FY 2009 BSFIT Expenditure Plan - FINAL Final 192

FOR OFFICIAL USE ONLY

FOR OFFICIAL USE ONLY

WARNING: This document is FOR OFFICIAL USE ONLY (FOUO). It contains information that may be exempt from public release under the Freedom of Information Act (5 U.S.C. 552). It is to be controlled, stored, handled, transmitted, distributed, and disposed of in accordance with Department of Homeland Security (DHS) policy relating to FOUO information and is not to be released to the public or other personnel who do not have a valid “need-to-know” without prior approval of an authorized DHS official.

U.S. Customs and Border Protection Secure Border Initiative Border Security, Fencing, Infrastructure and Technology (BSFIT)

Fiscal Year 2009 Expenditure Plan

March 4, 2009

000443

FOR OFFICIAL USE ONLY SBI BSFIT EXPENDITURE PLAN

2 of 192 FOR OFFICIAL USE ONLY


Table of Contents Page 4 Legislative Requirements 7 Legislative Requirements Cross-Reference Chart 9 Introduction 17 Background 20 Discussion 20 SECTION 1 – DETAILED ACCOUNTING OF THE PROGRAM’S

IMPLEMENTATION TO DATE FOR ALL INVESTMENTS

20 System Capabilities or Services 27 System Performance Levels 35 Mission Benefits and Outcomes 37 Milestones 42 Costs Targets 43 Program Management Capabilities 51 Identification of the Maximum (including Life-cycle Costs) Required by SBInet or

Successor Contract 52 Description of the Methodology Used to Obtain Cost Figures

53 SECTION 2 – DESCRIPTION OF HOW SPECIFIC PROJECTS FURTHER THE

OBJECTIVES OF THE SECURE BORDER INITIATIVE 64 SECTION 3 – PLAN OF ACTION DEFINING HOW ALL FUNDS ARE TO BE

OBLIGATED TO MEET FUTURE PROGRAM COMMITMENTS

64 Planned Expenditure of Funds 92 SECTION 4 – IDENTIFICATION OF STAFFING, INCLUDING FULL-TIME

EQUIVALENTS, CONTRACTORS, AND DETAILEES, BY PROGRAM OFFICE

92 SBI Programs and Organizations

000444




98 SECTION 5 – ADDRESSING SECURITY NEEDS AT THE NORTHERN BORDER AND PORTS OF ENTRY

98 Addressing Security Needs at the Northern Border

104 SECTION 6 – REPORT ON BUDGET, OBLIGATIONS AND EXPENDITURES,

ACTIVITIES COMPLETED, AND PROGRESS MADE IN OBTAINING OPERATIONAL CONTROL OF THE ENTIRE BORDER OF THE UNITED STATES

130 Certifications 131 Appendix A – Acronym List 133 Appendix B – Status of GAO/OIG Report Recommendations 137 Appendix C – CPO Certification Letter 145 Appendix D – CIO Certification Letter 150 Appendix E – Chief Human Capital Officer Certification 152 Appendix F – Tactical Infrastructure Segment Analysis 168 Appendix G – Supporting Cost Target Information 173 Appendix H – U.S. Customs and Border Protection Report to Congress on SBInet and

Tactical Infrastructure Environmental Plan and Report on Mitigation Efforts

000445




Legislative Requirements

This document responds to the reporting requirements set forth in the Fiscal Year 2009 Department of Homeland Security Appropriations Act (P.L. 110-329), stating:

That of the amount provided under this heading, shall not be obligated until the Committees on Appropriations of the Senate and the House of Representatives receive and approve a plan for expenditure, prepared by the Secretary of Homeland Security and submitted not later than 90 days after the date of the enactment of this Act, for a program to establish and maintain a security barrier along the borders of the United States of fencing and vehicle barriers, where practicable, and other forms of tactical infrastructure and technology, that includes the following—

(1) A detailed accounting of the program’s implementation to date for all investments, including technology and tactical infrastructure, for funding already expended relative to system capabilities or services, system performance levels, mission benefits and outcomes, milestones, cost targets, program management capabilities, identification of the maximum investment, including life cycle costs, related to the Secure Border Initiative program or any successor program, and description of the methodology used to obtain these cost figures;

(2) A description of how specific projects will further the objectives of the Secure Border

Initiative, as defined in the Department of Homeland Security Secure Border Plan, and how the expenditure plan allocates funding to the highest priority border security needs;

(3) An explicit plan of action defining how all funds are to be obligated to meet future

program commitments, with the planned expenditure of funds linked to the milestone-based delivery of specific capabilities, services, performance levels, mission benefits and outcomes, and program management capabilities;

(4) An identification of staffing, including full-time equivalents, contractors, and

detailees, by program office;

(5) A description of how the plan addresses security needs at the Northern Border and POEs, including infrastructure, technology, design and operations requirements, specific locations where funding would be used, and priorities for Northern border activities;

000446

(b) (4)




(6) A report on budget, obligations and expenditures, the activities completed, and the progress made by the program in terms of obtaining operational control of the entire border of the United States;

(7) A listing of all open Government Accountability Office and the Office of Inspector

General recommendations related to the program and the status of Department of Homeland Security actions to address the recommendations, including milestones to fully address such recommendations;

(8) A certification by the Chief Procurement Officer of the Department that the program:

(a) has been reviewed and approved in accordance with the investment management process of the Department, and that the process fulfills all capital planning and investment control requirements and reviews established by the Office of Management and Budget, including as provided in Circular A-11, part 7; (b) that the plans for the program comply with the Federal acquisition rules, requirements, guidelines, and practices, and a description of the actions being taken to address areas of non-compliance, the risk associated with such actions, together with any plans for addressing these risks, and the status of the implementation of such actions; (c) that procedures to prevent conflicts of interest between the prime integrator and major subcontractors are established and that the Secure Border Initiative Program Office has adequate staff and resources to effectively manage the Secure Border Initiative program, all contracts, including the exercise of technical oversight; and (d) the certifications required under this paragraph should be accompanied by all documents or memoranda, as well as documentation and a description of the investment review processes used to obtain such certifications;

(9) A certification by the Chief Information Officer of the Department that: (a) the

system architecture of the program is sufficiently aligned with the information systems enterprise architecture of the Department to minimize future rework, including a description of all aspects of the architecture that were or were not assessed in making the alignment determination, the date of the alignment determination, and any known areas of misalignment together with the associated risks and corrective actions to address any such areas; (b) the program has a risk management process that regularly and proactively identifies, evaluates, mitigates, and monitors risks throughout the system life cycle and communicates high-risk conditions to U.S. Customs and Border Protection and Department of Homeland Security investment decision-makers, as well as a listing of all the program’s high risks and the status of efforts to address such risks; (c) an independent verification and H.R. 2638-84 validation agent is currently under contract for the projects funded under this heading; and (d) the certification required under this paragraph should be

000447




accompanied by all documents or memoranda, as well as documentation and a description of the investment review processes used to obtain such certifications;

(10) A certification by the Chief Human Capital Officer of the Department that the

human capital needs of the Secure Border Initiative program are being addressed so as to ensure adequate staff and resources to effectively manage the Secure Border Initiative, together with a description of SBI staffing priorities;

