As of fiscal year  2016, there were a total of eight TARS sites along the southern U.S.  border and in Puerto Rico. CBP Uses UAS and Aerostats for a Variety of Border Security Activities, but Could Benefit from Documented Procedures for Coordinating Predator B Operations with Other Government Agencies

		CBP Uses Predator B UAS to Support a Variety of Activities and Government Agencies, but Could Benefit from Documenting Coordination Procedures

CBP uses Predator B aircraft to conduct various border security activities  and to support a range of government agencies. CBP’s Predator B operations in  support of other federal agencies accounted for 15 percent of Predator B  flight hours from fiscal years 2013 through 2016, such as conducting  aerial surveillance for investigations during controlled deliveries of illegal  contraband by U.S. Immigration and Customs Enforcement. Without  documenting its procedures for coordination of Predator B operations with  supported agencies, CBP does not have reasonable assurance that  practices at NASOCs in Texas and North Dakota align with existing  policies and procedures for joint operations with other government  agencies. CBP Has Taken Actions to Assess Effectiveness of Its UAS and Aerostats, but Could Improve Data Collection

		CBP Has Studied and Collects Various Data to Assess the Effectiveness of Its Predator B Program, but Could Strengthen Its Efforts through More Consistent Data Collection

CBP has initiated various studies and evaluations to help assess the  effectiveness of its Predator B program, and also collects and tracks  various data related to Predator B operations. Further, it does not include definitions and instructions for collecting and  recording information on missions with multiple supported agencies and  asset assists for seizures and apprehensions. Updated guidance  and training for users for Predator B mission data collection would help  CBP ensure consistent recording across all Predator B operating  locations to support CBP’s efforts to assess the effectiveness of its  Predator B program. The purpose of  the second evaluation was to support Border Patrol’s continued use of  tactical aerostats by examining operational effectiveness and comparison  of capabilities and performance of tactical aerostats compared to other  existing surveillance technology—for example, towers equipped with  video surveillance cameras and ground sensors. Second, with regard to data, CBP collects and tracks data on its use of  tactical aerostats to assess effectiveness, including data on (1)  operational availability (i.e., percentage of time an aerostat is in flight  providing surveillance data to CBP), (2) asset assists for apprehensions  of individuals and seizures of narcotics, and (3) the number of detections  of items of interest. In  collecting and recording asset assist information, Border Patrol does not  distinguish between tactical aerostats and TARS. Due to  the constant change in cross-border illegal activity, costs associated with  re-deployment of tactical aerostat sites (between $60,000 to over  $100,000 per site), and time needed to locate and obtain access for land  use for re-deployment, better data collection practices to distinguish  between asset assists associated with tactical aerostats and TARS would  help CBP to better ensure its data are complete to help guide resource  allocation decisions. Conclusions

CBP uses a variety of technologies and assets to secure the border,  including Predator B UAS. CBP’s Predator B aircraft are used as national  assets and support numerous federal and non-federal government  agencies. By documenting its procedures in all operating locations, CBP  could better oversee coordination procedures as use changes based on  needs and cross-border illegal activity. CBP uses  tactical aerostats in south Texas to support Border Patrol’s ability to  detect and interdict cross-border illegal activity. With regard to the second recommendation related to updating and  maintaining guidance for recording Predator B mission information in its  data collection system, DHS concurred and stated that CBP will take  actions to update and maintain guidance for recording Predator B mission  information, including incorporating a new functionality in its data  collection system to include tips and guidance for recording Predator B  mission information and updating its user manual for its data collection  system by September 2019. Appendix II: Objectives, Scope, and Methodology

This report addresses the following questions:
How does U.S. Customs and Border Protection (CBP) use unmanned  aerial systems (UAS) and aerostats for border security activities, and  to what extent has CBP developed and documented procedures for  UAS coordination? To what extent has CBP taken actions to assess the effectiveness of  its UAS and aerostats for border security activities? For the purposes of our report, UAS includes Predator B UAS and  aerostats include tactical aerostats and the Tethered Aerostat Radar  System (TARS) program. We also conducted site visits to observe  CBP’s use of Predator B UAS and aerostats in Arizona, Texas, North  Dakota, and California and interviewed CBP officials responsible for their  operation. Appendix IV: Summary Statistics on the Reporting of Asset Assist Data for Apprehensions and Seizures for Aerostats, May 2014 through Fiscal Year 2016

