. The  SBInet PMO reports to the CBP SBI Program Executive Director. These include task  orders for (1) Project 28, Boeing’s pilot project and initial implementation  of SBInet technology to achieve control of 28 miles of the border in the  Tucson sector; (2) Project 37, for construction approximately 32 miles of  vehicle barriers and pedestrian fencing in the Yuma sector along the Barry  M. Goldwater Range (BMGR); (3) Program Management, for engineering,  facilities and infrastructure, test and evaluation, and general program  management services; (4) Fence Lab, a project to evaluate the  performance and cost of deploying different types of fences and vehicle  barriers; and (5) a design task order for developing the plans for several  technology projects to be located in the Tucson, Yuma, and El Paso  sectors. In addition to deploying technology across the southwest border, the  SBInet PMO plans to deploy 370 miles of single-layer pedestrian fencing  and 200 miles of vehicle barriers by December 31, 2008. DHS has estimated that the total cost for completing the deployment for  the southwest border—the initial focus of SBInet deployment—will be  $7.6 billion from fiscal years 2007 through 2011. SBInet Technology Deployment Delays May Increase Schedule Risks

DHS has made some progress to implement Project 28—the first segment  of technology on the southwest border, but it has fallen behind its planned  schedule. Boeing’s inability thus far to resolve system  integration issues has left Project 28 incomplete more than 4 months after  its planned June 13 milestone to become operational—at which point,  Border Patrol agents were to begin using SBInet technology to support  their activities, and CBP was to begin its operational test and evaluation  phase. In September 2007, CBP officials told us that Boeing was  making progress in correcting the system integration problems; however,  CBP was unable to provide us with a specific date when Boeing would  complete the corrections necessary to make Project 28 operational. CBP reports that it is taking steps to strengthen its contract management  for Project 28. SBInet Tactical Infrastructure Deployment on Track but May Be Challenging and More Costly than Planned

Deploying SBInet’s tactical infrastructure along the southwest border is on  schedule, but meeting the SBInet program’s goal to have 370 miles of  pedestrian fence and 200 miles of vehicle barriers in place by December  31, 2008, may be challenging and more costly than planned. To minimize one of the many factors that add to cost, in the past  DHS has used Border Patrol agents and DOD military personnel. However, CBP officials reported that they plan to use commercial labor  for future infrastructure projects to meet their deadlines. Although deployment of tactical infrastructure is on schedule, CBP  officials reported that meeting deadlines has been challenging because  factors they will continue to face include conducting outreach necessary  to address border community resistance, devoting time to identify and  complete steps necessary to comply with environmental regulations, and  addressing difficulties in acquiring rights to border lands. According to agency officials, CBP is on track to meet its hiring goal of  6,000 new Border Patrol agents by December 2008, but after SBInet is  deployed, CBP officials expect the number of Border Patrol agents  required to meet mission needs to change from current projections,  although the direction and magnitude of the change is unknown. The Tucson sector, where  Project 28 is being deployed, is developing a plan on how to integrate  SBInet into its operating procedures. SBI PMO Did Not Meet All of Its Staffing Goals and Has Not Yet Completed Long-Term Human Capital Planning

The SBI PMO tripled in size in fiscal year 2007 but fell short of its staffing  goal of 270 employees. Appendix I: Scope and Methodology

To determine the progress that the Department of Homeland Security  (DHS) has made in implementing the Secure Border Initiative (SBI)  SBInet’s technology deployment projects, we analyzed DHS  documentation, including program schedules, project task orders, status  reports, and expenditures. We also interviewed DHS and the U.S. Customs  and Border Protection (CBP) headquarters and field officials, including  representatives of the SBInet Program Management Office (PMO), Border  Patrol, CBP Air and Marine, and the DHS Science and Technology  Directorate, as well as SBInet contractors. To determine the extent to which CBP has determined the impact of  SBInet technology and infrastructure on its workforce needs and  operating procedures, we reviewed documentation of the agency’s  decision to hire an additional 6,000 agents and the progress hiring these  agents. We performed our work from April 2007 through October 2007 in  accordance with generally accepted government auditing standards.
Why GAO Did This Study

In November 2005, the Department of Homeland Security (DHS) established the Secure Border Initiative (SBI), a multiyear, multibillion dollar program to secure U.S. borders. One element of SBI is SBInet--the U.S. Customs and Border Protection (CBP) program responsible for developing a comprehensive border protection system through a mix of security infrastructure (e.g., fencing), and surveillance and communication technologies (e.g., radars, sensors, cameras, and satellite phones). The House Committee on Homeland Security asked GAO to monitor DHS progress in implementing the SBInet program. This testimony provides GAO's observations on (1) SBInet technology implementation; (2) SBInet infrastructure implementation; (3) the extent to which CBP has determined the impact of SBInet technology and infrastructure on its workforce needs and operating procedures; and (4) how the CBP SBI Program Management Office (PMO) has defined its human capital goals and the progress it has made to achieve these goals. GAO's observations are based on analysis of DHS documentation, such as program schedules, contracts, status, and reports. GAO also conducted interviews with DHS officials and contractors, and visits to sites in the southwest border where SBInet deployment is underway. GAO performed the work from April 2007 through October 2007. DHS generally agreed with GAO's findings.

What GAO Found

DHS has made some progress to implement Project 28--the first segment of SBInet technology across the southwest border, but it has fallen behind its planned schedule. The SBInet contractor delivered the components (i.e., radars, sensors and cameras) to the Project 28 site in Tucson, Arizona on schedule. However, Project 28 is incomplete more than 4 months after it was to become operational--at which point Border Patrol agents were to begin using SBInet technology to support their activities. According to DHS, the delays are primarily due to software integration problems. In September 2007, DHS officials said that the Project 28 contractor was making progress in correcting the problems, but DHS was unable to specify a date when the system would be operational. Due to the slippage in completing Project 28, DHS is revising the SBInet implementation schedule for follow-on technology projects, but still plans to deploy technology along 387 miles of the southwest border by December 31, 2008. DHS is also taking steps to strengthen its contract management for Project 28. SBInet infrastructure deployment along the southwest border is on schedule, but meeting CBP's goal to have 370 miles of pedestrian fence and 200 miles of vehicle barriers in place by December 31, 2008, may be challenging and more costly than planned. CBP met its intermediate goal to deploy 70 miles of new fencing in fiscal year 2007 and the average cost per mile was $2.9 million. The SBInet PMO estimates that deployment costs for remaining fencing will be similar to those thus far. In the past, DHS has minimized infrastructure construction labor costs by using Border Patrol agents and Department of Defense military personnel. However, CBP officials report that they plan to use commercial labor for future fencing projects. The additional cost of commercial labor and potential unforeseen increases in contract costs suggest future deployment could be more costly than planned. DHS officials also reported other challenging factors they will continue to face for infrastructure deployment, including community resistance, environmental considerations, and difficulties in acquiring rights to land along the border. The impact of SBInet on CBP's workforce needs and operating procedures remains unclear because the SBInet technology is not fully identified or deployed. CBP officials expect the number of Border Patrol agents required to meet mission needs to change from current projections, but until the system is fully deployed, the direction and magnitude of the change is unknown. For the Tucson sector, where Project 28 is being deployed, Border Patrol officials are developing a plan on how to integrate SBInet into their operating procedures. The SBI PMO tripled in size during fiscal year 2007, but fell short of its staffing goal of 270 employees. Agency officials expressed concerns that staffing shortfalls could affect the agency's capacity to provide adequate contractor oversight. In addition, the SBInet PMO has not yet completed long-term human capital planning.