(11) An analysis by the Secretary for each segment, defined as not more than 15 miles, of

fencing or tactical infrastructure, of the selected approach compared to other, alternative means of achieving operational control, and such analysis should include cost, level of operational control, possible unintended effects on communities, and other factors critical to the decision making process; and

(12) A. Is reviewed by the Government Accountability Office:

(12) B. provided further, that the Secretary shall report to the Committees on the

Appropriations of the Senate and the House of Representatives on the program progress, and obligations and expenditures for all outstanding task orders as well as specific objectives to be achieved through the award of current and remaining task orders planned for the balance of available appropriations at least 15 days before the award of any task order requiring an obligation of funds in an amount greater than and before the award of a task order that would cause cumulative obligations of funds to exceed 50 percent of the total amount appropriated: Provide further, that none of the funds provided under this heading may be obligated unless the Department has complied with section 102(b)(1)(C)(i) of the Illegal Immigration Reform and Immigrant Responsibility Act of 1996 (8 U.S.C. 1103 note), and the Secretary certifies such to the Committees on Appropriations of the Senate and the House of Representatives: Provided further, that none of the funds under this heading may be obligated for any project or activity for which the Secretary has exercised waiver authority pursuant to section 102(c) of the Illegal Immigration Reform and Immigrant Responsibility Act of 1996 (8 U.S.C. 1103 note) until 15 days have elapsed from the date of the publication of the decision in the Federal Register: Provide further, that notwithstanding the previous provisos, $100,000,000 of the amount provide under this heading shall be made available for obligation upon enactment of this Act without restriction.

000448

(b) (6)

(b) (4)




The chart below summarizes the location in the plan where each specific legislative requirement is addressed.

Figure 1 – Legislative Requirements Cross-Reference Chart

NO. LEGISLATIVE REQUIREMENTS PAGE(S)

1

Defines activities, milestones, and costs for implementing the program to date for all investments, including technology and tactical infrastructure; identifies the maximum investment related to the SBInet contract; estimates life-cycle costs; and describes the methodology used to obtain these cost figures.

21 – 52

2

Demonstrates in detail how specific projects will further the goals and objectives of the Secure Border Initiative (SBI), as defined in the DHS Secure Border Plan, and how the expenditure plan allocated funding to the highest priority border security needs;

53 – 63

3

Includes an explicit plan of action for meeting current and future program commitments, specifically showing the current year investment and estimated maximum investment (including life-cycle costs) for funding and under the plan;

64 – 91

4 Identifies funding and staffing requirements by office and functions within the SBI program;

92 – 97

5

Describes in detail how the plan addresses Northern Border and Ports of Entry security needs (including infrastructure, technology, and design and operations requirements); how plan components rely on BSFIT funding; and how SBI has prioritized its Northern Border activities;

98 – 103

6 Reports on budgeting, obligations and expenditures, activities completed, and progress made related to obtaining effective operational control of the border;

104 – 129

7 Lists all open GAO and OIG recommendations, status of efforts to address them, and a timetable for doing so;

133-136 (Appendix B)

8

Includes Chief Procurement Officer certification (1) of the investment management process; (2) that the plan complies with all applicable federal acquisition rules and best practices, reflects contracting administration improvements, and addresses procurement risk; and (3) that there are no conflicts of interest between the prime integrator and subcontractors. This certification should append all relevant documents and memoranda, including documentation and definitions related to the investment review processes used to obtain said certification;

137-144 (Appendix C)

000449




NO. LEGISLATIVE REQUIREMENTS PAGE(S)

9

Includes Chief Information Officer certification that (1) the program system architecture aligns with the information systems architecture of DHS and (2) the program has a risk management process. This certification should append all relevant documents and memoranda, including a description of processes used to obtain said certification;

145-149 (Appendix D)

10

Includes Human Capital Officer certification that the human capital needs of the program are being addressed in a way that ensures adequate staff and resources are available to effectively manage SBI, along with a description of SBI staffing priorities. This certification should include all relevant documents of memoranda, including a description of processes used to obtain said certification;

150-151 (Appendix E)

11

Includes a detailed analysis by the Secretary for each segment, defined as 15 or fewer border miles, comparing a fence of tactical infrastructure solution with alternative means to achieve operational control, such as additional staffing, other technology or infrastructure, or a combination of such components; and

152-167 (Appendix F)

12a It is reviewed by the Government Accountability Office.

12b

Provide further, that none of the funds provided under this heading may be obligated unless the Department has complied with section 102(b)(1)(C)(i) of the Illegal Immigration Reform and Immigrant Responsibility Act of 1996 (8 U.S.C. 1103 note), and the Secretary certifies such to the Committees on Appropriations of the Senate and the House of Representatives

Submitted to Congress on

February 23, 2009

000450




Introduction OUR MISSION The Department of Homeland Security (DHS) is committed to protecting the Nation from dangerous people and dangerous goods by strengthening our border security efforts and gaining effective control of the borders. Five years ago, the creation of U.S. Customs and Border Protection (CBP) within DHS established for the first time a single, unified border agency for the United States. Today, over 51,000 CBP employees serve as the guardians of the Nation’s borders and are America’s frontline. CBP's priority mission is preventing terrorists and terrorist weapons from entering the United States, while also facilitating the flow of legitimate trade and travel. CBP’s mission of safeguarding the American homeland at and beyond the borders is complex and challenging. CBP’s approach to securing the border relies on an appropriate and effective balance of three key elements: personnel; technology; and tactical infrastructure, which includes border fencing, roads, and lighting. SUPPORTING OUR MISSION The Secure Border Initiative (SBI) is a comprehensive multi-year plan established by DHS to secure America’s borders and reduce illegal migration. CBP supports the SBI through law enforcement programs within several program offices – SBI, Office of Border Patrol (OBP), Office of Field Operations (OFO), and the Office of CBP Air & Marine (A&M). Other DHS components, such as U.S. Immigration and Customs Enforcement (ICE), also support the broad initiative. Key enforcement elements of the broader SBI include:

000451

(b) (7)(E)




