3 for examples of fencing.) SBInet Deployment Delays Require Border Patrol to Rely on Existing Technology Which Has Limitations That Newer Technology Is Planned to Overcome

SBInet technology deployments continue to experience delays due to  flaws found in testing and potential environmental impacts. Until SBInet is deployed, Border Patrol agents continue to rely on  existing technology that has limitations such as performance shortfalls  and maintenance issues. CBP cannot determine what operational changes  it will need to make as a result of the new technology, and Border Patrol  will not be able to realize the potential of this technology until it is  deployed. Until SBInet Technology Is in Place, Border Patrol Agents Continue to Use Existing Equipment and CBP Is Limited in Its Ability to Fully Implement the Objectives of the Border Patrol Strategy

Until SBInet capabilities are deployed across the southwest border,  Border Patrol agents are using existing capabilities, including Project 28  and legacy equipment supplemented by more recently procured MSS, but  all have limitations. In all southwest  border sectors, Border Patrol relies on legacy equipment, such as cameras  mounted on towers. Border Patrol officials told us that in the three sectors, the cameras  have intermittent problems, including signal loss and problems with power  and weather. To fill gaps or  augment the legacy equipment, the SBI program office procured and  delivered a total of 40 MSSs. Tactical Infrastructure Deployments Are Almost Complete, but Their Impact on Border Security Has Not Been Measured

The deployment of 661 miles of tactical infrastructure projects along the  southwest border is nearing completion, but delays persist, due mainly to  property acquisition issues. CBP plans to complete 10 more miles  of fencing using fiscal year 2009 funds, and fiscal year 2010 and 2011 funds  are to be used primarily for supporting infrastructure. As of June 2009, 633 miles had been completed (see  table 2). However, fence deployment continues to face delays due  to challenges in constructing tactical infrastructure on difficult terrain and  acquiring the necessary property rights from landowners. As a result, this segment is anticipated to be completed in  November 2009. While fencing costs increased over the course of construction, because all  construction contracts have been awarded, cost estimates are less likely to  change. The life- cycle cost estimates include deployment and operations and future  maintenance costs for all tactical infrastructure, including the fence,  roads, and lighting, among other things. The Number of Southwest Border Miles That CBP Reports as Being under Effective Control Has Increased, but the Impact of Tactical Infrastructure Has Not Been Measured

CBP reported that tactical infrastructure, coupled with additional trained  Border Patrol agents, had increased the miles of the southwest border  under effective control, but despite a $2.4 billion investment, it cannot  account separately for the impact of tactical infrastructure. However, these analyses were  largely subjective because they were based primarily on the experience  and expertise of senior border patrol agents. Until CBP determines the contribution of tactical infrastructure  to border security beyond a measure of miles covered by tactical  infrastructure, it is not positioned to address the impact this costly  resource has had in each sector or might have if deployed in other  locations across the southwest border. Conclusions

While the SBInet program continues to test and evaluate potential  technology applications, a major part of DHS’s effort to secure the nation’s  borders from the illegal entry of aliens and contraband has been the  deployment of tactical infrastructure. We will also send copies  of this report to the Secretary of Homeland Security, the Commissioner of  U.S. Customs and Border Protection, and the Office of Management and  Budget. Related GAO Products

U.S. Customs and Border Protection’s Secure Border Initiative Fiscal  Year 2009 Expenditure Plan.
Why GAO Did This Study

Securing the nation's borders from illegal entry of aliens and contraband, including terrorists and weapons of mass destruction, continues to be a major challenge. In November 2005, the Department of Homeland Security (DHS) announced the launch of the Secure Border Initiative (SBI), a multiyear, multibillion dollar program aimed at securing U.S. borders and reducing illegal immigration. Within DHS, U.S. Custom and Border Protection's (CBP) SBI program is responsible for developing a comprehensive border protection system using technology, known as SBInet, and tactical infrastructure--fencing, roads, and lighting. GAO was asked to provide periodic updates on the status of the program. This report addresses (1) the extent to which CBP has implemented SBInet and the impact of delays that have occurred, and (2) the extent to which CBP has deployed tactical infrastructure and assessed its results. To do this work, GAO reviewed program schedules, status reports, and previous GAO work; interviewed DHS and CBP officials, among others; and visited three SBI sites where initial technology or fencing had been deployed at the time of GAO's review.

What GAO Found

SBInet technology capabilities have not yet been deployed and delays require Border Patrol, a CBP component, to rely on existing technology for securing the border, rather than using newer technology planned to overcome the existing technology's limitations. Flaws found in testing and concerns about the impact of placing towers and access roads in environmentally sensitive locations caused delays. As of September 2006, SBInet technology deployment for the southwest border was planned to be complete by early fiscal year 2009. When last reported in February 2009, the completion date had slipped to 2016. As a result of such delays, Border Patrol agents continue to use existing technology that has limitations, such as performance shortfalls and maintenance issues. For example, on the southwest border, Border Patrol relies on existing equipment such as cameras mounted on towers that have intermittent problems, including signal loss. Border Patrol has procured and delivered some new technology to fill gaps or augment existing equipment. However, incorporating SBInet technology as soon as it is operationally available should better position CBP to identify and implement operational changes needed for securing the border. Tactical infrastructure deployments are almost complete, but their impact on border security has not been measured. As of June 2009, CBP had completed 633 of the 661 miles of fencing it committed to deploy along the southwest border. However, delays continue due mainly to challenges in acquiring the necessary property rights from landowners. While fencing costs increased over the course of construction, because all construction contracts have been awarded, costs are less likely to change. CBP plans to use $110 million in fiscal year 2009 funds to build 10 more miles of fencing, and fiscal year 2010 and 2011 funds for supporting infrastructure. CBP reported that tactical infrastructure, coupled with additional trained agents, had increased the miles of the southwest border under control, but despite a $2.4 billion investment, it cannot account separately for the impact of tactical infrastructure. CBP measures miles of tactical infrastructure constructed and has completed analyses intended to show where fencing is more appropriate than other alternatives, such as more personnel, but these analyses were based primarily on the judgment of senior Border Patrol agents. Leading practices suggest that a program evaluation would complement those efforts. Until CBP determines the contribution of tactical infrastructure to border security, it is not positioned to address the impact of this investment.