	DHS Has Ended the SBInet Program But Not the Contract or Key Technology Capability Which Users Consider Useful

After an internal assessment initiated in January 2010, the Secretary of  Homeland Security announced in January 2011 that she had directed CBP  to end the SBInet program as originally conceived. According to DHS, the  Secretary’s decision was informed by an independent analysis of cost- effectiveness, a series of operational tests and evaluations, and Border  Patrol input. In addition, the Secretary’s decision to end the SBInet program limited  Block 1 deployments to the Tucson and Ajo stations in the Tucson Sector,  but did not affect the current SBInet Block 1 capability, which was  developed based on updated requirements from the Border Patrol. The  Block 1 capability consists of 15 sensor towers (with day/night cameras  and radar) and 10 communication towers, which transmit surveillance  signals to the Common Operating Pictures (COP) at station command  centers. Alternative (Southwest) Border Technology Is Slated for Deployment, but Cost- and Operational Effectiveness and Suitability of the Integrated Fixed Tower System Are Not Yet Clear

DHS is implementing a new approach for acquiring and deploying border  security technology called “Alternative (Southwest) Border Technology”  to replace the SBInet program. As part of this approach DHS is to deploy a  mix of technologies, including RVSS, MSS, and hand-held equipment for  use by Border Patrol agents. It also is to include a new Integrated Fixed  Tower system that is slated for deployment along the border where the  Border Patrol deems it appropriate, beginning with five high-risk areas in  Arizona at an estimated cost of $570 million. However,  due to the questions we have about how the Analysis of Alternatives  (AOA)  analyses and conclusions were factored into planning and budget  decisions, the basis for DHS’s technology deployment plan is not yet clear. Further, the results of independent analyses were not complete at the time  of the Secretary’s decision to end the SBInet program, thus any results on  SBInet’s operational effectiveness could not inform the decisions to  proceed with a possibly similar Integrated Fixed Tower system. According to OTIA and Border Patrol officials, depending on the  availability of funding, the deployments of the Integrated Fixed Tower  system component of the Arizona technology plan are expected to begin  around March 2013 and be completed by the end of 2015 (or possibly early  2016), with other sector deployments sequentially following the Arizona  sector. In this regard, the President’s fiscal year 2012  DHS budget request for BSFIT calls for $242 million to fund the first three  Integrated Fixed Tower system deployments for Arizona, which include 36  sensor towers. DHS Has Initiated Actions to Acquire an Integrated Fixed Tower System Capability

In one of its first actions following the Secretary of Homeland Security’s  announcement to end SBInet, DHS issued a Request for Information (RFI)  in January 2011 to industry regarding the commercial availability of  surveillance systems based on the Integrated Fixed Tower system concept,  consistent with its stated intent to acquire future border technologies in its  new plan through full and open competitions. In February 2011, DHS conducted an “Industry Day” to provide potential  vendors with a better understanding of Border Patrol’s technology needs  on the southwest border and collect information about potential  capabilities. As we  continue our work for the committee, we plan to examine each of the  following areas in detail to obtain additional insights into DHS’s decision  making regarding the cost-effectiveness of a range of border technology  options. Specifically,  It is not clear how DHS used the AOA results to determine the  appropriate technology plans for Arizona. Further, we have questions about how the AOA analyses and conclusions  were factored into planning and budget decisions regarding the optimal  mix of technology deployments in Arizona. Specifically, according to OTIA  and Border Patrol officials, the AOA was used to develop the Arizona  technology deployment plan and related procurement plans and to provide  cost data to be used for the Border Patrol’s operational assessment and  the fiscal year 2012 budget request for Integrated Fixed Tower systems. Independent Evaluation of Test Results to Determine Operational Effectiveness and Suitability Not Yet Completed