CBP’s approach to securing the border relies on a balance of the elements essential to our success. Those elements are personnel and force multiplier tools such as infrastructure and technology. Our front-line personnel are the Nation’s most important asset in securing the borders. CBP is rapidly increasing the size of the Border Patrol (BP) with the largest expansion ever of the force. Our goal is to double the number of agents over 2001 levels by the end of Calendar Year (CY) 2008. The mission success of CBP’s agents and officers, however, is undoubtedly enhanced by their access to the tools they need to most effectively and efficiently carry out their duties. Technology is one of those tools, but not the only one. For instance, as of the end of the fiscal year (September 30, 2008), we have already built over 357.4 miles of pedestrian and vehicle fencing between the POEs along the southern border, and we are on target to meet our goal of having approximately 670 miles completed, under construction, or under contract by the end of CY 2008. The SBI program office within CBP was established to manage the development, deployment, and integration of SBI acquisition programs, as well as perform an integration and coordination function for border security programs that are planned and executed by other operational entities. SBI supports CBP’s front-line agents and officers by deploying an optimal, integrated solution that includes the SBInet and SBI Tactical Infrastructure (TI) programs. SBInet is responsible for the development, installation, and integration of technology solutions. SBI TI develops and installs physical components designed to secure the border consisting of the following major components: pedestrian fence (PF), vehicle fence (VF), roads, lights, and vegetation control. The SBI mission is to lead the operational requirements support and documentation as well as the acquisition efforts to develop, deploy, and integrate technology and tactical infrastructure in support of CBP’s efforts to gain and maintain effective control of U.S. land border areas. The development and fielding of the appropriate combination of technology and tactical infrastructure depends on the requirements and needs of the selected areas of deployment outlined by the operational users (e.g., BP agents). These components include ground sensors; communications, camera, and radar towers; tactical response vehicles equipped with laptop computers; as well as roads, barriers, and fences integrated to provide maximum security along the Nation’s borders. While construction of fencing has been the current priority, it is but one element of DHS’s layered defense plan to gain effective control of the borders. DHS’s comprehensive plan includes additional and substantial investments in technology, infrastructure, and enforcement personnel. When fully implemented, SBInet and SBI TI will improve the ability of CBP personnel to rapidly and effectively respond to illegal activities and help DHS and CBP to manage, control, and secure the Nation’s borders. Due to the interdependency of SBI components, each component is vital to the system’s overall success. A system with the technology to detect, identify, and classify illegal entries and

000452




criminal activity, but without the human capability for a rapid response or interdiction, cannot complete the law enforcement mission. Conversely, law enforcement personnel with inadequate intelligence, inadequate physical and technological infrastructure to provide situational awareness, or inadequate equipment to conduct enforcement activities are much less likely to be effective in today’s dynamic border enforcement environment. Border Security, Fencing, Infrastructure and Technology (BSFIT) funds received in Fiscal Year (FY) 2007, FY 2008, and FY 2009 are being used to complete approximately 370 miles of PF, approximately 300 miles of VF, and to continue to develop and deploy SBInet that will improve deterrence, detection, and apprehension of illegal incursions into the United States. The funds support procurement of the materials necessary to complete the PF and VF projects and procurement of the surveillance sensor technology, which includes Mobile Surveillance Systems (MSSs); fixed towers, cameras, radars, and unattended ground sensors (UGS); and a Common Operating Picture (COP). As part of a comprehensive border security solution, the MSSs provide OBP with a tactical advantage within the remote border security environment. The increased ability to detect and classify targets presents a heightened level of situational awareness of the border security landscape than was previously possible. Additionally, these units project a psychological impact on criminal organizations as they realize the toll that sustained MSS operations exact on their enterprise. The COP will provide the means to control and integrate sensors, identify and classify entries, and provide a functional, tactical display of the border that will be visible to both the command centers and agents and officers in the field. This software, when integrated into the overall SBInet system, will deliver enhanced sensor management and situational awareness for CBP operators. CBP’s SBI efforts to deploy technology and tactical infrastructure are in direct support of the broader SBI goal and the BP strategy to gain effective control of the Nation’s borders.

SBI TI The construction of fence and other tactical infrastructure along the southwest border of the United States is being strategically prioritized by CBP. Areas experiencing urban development

000453

(b) (7)(E)




and other special features present unique challenges to ensure adequate infrastructure exists to facilitate response to illegal activity. It is crucial to have enough time to respond to illegal incursions before they can blend into the surrounding community. Persistent impedance is the enduring capability to consistently and constantly slow, delay, and be an obstacle to movement. Physical barriers—fences—tend to be very effective at providing persistent impedance. Persistent impedance, by itself, cannot provide effective control of a border area. However, taken with appropriate mixes of technology and personnel, it can provide significant enhancements in enforcement capabilities. In fact, along some areas of the border, the BP has concluded that persistent impedance is a necessary condition in order to achieve effective control. While technology and the high density deployment of large numbers of personnel make indispensable contributions to achieving persistent impedance, in areas—roughly 670 miles along the southwest border—CBP conducted detailed Analyses of Alternatives (AoAs) that demonstrated physical fencing was the most cost-effective and operationally effective means to achieve this goal (see also Appendix X). In other border areas, persistent impedance may be one of several possible approaches to achieving effective control. Through the AoA process, CBP will compare physical fencing to other infrastructure (e.g., roads or lights), technology, and personnel options in order to select the most effective approach to border control. Four main factors contribute to fence location decisions: (1) initial BP operational assessments; (2) input from stakeholders, including landowners; (3) environmental assessments (EAs); and (4) engineering assessments, which include the estimated cost to construct. In 2008, CBP submitted AoAs to quantify and define the need for physical fence in key areas along the southwest border. CBP has updated those AoAs based on current assessments and to include possible infrastructure investments in 2009. The resulting AoAs are appended to this expenditure plan. In 2007, CBP created the SBI TI program to develop and deploy tactical infrastructure such as roads, lighting, pedestrian fencing, vehicle fencing, and vegetation removal efforts along the southwest border. The TI program is committed to having approximately 670 miles (370 miles of PF and 300 miles of VF) of border fencing completed, under construction, or under contract along the southwest border by December 31, 2008. The fence projects are funded by the balance available from FY 2007 and FY 2008 funds and funding received in

000454




FY 2009. Completion will provide physical infrastructure to the highest priority areas along the southwest border, giving CBP greater flexibility to adjust personnel deployments to address high-risk areas. Collaboration between the SBI TI Program and OBP will continue to ensure the best possible fencing solution for each area of operation. Each area selected for fencing has undergone an environmental review process that includes consultation with Federal, State, and local officials; landowners; and the public. For fence segments in which the National Environmental Policy Act (NEPA)/environmental compliance process was not complete prior to the Secretary’s April 2008 waivers, CBP has completed or will complete Environmental Stewardship Plans (ESPs). As CBP prepared each ESP, it consulted with Federal, State, and local officials; landowners; and the public. For other fence segments where CBP followed the traditional NEPA/environmental compliance process, that process always includes consultation with Federal and State agencies as well as the public. SBI TI has also undertaken various initiatives to provide a cost-effective physical barrier system to meet DHS border security goals while working to create a framework for operations and maintenance (O&M) for all completed TI projects. The Supply and Supply Chain Management (SSCM) initiative at SBI is a comprehensive solution that supports and facilitates the successful execution of both the PF225 and VF300 projects. This SSCM solution ensures that all fence construction materials are available in sufficient quantities and quality, and at the appropriate location(s) to meet the construction schedules, while minimizing resources, material transportation times and costs, and storage costs. Additionally, SBI TI is in the process of establishing a comprehensive TI maintenance and repair (M&R) program across the entire southwest border, which will also include a component to capture and store M&R data so that future work can be better scoped and planned. While this is being developed, SBI TI has also awarded short-term, fence-only maintenance contracts in March to cover fence repair in the El Centro, Tucson, and El Paso BP Sectors for the remainder of FY 2008 and into FY 2009. Since May 2007, CBP has continued to consult with State and local stakeholders, including landowners, about the placement of the remaining miles of border security fencing. As part of these outreach efforts, CBP has contacted almost 600 different landowners and held almost 200 meetings along the southwest border, including town hall meetings, meetings with public groups, meetings with State and local officials, and public open houses focused on the environmental documents. SBINET TECHNOLOGY In addition to the SBI TI efforts, SBInet is implementing technology that includes surveillance, detection, identification, classification, tracking, communications, and command and control

000455

Pick

Highlight




enhancements. SBInet’s initial focus is along the southwest border. SBInet will also increase attention to the northern border by demonstrating integrated technology for addressing the needs and vulnerabilities of the northern border maritime (river/lake), cold weather environment, as well as deploy proven, stand-alone technology that will provide immediate operational benefit. The use of integrated SBInet technology allows CBP agents and officers to efficiently detect, identify, classify, track, and resolve illegal incursions. Detection and tracking solutions include radars and cameras mounted to fixed towers and the MSSs and UGS.

