	Background

CBP’s SBI program is responsible for deploying SBInet (e.g., sensors,  cameras, radars, communications systems, and mounted laptop computers  for agent vehicles), and tactical infrastructure (e.g., pedestrian and vehicle  fencing, roads, and lighting) that are intended to enable CBP agents and  officers to gain effective control of U.S. borders. SBInet Deployment Delays Are Ongoing and Border Patrol Agents Continue to Use Existing Technology to Secure Borders

SBInet technology deployments continue to experience delays and, as a  result, Border Patrol agents have to rely upon existing limited  technological capabilities to help achieve effective control of the border. In February 2008,  we reported that the first planned deployment of technology would occur  in two geographic areas within the Tucson sector—known as Tucson-1  and Ajo-1—by the end of calendar year 2008, with the remainder of  deployments to the Tucson, Yuma, and El Paso sectors scheduled to be  completed by the end of calendar year 2011. In July 2008, SBI program  office officials reported that SBInet technology deployments to Tucson-1  and Ajo-1 would be completed sometime in 2009. SBInet program uncertainties contribute to ongoing delays of SBInet  technology deployments. The need to obtain environmental permits is also contributing to the initial  Tucson deployment delays. We previously reported that  Project 28 encountered performance shortfalls and delays. Further delays of SBInet technology  deployments may hinder the Border Patrol’s efforts to secure the border. Tactical Infrastructure Deployment Continues, but Costs Are Increasing, the Life-Cycle Cost Is Not Yet Known, and Land Acquisition Issues Pose a Challenge to Completion of the Timeline

The deployment of tactical infrastructure projects along the southwest  border is ongoing, but costs are increasing, the life-cycle cost is not yet  known, and land acquisition issues pose challenges to DHS in meeting the  goal it set, as required by law, to complete 670 miles of fencing—370 miles  of pedestrian fence and 300 miles of vehicle fence, by December 31, 2008. Although SBI program office and USACE officials stated that they plan to  meet the December deadline, factors such as a short supply of labor and  materials, and the compressed timeline affect costs. According to USACE officials, as of August 28,  2008, fencing costs average $7.5 million per mile for pedestrian fencing  and $2.8 million per mile for vehicle fencing, up from estimates in  February 2008 of $4 million and $2 million per mile, respectively. The SBI Program Management Office Is Reevaluating Its Staffing Goal and Has Continued to Take Steps to Implement Its Human Capital Plan

As of September 2008, the SBI program office was reevaluating its staffing  goal, and the SBI program office continued to take steps to implement the  December 2007 Human Capital Plan. In February 2008, we reported that  the SBI program office had established a staffing goal of 470 employees for  fiscal year 2008. As of August 1, 2008, the SBI program office reported  having 129 government staff and 164 contractor support staff for a total of  293 employees (see table 5). SBI program office officials stated that a  reorganization of the SBI program office and project delays have resulted  in a need for fewer staff during fiscal year 2008. The officials further noted  they plan to continue to evaluate the expected staffing needs through the  end of fiscal year 2009. For example, the SBI program office  held a meeting on September 2, 2008, to develop SBI’s mission, visionary  goals and objectives, and core values, and the office has recruitment  efforts under way to fill open positions. However, in other areas, the SBI  program office is in the process of drafting or has drafted documents, such  as the SBI Value Statement, the SBI Awards and Recognition Plan, and the  Succession Management Plan, which have yet to be approved and acted  upon. Furthermore,  tactical infrastructure costs are increasing and the SBI program office has  not yet determined a life-cycle cost for fencing because maintenance costs  are unknown and the SBI program office has not identified the locations  for fencing construction projects beyond December 31, 2008; therefore,  the total cost for building and maintaining fences along the southwest  border is not yet known. Department of Homeland Security: Better Planning and Oversight  Needed to Improve Complex Service Acquisition Outcomes. Secure Border Initiative: Observations on Selected Aspects of SBInet  Program Implementation.
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 the U.S. Customs and Border Protection's (CBP) SBI program, which is responsible for developing a comprehensive border protection system through a mix of surveillance and communication technologies known as SBInet (e.g., radars, sensors, cameras, and satellite phones), and tactical infrastructure (e.g., fencing). The House Committee on Homeland Security and its Subcommittee on Management, Investigations, and Oversight asked GAO to monitor DHS progress in implementing CBP's SBI program. This testimony provides GAO's observations on (1) technology deployment; (2) infrastructure deployment; and (3) how the CBP SBI program office has defined its human capital goals and the progress it has made to achieve these goals. GAO's observations are based on prior and new work, including analysis of DHS documentation, such as program schedules, contracts, and status reports. GAO also conducted interviews with DHS and Department of the Interior officials and contractors, and visits to sites on the southwest border where SBI deployment is under way. GAO performed the work from March to September 2008. DHS generally agreed with GAO's findings.

What GAO Found

SBInet technology deployments continue to experience delays and, as a result, Border Patrol agents have to rely upon existing limited technological capabilities to help achieve control of the border. SBI program officials had originally planned to deploy SBInet technology across the southwest border by the end of 2008, but in February 2008 this date had slipped to 2011. In July 2008, officials reported that two initial projects that had been scheduled to be completed by the end of calendar year 2008 would be finished sometime in 2009. SBInet program uncertainties, such as not fully defined program expectations, changes to timelines, and confusion over the need to obtain environmental permits contribute to ongoing delays of SBInet technology deployments. Due to the delays, Border Patrol agents continue to use existing technology that predates SBInet, and in the Tucson, Arizona, area they are using capabilities from SBInet's prototype system despite previously reported performance shortfalls. Further delays of SBInet technology deployments may hinder the Border Patrol's efforts to secure the border. The deployment of fencing is ongoing, but costs are increasing, the life-cycle cost is not yet known, and meeting DHS's statutorily required goal to have 670 miles of fencing in place by December 31, 2008, will be challenging. As of August 22, 2008, the SBI program office reported that it had constructed a total of 341 miles of fencing, and program officials stated that they plan to meet the December 2008 deadline. However, project costs are increasing and various factors pose challenges to meeting this deadline, such as a short supply of labor and land acquisition issues. According to program officials, as of August 2008, fencing costs averaged $7.5 million per mile for pedestrian fencing and $2.8 million per mile for vehicle fencing, up from estimates in February 2008 of $4 million and $2 million per mile, respectively. Furthermore, the life-cycle cost is not yet known, in part because of increasing construction costs and because the program office has yet to determine maintenance costs and locations for fencing projects beyond December 2008. In addition, land acquisition issues present a challenge to completing fence construction. As of September 2008, the SBI program office was reevaluating its staffing goal and continued to take actions to implement its human capital plan. In February 2008, we reported that the SBI program office had established a staffing goal of 470 employees for fiscal year 2008. As of August 1, 2008, the SBI program office reported having 129 government staff and 164 contractor support staff for a total of 293 employees. Program officials stated that a reorganization of the SBI program office and SBInet project delays have resulted in fewer staffing needs and that they plan to continue to evaluate these needs. The SBI program office also continued to take steps to implement its human capital plan. For example, recruitment efforts are under way to fill open positions. However, the SBI program office is in the process of drafting or has drafted documents, such as the Succession Management Plan, that have yet to be approved or put into action.