The Army Test and Evaluation Command (ATEC) was to independently  test SBInet’s Block 1 capability and evaluate the results to determine its  operational effectiveness and suitability (i.e., the extent to which the  system fits it its operational environment and is useful to Border Patrol to  meet the agency’s mission). This is a work of the U.S. government and is not subject to copyright protection in the  United States.
Why GAO Did This Study

Securing the nation's borders from illegal entry of aliens, contraband, terrorists and weapons of mass destruction, is a long-term challenge. In November 2005, the Department of Homeland Security (DHS) launched the Secure Border Initiative network (SBInet)--a program which was to provide the Border Patrol, within DHS's U.S. Customs and Border Protection (CBP), with the tools to detect breaches and make agent deployment decisions by installing surveillance systems along the border. Alternative (Southwest) Border Technology is DHS's new plan to deploy a mix of technology to protect the border. This testimony is based on GAO's ongoing work conducted for the House Committee on Homeland Security and provides preliminary observations on (1) the status of SBInet and user views on its usefulness, and (2) the Alternative (Southwest) Border Technology plan and associated costs. GAO reviewed planning, budget, and system documents, observed operations along the southwest border, and interviewed DHS officials.

What GAO Found

In January 2011, the Secretary of Homeland Security directed CBP to end the SBInet program as originally conceived because it did not meet cost-effectiveness and viability standards, and to instead focus on developing terrain- and population-based solutions utilizing existing, proven technology, such as camera-based surveillance systems, for each border region. According to DHS, the Secretary's decision on SBInet was informed by (1) an independent analysis of alternatives (AOA) to determine the program's cost-effectiveness; (2) a series of operational tests and evaluations by the U.S. Army's Test and Evaluation Command (ATEC) to determine its operational effectiveness and suitability; and (3) an operational assessment by the Border Patrol to provide user input. The Secretary also stated that while the Alternative (Southwest) Border Technology plan should include elements of the former SBInet program where appropriate, she did not intend for DHS to use the current contract to procure any technology systems under the new plan, but rather would solicit competitive bids. SBInet's current surveillance capability continues to be used in Arizona. Specifically, there are 15 sensor towers (with cameras and radar) and 10 communication towers (which transmit the sensor signals to computer consoles for monitoring), currently deployed in the Border Patrol's Tucson Sector. In addition, on the basis of user feedback, the Border Patrol considers the current SBInet capability to be useful, including providing continuous surveillance in border areas where none existed before and enhancing agent safety when responding to potential threats. There are certain shortcomings including coverage gaps and radar performance limitations in adverse weather. The Alternative (Southwest) Border Technology plan is to incorporate a mix of technology, including an Integrated Fixed Tower surveillance system similar to that used in the current SBInet capability, beginning with high-risk areas in Arizona. But, due to a number of reasons, the cost-effectiveness and operational effectiveness and suitability of the Integrated Fixed Tower system is not yet clear. First, the AOA cited a range of uncertainties, and it is not clear how the AOA analyses and conclusions were factored into planning and budget decisions regarding the optimal mix of technology deployments in Arizona. Second, the ATEC independent analyses were not complete at the time of the Secretary's decision, thus any results on SBInet's operational effectiveness and suitability could not inform the decisions to proceed with the Integrated Fixed Tower system. The President's fiscal year 2012 budget request calls for $242 million to fund three of five future deployments of the Integrated Fixed Tower systems in Arizona, although, depending on funding, the earliest DHS expects the deployments to begin is March 2013 with completion anticipated by 2015 or later. Consistent with its intent to solicit competitive bids, CBP has initiated a new acquisition cycle, asking industry for information about the commercial availability of the Integrated Fixed Tower system. GAO will continue to assess this issue and report the final results later this year.

What GAO Recommends

GAO is not making any new recommendations in this statement but has made prior recommendations to strengthen SBInet. While DHS generally agreed most information in this statement, it did not agree with GAO's observations on the AOA and the potential usefulness of ATEC's analyses. GAO continues to believe its observations are valid. DHS also provided technical comments which were incorporated, as appropriate.