000456

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)




SBInet is designed to provide technological improvements in the area of integration and efficiency, as well as design and display of a COP. We believe this approach in the long run will make our front-line personnel even more effective. KEY INVESTMENTS TO FURTHER BORDER SECURITY CBP’s FY 2009 budget of nearly supports our complex mission of securing the borders against terrorists and terrorist weapons from entering the United States, while also facilitating the flow of legitimate trade and travel. Within this amount, the BSFIT account provides CBP with for high priority investments in technology and tactical infrastructure. In FY 2009, Congress also directed of the BSFIT appropriation to DHS Office of Emergency Communications for the Border Interoperability Demonstration Project. During the past 2 years, over has been appropriated to the BSFIT account to develop and deploy key border security resources to support CBP’s operations. These funds have enabled CBP to establish the SBI office, demonstrate important technology concepts, develop key integration processes and products, and deploy over 500 miles of fencing in high priority areas.

000457

(b) (4)

(b) (4)(b) (4)

(b) (4)

(b) (4)




In FY 2009, CBP will build on these achievements and continue to provide a strong foundation for future deployments. Key initiatives and corresponding funding amounts for FY 2009 include: • Development and Deployment of SBInet Technology and SBI Tactical Infrastructure (TI) –

o SBInet Technology – o TI –

• Operations and Support (O&S), including O&M for SBInet and TI – • Program Management (PM), including personnel and regulatory/environmental requirements

–

FY 2009 BSFIT -

Develop & Deploy Technology ,

Develop & Deploy Tactical Infrastructure,

Operations and Support,

Program Management,

CBP will work to apply these resources during FY 2009 where they can most appropriately assist in achieving and maintaining effective control over the international border. Continued investment will be required to ensure that existing tools are adequately supported and maintained and that additional resources can be developed and deployed to the field.

000458

(b) (4)(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




Background The SBI Programs are led and managed by the SBI Executive Director who is ultimately responsible for their success. The Executive Director is assisted by the SBInet Program Manager and the SBI TI Program Manager who are responsible for the day-to-day operations of their assigned programs. The SBI programs are responsive to needs and requirements of the mission elements that share responsibility for the security of the Nation’s borders. Within CBP, those mission elements include OBP, OFO, A&M, and the Office of Intelligence and Operations Coordination. In addition, SBI is charged to integrate and respond to requirements of mission elements outside of CBP—including but not limited to the U.S. Coast Guard (USCG), ICE, and the DHS Office of Intelligence and Analysis. In meeting its responsibilities, SBI performs four broad types of functions: • Operational Integration: Although SBI does not determine operational requirements, it does

have responsibility to facilitate the synthesis and integration of those requirements on behalf of the mission elements described above. Facilitation and documentation of activities like mission analyses, AoAs, operational assessments, and quantification of operational requirements are conducted as a part of operational integration activities. This function is critical to ensure operational requirements are effectively obtained for both the TI and technology programs.

• Technology Demonstration: As part of its support to the mission elements, SBI has responsibility to assess the opportunities and effectiveness of technology solutions within an operational environment. Technology demonstrations are an effective tool to help develop and define future operational requirements. In many cases, systems deployed as part of a technology demonstration may be left in the field for the continued use of the operational mission element. However, in these cases, the technology demonstration systems do not normally have established logistics support and are generally not “hardened” for long-term operational use. The intent of a technology demonstration is primarily to learn about the technology rather than to provide for a long-term operational capability.

• Commodity Procurement: Mission elements may be aware of already available systems that could be procured (without further development or upgrade) to enhance mission effectiveness. SBI has responsibility to procure these types of systems in response to validated requests from the mission elements. In these cases, the SBI commitment is to deliver the commodities in accordance with their existing technical capabilities, including technology and TI. There is no development or enhancement of the commercially available capabilities.

• System Development: SBI has the responsibility to develop material solutions to fill in “gaps” between currently available capabilities, and the needs of the operational mission elements for enhanced, upgraded, or increased capabilities. In performing this function, SBI

000459




operates in accordance with DHS acquisition policies related to the System Development Life Cycle. Where operational mission elements can define and quantify a required capability end-state, SBI will perform development against an approved Operational Requirements Document (ORD). Where the requirement is less well defined or where capabilities are available as opportunities, SBI will perform development against an Operational Capabilities Document (OCD). In either case—ORD or OCD—SBI acts in response to the needs and desires of the operational mission elements.

SBI has major investment concentrations, which support the above functions, shown also in the BSFIT Plans, Programs, and Activity categories: 1. PM: • PM provides for the necessary Government and support personnel, tools, planning,

processes, procedures, and resource matrices in an integrated and effective manner to enable all other program objectives to be successfully implemented, while ensuring alignment across the program.

2. Development and Deployment:

3. O&M/O&S: • Provides logistics support – supply, maintenance, and training services – to operate and

maintain all SBInet technology deployments and legacy detection and communication systems. A combination of Government and contractor logistics activities will provide

000460

(b) (7)(E)

(b) (7)(E)




maintenance management, system support analysis, call center operations, asset management, critical property, spare parts storage, management and inventory records, field services, and training.

• Provides M&R services for all types of TI, both legacy and newly constructed, to include fence and gate M&R, road and bridge M&R, drainage structure and grate M&R, lighting and electrical system M&R, vegetation management and control, and debris removal. In addition to providing M&R services, a comprehensive maintenance tracking database will be implemented to capture pertinent metrics for planning future TI construction projects, evaluating possible changes to border operations, and formulating out-year TI O&M budgets.

The SBI TI Program Manager and SBInet Program Manager are dedicated to the best practice principles for PM and contract administration used within the Government, and they are taking the necessary steps to ensure these principles are maintained and followed throughout the program life-cycle.

