	CBP Has Made Progress Deploying Surveillance Technology along the Southwest Border, but Has Not Fully Assessed Effectiveness

On multiple occasions since 2011, we have reported on the progress the  Border Patrol has made deploying technologies along the southwest  border. We also reported in November 2017 that the Border Patrol had made  progress identifying performance metrics for the technologies deployed  along the Southwest Border, but additional actions are needed to fully  implement our prior recommendations in this area. CBP concurred with our recommendations and has implemented one of  them. While the Border Patrol has taken action to collect data on technology, it  has not taken additional steps to determine the contribution of  surveillance technologies to CBP’s border security efforts. In November  2017, we reported that Border Patrol officials demonstrated the agency’s  new Tracking, Sign Cutting, and Modeling (TSM) system, which they said  is intended to connect between agents’ actions (such as identification of a  subject through the use of a camera) and results (such as an  apprehension) and allow for more comprehensive analysis of the  contributions of surveillance technologies to the Border Patrol’s mission. CBP used  various fencing designs to construct the 654 miles of primary pedestrian  and vehicle border fencing. For  example, according to officials, border fencing improved agent safety,  helped reduce vehicle incursions, and supported Border Patrol agents’  ability to respond to illicit cross-border activities by slowing the progress  of illegal entrants. Therefore, we  recommended in February 2017 that the Border Patrol develop metrics to  assess the contributions of pedestrian and vehicle fencing to border  security along the southwest border using the data the Border Patrol  already collects and apply this information, as appropriate, when making  investment and resource allocation decisions. CBP Faces Challenges in Sustaining Tactical Infrastructure and Has Not Provided Guidance on Its Process for Identifying and Deploying Tactical Infrastructure

In February 2017, we also reported that CBP was taking a number of  steps to sustain tactical infrastructure along the southwest border;  however, it continued to face certain challenges in maintaining this  infrastructure. As of December  2017, DHS plans to complete these efforts by September 2019. CBP Has Tested Barrier Prototypes and Plans to Construct New Barriers in San Diego and Rio Grande Valley Sectors

In response to the January 2017 Executive Order, CBP established the  Border Wall System Program to replace and add to existing barriers along  the southwest border. In April 2017, DHS leadership authorized CBP to  procure barrier prototypes, which are intended to help refine requirements  and inform new or updated design standards for the border wall system. CBP intends  to prioritize construction of new or replacement physical barriers based on  threat levels, land ownership, and geography, among other things. The Border Patrol Has Continued to Face Staffing Challenges

In November 2017 we reported that, in fiscal years 2011 through 2016,  the Border Patrol had statutorily-established minimum staffing levels of  21,370 full-time equivalent agent positions, but the Border Patrol has  faced challenges in staffing to that level. In particular,  officials from all nine southwest border sectors cited current staffing levels  and the availability of agents as a challenge for optimal deployment. As a result of these staffing shortages, resources  were constrained and station officials had to make decisions about how to  prioritize activities for deployment given the number of agents available. GAO-18-50. Border Security: DHS Surveillance Technology, Unmanned Aerial  Systems and Other Assets. Border Security: Progress and Challenges in DHS’s Efforts to Implement  and Assess Infrastructure and Technology. U.S. Customs and Border Protection’s Border Security Fencing,  Infrastructure and Technology Fiscal Year 2011 Expenditure Plan. Department of Homeland Security: Assessments of Selected Complex  Acquisitions, GAO-10-588SP.
Why GAO Did This Study

DHS has employed a variety of technology, tactical infrastructure, and personnel assets to help secure the nearly 2,000 mile long southwest border. Since 2009, GAO has issued over 35 products on the progress and challenges DHS has faced in using technology, infrastructure, and other resources to secure the border. GAO has made over 50 recommendations to help improve DHS's efforts, and DHS has implemented more than half of them.
This statement addresses (1) DHS efforts to deploy and measure the effectiveness of surveillance technologies, (2) DHS efforts to maintain and assess the effectiveness of existing tactical infrastructure and to deploy new physical barriers, and (3) staffing challenges the Border Patrol has faced. This statement is based on three GAO reports issued in 2017, selected updates conducted in 2017, and ongoing work related to DHS acquisitions and the construction of physical barriers. For ongoing work GAO analyzed DHS and CBP documents, interviewed officials within DHS, and visited border areas in California.

What GAO Found

The U.S. Border Patrol, within the Department of Homeland Security's (DHS) U.S. Customs and Border Protection (CBP), has made progress deploying surveillance technology—a mix of radars, sensors, and cameras—along the southwest U.S. border. As of October 2017, the Border Patrol had completed the planned deployment of select technologies to several states along the southwest border. The Border Patrol has also made progress toward assessing performance of surveillance technologies, but additional actions are needed to fully implement GAO's 2011 and 2014 recommendations in this area. For example, the Border Patrol has not yet used available data to determine the contribution of surveillance technologies to border security efforts.
CBP spent about $2.3 billion to deploy fencing from fiscal years 2007 through 2015 and constructed 654 miles of fencing by 2015. The Border Patrol has reported that border fencing supports agents' ability to respond to illicit cross-border activities by slowing the progress of illegal entrants. GAO reported in February 2017 that CBP was taking a number of steps in sustaining tactical infrastructure—such as fencing, roads, and lighting—along the southwest border. However, CBP has not developed metrics that systematically use data it collects to assess the contributions of border fencing to its mission, as GAO has recommended. CBP concurred with the recommendation and plans to develop metrics by January 2019. Further, CBP established the Border Wall System Program in response to a January 2017 executive order that called for the immediate construction of a southwest border wall. This program is intended to replace and add to existing barriers along the southwest border. In April 2017, DHS leadership gave CBP approval to procure barrier prototypes, which are intended to help inform new design standards for the border wall system.
Physical Barriers in San Diego, California, April 2016
The Border Patrol has faced challenges in achieving a staffing level of 21,370 agents, the statutorily-established minimum from fiscal years 2011 through 2016. As of September 2017, the Border Patrol reported it had about 19,400 agents. GAO reported in November 2017 that Border Patrol officials cited staffing shortages as a challenge for optimal deployment. As a result, officials had to make decisions about how to prioritize activities for deployment given the number of agents available.

What GAO Recommends

In recent reports, GAO made or reiterated recommendations for DHS to, among other things, assess the contributions of technology and fencing to border security. DHS generally agreed, and has actions planned or underway to address these recommendations.