Department of Homeland Security’s (DHS) Enforcement Integrated  Database includes a field that enables U.S. Border Patrol (Border Patrol)  agents to identify whether a technological or nontechnological asset  assisted in the apprehension of illegal entrants or the seizure of drugs or  other contraband. Border Security: Opportunities Exist to Strengthen Collaborative  Mechanisms along the Southwest Border. Border Security: DHS’s Progress and Challenges in Securing U.S.
Why GAO Did This Study

As the lead federal agency charged with securing U.S. borders, the Department of Homeland Security's (DHS) CBP has employed a variety of technologies and assets to assist with its border security efforts. In support of its mission, CBP operates a fleet of remotely piloted Predator B UAS and uses aerostats, including tactical aerostats and TARS. GAO was asked to review CBP's use of UAS and aerostats for border security.
This report addresses the following questions: (1) How does CBP use UAS and aerostats for border security activities, and to what extent has CBP developed and documented procedures for UAS coordination? and (2) To what extent has CBP taken actions to assess the effectiveness of its UAS and aerostats for border security activities? GAO reviewed CBP documents; analyzed Predator B UAS, tactical aerostat, and TARS data on use and effectiveness from fiscal years 2013 through 2016; interviewed field and headquarters officials; and conducted site visits to observe CBP's use of UAS and aerostats along U.S. borders.

What GAO Found

U.S. Customs and Border Protection (CBP) uses Predator B unmanned aerial systems (UAS) for a variety of border security activities but could benefit from documented coordination procedures in all operating locations. CBP uses its Predator B UAS to support a variety of efforts, such as missions to support investigations in collaboration with other government agencies (e.g., U.S. Immigration and Customs Enforcement) and to locate individuals illegally crossing the border. GAO found that CBP established various mechanisms to coordinate with other agencies for Predator B missions but did not develop and document coordination procedures in two of its three operational centers. Without documented coordination procedures in all operating locations consistent with internal control standards, CBP does not have reasonable assurance that practices in all operating locations align with existing policies and procedures for joint operations with other federal and non-federal government agencies.
CBP uses aerostats—unmanned buoyant craft tethered to the ground and equipped with video surveillance cameras and radar technology—to support its border security activities along the southern U.S. border. In south Texas, the U.S. Border Patrol (Border Patrol) uses relocatable tactical aerostats equipped with video surveillance technology to locate and support the interdiction of cross-border illegal activity. At eight fixed sites across the southern U.S. border and in Puerto Rico, CBP uses the Tethered Aerostat Radar System (TARS) program to support its efforts to detect occurrences of illegal aircraft and maritime vessel border incursions.
CBP has taken actions to assess the effectiveness of its UAS and aerostats for border security, but could improve its data collection. CBP collects a variety of data on its use of Predator B UAS, tactical aerostats, and TARS including data on their support for the apprehension of individuals, seizure of drugs, and other events (asset assists). For Predator B UAS, GAO found mission data—such as the names of supported agencies and asset assists for seizures of narcotics—was not recorded consistently across all operational centers, limiting CBP's ability to assess the effectiveness of the program. CBP has not updated its guidance for collecting and recording mission information in its data collection system to include new data elements added since 2014, and it does not have instructions for recording mission information such as asset assists. In addition, not all users of CBP's system have received training for recording mission information. Updating guidance and fully training users, consistent with internal control standards, would help CBP better ensure the quality of data it uses to assess effectiveness. For tactical aerostats, GAO found that Border Patrol collection of asset assist information for seizures and apprehensions does not distinguish between its tactical aerostats and TARS. Consistent with internal control standards, data that distinguishes between support provided by tactical aerostats and support provided by TARS would help CBP collect better and more complete information and guide resource allocation decisions, such as the re-deployment of tactical aerostat sites based on changes in cross-border illegal activity.

What GAO Recommends

GAO is making five recommendations, including that CBP document coordination procedures for Predator B operations in all operating locations, update guidance and implement training for collection of Predator B mission data, and update Border Patrol's data collection practices for aerostat asset assists. CBP concurred and identified planned actions to address the recommendations.