000461




Discussion

SECTION 1 DETAILED ACCOUNTING OF THE PROGRAM’S IMPLEMENTATION TO DATE

FOR ALL INVESTMENTS

This section focuses on legislative requirement (1), a detailed accounting of the program’s implementation to date for all investments, including technology and TI, for funding already expended relative to system capabilities or services, system performance levels, mission benefits and outcomes, milestones, cost targets, program management capabilities, identification of the maximum investment, including life cycle costs, related to the SBI program or any successor program, and description of the methodology used to obtain these cost figures. This section should not be read in isolation from the other sections of the Expenditure Plan, which provide significant supplementary information that contribute to understanding how SBI addresses this important area. SYSTEM CAPABILITIES OR SERVICES SBI TI Progress in Deploying Persistent Impedance Capability Persistent impedance is the enduring capability to consistently and constantly slow, delay, and be an obstacle to movement. Pedestrian and vehicle fences are utilized to provide this capability along the borders. As of September 30, 2008, CBP had constructed a total of 357.4 miles of fencing (203.7 miles of PF and 153.7 miles of VF). Of this amount, 93.2 miles of fencing was constructed during FY 2008 (49 miles of PF and 44.2 miles of VF). Capability and performance outcomes are already being realized as described under Mission Benefits and Outcomes. Life-Cycle Fence Costs We anticipate the fence will have a 20-year useful life. In addition to the cost of construction, the primary factor contributing to the life-cycle cost is O&M. This O&M cost is largely influenced by costs of repair resulting from illegal activity. Weather related damage such as erosion and scour from wind and water will also contribute to maintenance costs. Moreover, given the magnitude of the current TI deployment activities, our ability to more accurately estimate future O&M costs is limited as BP agents and National Guard resources have been maintaining the fence. Accordingly, we do not have historical cost data on fence repair as a base to estimate future costs. We are working with an independent cost estimator to develop a cost estimate. We are currently collecting information and anticipate that we will have enough data by early CY 2009 from which we can assess the life-cycle cost estimate, and plan more accurately for

000462

Pick

Highlight




future budgets and program baselines. In the near term, the FY 2009 President’s budget requests for O&M of TI.

PM As with other CBP SBI programs, SBInet and the SBI TI Program Management Office (SBI TI PMO) is organized into a strong matrix organization headed by a Program Manager who is certified in acquisition PM and reports directly to the SBI Program Executive Director. The strong matrix organizational structure provides for the formation of Integrated Project Teams composed of the dedicated functional personnel required to execute SBI TI projects. Appropriate representatives of the U.S. Army Corp of Engineers (USACE), and other Government stakeholder organizations are active participants in the Integrated Project Teams. The SBI TI Program was established in the Fall of 2007 to manage the unprecedented investment in TI along the southwest border. A comprehensive staffing plan, along with defined roles and responsibilities for each position in the office, was prepared and used to guide and manage priority staffing requirements. Moreover, an intensive and focused staffing effort is ongoing to ensure that the office is adequately staffed with the Government professionals and contractor support necessary to accomplish its mission. Recurring internal communications, reporting channels, and knowledge sharing systems have been established, and are being utilized to integrate and align the office’s activities. This includes weekly integrated PM reviews. Program and project information is maintained in shared repositories, and an Integrated Master Schedule (IMS) has been developed. SBI TI uses a web-based project management system designed to capture, store, and present all information relating to the planning, execution, and administration of the PF225 and VF300 projects known as the TI Program Overview (TIPO). It was developed and is maintained by USACE and tracks all fence projects, their schedule and costs, real estate acquisition, and supporting documents such as individual project statements of work and task orders. The opening screen presents a snapshot of status for all projects in the SBI TI Program for high-level reporting. The Sector Book module presents overall project status for either the planning or construction phase of each project; each of the other modules in the system present information for project participants based on needs. These tools and reporting structure provide a robust management program that has enabled visibility and mitigation of risks and issues as they occur. SBInet Technology Progress continues to be made in delivering SBInet system capabilities and services to the operational user. Additionally, the program is being prepared to provide additional capabilities and services in the future by: completing the development and testing and deployment of SBInet Block 1 (described in detail below); conducting demonstrations and deployments, such as the Northern Border Project (NBP), to inform follow-on SBInet blocks; developing advanced

000463

(b) (4)




technology opportunities for insertion; and implementing the capability to sustain SBInet deployments. SBInet Deployments Major SBInet activities to date include the final acceptance of P-28 proof-of-concept technology demonstration in southern Arizona and deployment of additional MSSs to locations along the southwest border. As part of the competitive SBInet solicitation to industry, P-28 was begun in October 2006 to demonstrate Boeing’s proposed solution for SBInet along 28 miles in the Tucson Sector of the southwest border. Boeing, the prime contractor, delivered and integrated all the components of a proof-of-concept border control system, which included

000464

(b) (7)(E)

(b) (7)(E)




SBInet Block 1, including COP SBInet Block 1 represents the first phase of the SBInet system. It is an end-to-end system (hardware, software, and communications) design, development, integration, test, and deployment effort that incorporates user requirements, lessons learned from P-28, and site characterization and planning. Progress in moving Block 1 forward includes the following activities:

000465

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)




On August 19, 2008, the DHS Investment Review Board (IRB) reviewed and approved SBInet’s revised testing and deployment plan. The IRB decision was documented in an Acquisition Decision Memorandum (ADM) dated September 8, 2008, provided in Appendix G. The IRB’s decision required CBP to provide a detailed Acquisition Program Baseline, an IMS, and other programmatic documentation. The IRB guidance aligns with planned actions to address GAO’s recommendations1 to better define SBInet deployments, capabilities, schedule, and life-cycle management processes, as well as improve baselining of SBInet requirements development and establish consistent program documentation. The revised deployment schedule has allowed SBInet to address DOI concerns, reduce program risk, and, most importantly, satisfy the need for thorough integration testing and formal SQT prior to deployment, thus ensuring that SBInet system capabilities are properly tested and proven before beginning further investments. In addition to the system-level design and testing, progress is continuing to be made in preparing for upcoming deployments of the SBInet Block 1 solution to BP Stations in Arizona.

CBP completed the review and approval of the TUS-1 design in June 2008; the AJO-1 design was completed in November 2008.

1 GAO Report, “DHS Needs to Address Significant Risks in Delivering Key Technology Investment” GAO-08-1086.

000466

(b) (7)(E)

(b) (7)(E)

(b) (5)




In the meantime, CBP has completed the design and development of upgraded COP software for the SBInet Block 1 system. This software, when integrated into the overall SBInet system, will deliver enhanced sensor management and situational awareness for CBP operators. To date, CBP has completed: •

The COP software is currently undergoing Functional Qualification Testing (FQT) and system integration testing to be used to support the SQT. The software will be deployed with the initial SBInet Block 1 system in the first quarter of CY 2009. Advanced Technology Developments A multiyear Interagency Agreement (IAA) was established between CBP and DHS’s Science and Technology Directorate (S&T) to research and develop technologies and assess their operational utility for transition to SBInet, monitor and report emerging technologies, test and evaluate emerging solutions, and provide technical support and subject matter expertise. The technology development activities have been directed toward filling identified performance gaps or providing an advantage over technology choices already made in terms of performance, risk reduction, or cost.

An IAA was established between CBP and DOI to conduct follow-on work associated with the Smart Sensor system developed previously by DHS S&T as a Small Business Innovative Research (SBIR) Program initiative. The Smart Sensor technology effort uses advanced digital signal processing technologies to develop and demonstrate clutter reduction and tracking algorithms for existing SBInet radars and cameras; there will be follow-on work to demonstrate this processing on more advanced radars, which will be cheaper and provide improved performance over current systems. Progress to date includes completing the development of an

000467

(b) (5)

(b) (7)(E)

(b) (7)(E)




improved de-clutter algorithm for the radar planned for SBInet Block 1, which will enable real time performance testing to compare the current and improved algorithm to inform a decision on technology insertion. NBP

For additional detail on the NBP, please refer to Section 5 of this report.

000468

(b) (7)(E)

(b) (7)(E)




SBInet System Sustainment CBP has established supply, maintenance, and training services to operate and maintain the SBInet deployments. A combination of Government and contractor logistics activities provide maintenance management, system support analysis, call center operations, critical property management, spare parts storage, inventory records, field services, equipment overhaul, and operator / maintainer initial and refresher training. CBP awarded a follow-on logistics support task order to Boeing in August 2008 to extend P-28 sustainment and to provide the full range of contractor integrated logistics support (ILS), maintenance, and logistics planning services required to meet SBInet sustainment objectives. This includes sustainment of MSSs, the Playas field test facility, and hardware to be deployed as part of the NBP. Government logistics activities include sustainment of deployed legacy systems and P-25 Land Mobile Radios.

SYSTEM PERFORMANCE LEVELS SBInet Technology CBP has established performance metrics and parameters for the SBInet technology solution, such as probability of detection, probability of identification, and operational availability. These operational and system performance parameters were used to design SBInet Block 1, the initial deployment to the southwest border, and are reflected in the following table:

SBInet Block 1 Performance Requirements

Performance Measure Requirements*

Probability of Detection Threshold** – 70 percent

Objective** – 85 percent

Probability of Identification Threshold – 70 percent

Objective – 85 percent

Operational Availability Threshold – 85 percent

Objective – 95 percent * Does not include all components of end-state solution for SBInet deployment to southwest border, e.g. air and marine assets. ** Threshold = minimum acceptable value; objective = target value Higher performance results are expected to be achieved at the end of full deployment along the southwest border, when the full range of technologies planned for the end-state solution are

000469




taken into account, e.g. ground based radars, cameras, air and marine assets. Because technology capabilities vary among individual deployments, each Block deployment’s performance metrics are tailored to its own unique circumstances. The P-28 proof-of-concept prototype is the only SBInet system deployment to date. While it will be replaced by the more robust SBInet Block 1 solution that has been designed based on operational requirements, P-28’s development and operational test and evaluation activities have provided invaluable insight for helping inform the development of SBInet Block 1. For example, SBInet required an independent technical and operational assessment of P-28 and requested that the U.S. Army provide an independent assessment of the P-28 system’s performance and operational effectiveness. In response to this request, the Army assembled an Independent Test and Evaluation (IT&E) Team comprised of the Program Executive Office (POE) Command Control Communications (C3T) Special Projects Office, the U.S. Army Test and Evaluation Command, and elements of the U.S. Army Research, Development, and Engineering Command.

DHS prioritized the 12 test cases in the order of the information required to support overall program needs. Time and resources limited formal testing to the top three test cases and three weeks’ observation of P-28 operational utilization by CBP agents and officers. The table below summarizes the three test cases that were executed:

000470

(b) (7)(E)

(b) (7)(E)




This area is characterized by mountain ranges separated by broad alluvial valleys. Elevations vary from approximately 2,525 to 4,210 feet above sea level.

000471

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)




•

000472

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)




o

o

o

o

o

o

Lessons Learned from P-28 A number of valuable technical, acquisition, and operational lessons and areas of focus were identified through the development and operational test of P-28: • Commercial off–the-shelf components cannot be integrated “right out of the box” in the field

without interface design and thorough testing and integration in the laboratory. SBInet is

000473

(b) (7)(E)




now fully testing and integrating the SBInet Block 1 configuration in a Systems Integration Laboratory and Playas field test facility before deployment.

• The demonstration of the technology that was used on P-28 identified that there are more suitable and potentially less expensive technologies that can be used as subsystems. SBInet Block 1 will use different radars, cameras, broadband systems, and agent vehicle hardware.

•

TI – Fence Performance Standards The Fence performance standards were developed initially through the Fence Lab and refined by the Fence Engineering Integrated Project Team through value engineering and based on the expert knowledge and experience of OBP.

000474

(b) (7)(E)




000475

(b) (7)(E)




000476

(b) (7)(E)




MISSION BENEFITS AND OUTCOMES

CBP continues to use P-28 to support operations, learn lessons to improve future systems, and refine concepts of operations for the most efficient employment of CBP resources. Within the limits of the prototype system, as specified in the results of the system characterization testing, P-28 assisted agents in apprehending illegal aliens and seizing pounds of marijuana during FY 2008.

While the final determination of effective control resides at all times with the operational leaders of CBP and may change based upon operational conditions, the combination of technology deployments, TI improvements, and additional trained agents and officers has increased the miles of border under control for the Tucson Sector as follows:

000477

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)




Tucson Sector FY 2007 FY 2008

Effective Control Initial Control Capabilities Established Less Monitored Remote / Low Activity With the upcoming SBInet Block 1 deployment and additional TI and trained personnel, increased gains in levels of control are anticipated based on current threat analysis. TI, while only one layer of the systematic law enforcement approach, has been recognized by the CBP as a necessary contributor to gain effective control of identified border areas. Pedestrian and vehicle fences provide persistent impedance so that agents and officers can gain a tactical advantage. The added physical barrier affords agents additional cover making physical assaults more difficult to carry out. For example, in the Yuma Sector, Barry M. Goldwater Range fence area, apprehensions were down percent in FY 2007 from FY 2006 in part because of the concurrent “standing up” of TI and manpower during FY 2007. Total Yuma apprehensions were down percent in FY 2008 when compared to the same period in FY 2007 ( FY 2008 vs. FY 2007) due in part to continued infrastructure and staffing enhancements during the fiscal year. • Vehicle Drive through traffic in

Border Zones has decreased significantly. o FY 2008 – incursions o FY 2007 – incursions o FY 2006 – incursions

• Of particular significance is the decrease in vehicle drive through traffic in Zones 10 and 11 along the Barry M. Goldwater Range as a direct result of infrastructure enhancements (VF / PF). o FY 2008 – incursions o FY 2007 – incursions o FY 2006 – incursions

Yuma Sector FY 2007 FY 2008

Effective Control miles miles Initial Control Capabilities Established miles miles Less Monitored miles miles Remote / Low Activity miles miles

000478

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)(b) (7)(E)(b) (7)(E)

(b) (7)(E)

(b) (7)(E)(b) (7)(E)

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)(b) (7)(E)

(b) (7)(E)

(b) (7)(E)(b) (7)(E)

(b) (7)(E)

(b) (7)(E)




Another example of the value of persistent impedance exists in the El Paso Sector, Zones and The enforcement zones have gained TI in the form of fencing and have since realized a reduction in apprehensions by percent from FY 2007 to FY 2008. Additionally, border incursions by vehicles have reduced by percent from FY 2007 to FY 2008 in the same zones. This is in part because of the concurrent deployment of TI and manpower during FY 2007. The reduction in illegal incursions through increased gains in control has decreased the risk of environmental damage. This includes the protection of threatened and endangered species by mitigating the amount of garbage and habitat degradation caused by illegal aliens and vehicles used for smuggling. MILESTONES SBInet Technology Milestones The SBInet program continues engineering-level design work, laboratory and field test and evaluation, and site-specific engineering and environmental surveys across all of Arizona in preparation for construction and deployment.

The following table reflects the progress made against the key milestones specified in the FY 2008 SBInet Expenditure Plan.

000479

(b) (5)

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)




Milestone Status

Milestone

FY 2008 Expenditure

Plan

Actual/

Projected

Comments

P-28

P-28 Proof-of-Concept Technology Demonstration Complete

February 2008 February 15, 2008

Final Acceptance by the Government occurred on February 15, 2008. The Government completed follow-on independent operational assessment from May 27, 2008, to June 27, 2008, using the support of U.S. Army; Operational Test Activity.

Common Operating Picture

COP Release 0.5

Fall 2008

December 2008

COP Release 0.5 has been developed and is currently in FQT and system integration testing. Completed FQT in December 2008. Software will be used to support SQT.

Sector Deployment

Tucson and Yuma Sector Deployment Complete

Winter 2010 Summer 2011 Revised as part of the overall re-plan.

SBI TI milestones The SBI TI Program has made tremendous progress towards its goals and mission requirements. As of September 30, 2008, TI has completed more than half of the 670 mile goal within California, Arizona, New Mexico, and Texas. All fence projects are on schedule to be completed by March 2009, with the exception of the San Diego Pack Truck Trail Project, which will be complete in October 2009. Completion of the PF225 schedule is contingent on real estate litigation, which is pending, to acquire the necessary property.

000480




Projects and

Activities Key Milestones

Completion

Date

FY 2007

Obligations

FY 2008

Obligations

Complete ESPs 10/2008

Complete sending offer to sell (value) letters to property owners 08/2008

Complete relocation process for home owners being relocated (13) 11/2008

Complete and issue Request for Proposals (RFPs) for construction 9/2008

All contracts awarded for fence segments 11/2008

Certify Real Estate – Obtain Authority to Construct TBD

PF225

PF225 complete, under construction, or under contract

approximately 370 total miles PF 12/31/2008

Projects and


Completion

Date

FY 2007

Obligations

FY 2008

Obligations

Complete ESPs 11/2008

Complete sending offer to sell (value) letters to property owners 08/2008

Complete relocation process for home owners being relocated N/A

Complete and issue RFPs for construction 10/2008

All contracts awarded for fence segments 12/2008

VF300

Certify Real Estate – Obtain authority to construct 10/2008

000481

(b) (4)

(b) (4)

DEGH1PM

Sticky Note

Marked set by DEGH1PM

Pick

Highlight




Projects and


Completion

Date

FY 2007

Obligations

FY 2008

Obligations

VF300 complete, under construction, or under contract

approximately 300 total miles VF 12/31/2008

Supply & Supply Chain

Manage-ment

Provide steel and fence panels for construction projects 12/2008

Hidalgo Cooper-

ative Agreement

Complete, under construction, or under contract 12/31/2008

Projects and


Completion

Date

FY 2007

Obligations

FY 2008

Obligations

Environmental Clearance (waiver exercised) 9/2005

RFP issued to MATOC contractors 12/2007

Real Estate Acquired 2/2008

Base Contract Awarded 3/2008

Notice to Proceed (NTP) for Construction 4/2008

Bid Option signed 5/2008

BIS Smugglers Gulch

Construction Complete 5/2009

000482

(b) (4)

(b) (4)

(b) (4)




PF225 Performance Accomplishments

As of September 30, 2008

ESPs Completed & Signed 10

Non-Federal Land Acquisition Transactions 377

Federal Land Access (estimated miles) 140

Fence Miles Complete 203.7

Fence Miles Under Construction 66.3

Fence Miles Under Contract 74.9

VF300 Performance Accomplishments


Project-level ESPs Completed 11

Non-Federal Land Acquisition Transactions 12

Federal Land Access (estimated miles)

Fence Miles Complete 153.7

Fence Miles Under Construction 33.3

Fence Miles Awarded 116.2

PF225 and VF300 Outreach Accomplishments


Public Open House Meetings 15

000483

(b) (5)




Town Hall Meetings 20

State, Local, and Tribal Meetings 197

Landowners Contacted over 600

SSCM Accomplishments


Tons of steel delivered (PF and VF) over 130,000

Unique Fence Solutions Accomplishments


Hidalgo Levee Wall – Project Length (miles) 20.5

City of Brownsville – Fence Miles Acquired 6.7

Utah-Brownsville – Fence Length (miles) 0.8

COST TARGETS On August 19, 2008, the DHS IRB reviewed and approved SBInet’s revised testing and deployment plan. The IRB decision was documented in an ADM dated September 8, 2008, that requires, in part, that CBP provide a detailed SBInet Acquisition Program Baseline. The Acquisition Program Baseline is in the process of being approved and includes baseline cost targets for SBInet Block 1, which are outlined in the table below:

SBInet Block 1 Cost Baseline in Then Year Dollars Cost Categories Baseline Threshold* Baseline Objective*

Acquisition O&M

Total Cost

000484

(b) (4)




* Threshold = acceptable value; objective = target value Additionally, On August 19, 2008, the DHS IRB reviewed the SBI TI program. As a result of the DHS IRB, SBI TI was recognized as a separate DHS Non Information Technology Level I investment program, and SBI TI was authorized and required to continue construction of 670 miles of fence as the highest priority BSFIT investment. These aforementioned results were documented in the same ADM dated September 8, 2008, that included SBInet and the other SBI projects as well. The current FY 2009 Funding profile supports completing the remaining fence miles with any remaining funds allocated to beginning initial project scoping, obtaining real estate, and conducting environmental analysis of a CBP southwest border prioritized list of projects. The FY 2009 funding profile is the following:

Cost Categories Cost Targets Acquisition

O&M Total Cost

Additionally, SBI TI continues to work closely with USACE who provide contracting and construction management expertise. SBI TI has several task orders with USACE. See Appendix G for additional Cost Target information. PROGRAM MANAGEMENT CAPABILITIES SBI contains two programs – SBI TI and SBInet. Further progress has been made to strengthen the foundational PM capabilities for successfully managing SBI. The completely self-contained SBI acquisition management office established within the Office of the Commissioner of CBP continues to grow and mature the necessary management and technical disciplines to plan, manage, and acquire SBI systems. This strategic organizational alignment at the highest levels within CBP ensures focused executive leadership, effective communications, and streamlined decision making and execution. The SBI Executive Steering Committee (ESC), formed in 2006, continues to provide oversight of SBI. The ESC brings together a small group of leaders to make integrated corporate decisions on work priorities, scope, and acceptability. The ESC’s scope covers everything CBP is doing for border security, including how money is being spent, the hiring / training of officers and agents, and upgrades to technology and facilities, and coordinates with the Air Council Advisory Board to address all air support issues.

000485

(b) (4)

(b) (4)

(b) (6)




The CBP Deputy Commissioner is the ESC chairperson. The ESC holds regular meetings two to three times a month or more frequently, if needed. The CBP Commissioner attends ESC meetings as available or receives a summary from the Deputy Commissioner for those not attended. In the Deputy Commissioner’s absence, he assigns a designee to chair the ESC. To make best use of its workforce and prepare to meet future challenges with the right resources in place at the right time, SBI prepared and is operating under a Strategic Human Capital Management Plan, approved by CBP leadership. This plan describes the strategy and implementation actions for acquiring, developing, deploying, retaining, and evaluating SBI human capital efforts to ensure the required workforce is available to execute the mission. The human capital planning process is continuous. The Strategic Human Capital Management Plan will be reviewed periodically by SBI leadership and revised to respond to the changing environment. SBInet Recurring internal communications and reporting channels and knowledge sharing systems have been established and are being utilized to integrate and align the Program’s activities. This includes weekly senior staff meetings, weekly status reports, and integrated monthly PM reviews and risk management meetings with the prime contractor. Program and project information is maintained in shared repositories. An IMS has been developed to include both contractor and Government work efforts. A SBInet Program Work Breakdown Structure has been developed and is used for cost estimating, management, and control of contractor and Government efforts. Finally, a financial management database manages and tracks SBInet funds. SBInet has instituted an integrated, rigorous risk management program, which regularly and proactively identifies and controls risks throughout the system life-cycle. The SBInet Risk Management Plan that outlines the requirements for identifying, managing, and reporting risk status has been developed and approved. The risk management program is monitored through a series of reviews, to include monthly Joint Risk Review Boards (JRRB) with the prime contractor. The JRRB is chaired by both the Government and contractor SBInet program managers and diligently monitors program risks and mitigation strategies to ensure unfavorable impacts to program objectives are identified in a timely manner and are avoided or mitigated. High risk areas and status of the efforts to address such risks are reported to the SBI Executive Director and elevated to the SBI ESC. Updates to the SBInet Risk Management Plan will occur annually or on an as needed basis. As one of the legislative requirements from the FY 2008 Department of Homeland Security Appropriations Act (P.L. 110-161), the DHS Chief Information Officer (CIO) was required to certify that the program has a risk management process that regularly and proactively identifies, evaluates, mitigates, and monitors risks throughout the system life-cycle and communicates

000486




high-risk conditions to CBP and DHS investment decision makers. Conditional certification was submitted with the FY 2008 Expenditure Plan and full certification was provided on August 1, 2008. Certification accompanying this Expenditure Plan is contained in Appendix D. SBInet had previously established a formal process improvement program to drive the creation and adoption of key PM, acquisition, and operational activities. The Software Engineering Institute’s Capability Maturity Model Integrated – Acquisition had been adopted as the model for implementing and measuring progress in key process areas critical to the Program’s overall success. The Capability Maturity Model Integrated for Acquisition was selected because it provides the framework and rigor for enlarging the focus of process improvement beyond a single discipline (software development, systems engineering, etc.) to improve all areas that impact successful large-scale systems acquisitions. Prompted in part by GAO recommendations and an overall assessment of SBInet based on the program re-plan, SBI also decided to explore management improvements across the board. As part of this effort, the Program’s process improvement program is being re-engineered. The enhanced approach will consist of implementing and integrating a Capability Management and Continuous Improvement Quality System to tighten the quality assurance and quality improvement focus (internally and externally) around the key components and processes within SBInet 's mission. The system is comprised of three elements: (1) critical capability priority management, (2) critical priority process management, and (3) root cause analysis and problem resolution management. The system will continue to use this well-recognized process standard for a Government acquisition organization. The system will also rely on quality assurance and control as a necessary checking and reviewing capability. In addition to the defined, repeatable processes, the Program has also established Earned Value Management (EVM) as a critical tool for effective PM. EVM is a powerful mechanism for providing insight into cost and schedule performance to both Government and industry. In conformance with Office of Management and Budget direction and the American National Standards Institute-Electronic Industries Alliance 748 standard, SBInet has required that Boeing use EVM on all task orders and secure Government approval of their EVM baseline following award of a task order. Resource loaded schedules are a requirement for all SBInet task orders. Each task order requires that a resource loaded schedule be provided by the contractor. This schedule is reviewed and approved by the Government at the task order’s integrated baseline review. Integrated baseline reviews are required to be conducted within 90 days from task order award. Government approval of the integrated baseline review sets the performance measurement baseline, which includes the resource loaded schedules. Once the performance measurement baseline is approved, the schedules are required to be updated weekly and formally delivered monthly.

000487




SBI TI PM To address the substantial pace and scale of horizontal construction required by the program mission and objectives, SBI TI partnered with USACE’s Engineering Construction Support Office to assist with the execution of all elements of SBI TI including planning, real estate acquisition, NEPA compliance/ ESP completion, engineering and design, contracting, construction oversight, acceptance, reporting, and PM. The SBI TI utilizes standing Integrated Project Teams, technical working groups, and an integrated weekly performance and forecasting (IWPF) meeting to support effective PM across all projects. During the IWPF, SBI TI PMO, USACE, OBP HQ and sector principals, and Subject Matter Experts (SMEs) from all organizations review project status, assess project performance, and forecast performance, risks and issues. This allows program leadership to continuously improve processes while managing risks to optimize specific program results. This also allows decision makers to regularly assess current and future cost risk exposure. The relationship of the IWPF meeting and other weekly PM activities is represented in the diagram below.

Relationship between IWPF and weekly PMO activities.

000488




An information management system approach has been adopted and executed by the SBI TI program to enhance the internal communications and reporting channels. Formal systems are used by both SBI and USACE to track project cost, schedule, and performance, both on a segment and program level. SBI TI also utilizes a collaborative approach to accessing and working with information. Documents such as construction RFPs, fence segment maps, and environmental and real estate analysis are widely accessible to the program team. The SBI TI program control team is utilized by the program to integrate activities across the organization to optimize overall program performance. The TI program control team is responsible for many PM activities, including cost and schedule analysis, process improvement, and risk management. Because the program has significant potential for high severity/high frequency risks, SBI TI has developed an aggressive risk management program to eliminate or minimize the impact of risks and increase the likelihood of positive outcomes. Risk management is a continuous process and the responsibility of all members of the SBI TI team. Lessons learned are also being reported and tracked. An effort is also underway to document existing processes and identify gaps where process improvement is needed. SBI TI currently contains four main functional areas: ILS; Projects; Business Management, Operations, and Reporting; and Environmental Planning and Real Estate. The depiction on the following page provides an illustration of how SBI TI utilizes program control activities to optimize process outputs across these four functional areas.

000489




Utilization of program control to optimize process outputs across functional areas The SBI TI program control group provides the TI Program with the ability to simultaneously conduct rapid, detailed analysis of program performance and provide accurate forecasting. It provides the capacity to support program control requirements outlined in the SBI PM Plan. Program Control SMEs generate, consolidate, evaluate, and report cost, schedule, and technical performance. This team also participates in integrated baseline reviews; and ensures that the performance management baseline is managed per DHS requirements. Specific program requirements that it supports include: • Maintain performance management baseline for all work in program; • Manage baselines; • Monitor control account variance exceeding program thresholds; and • Conduct IBRs. The program control team further supports the TI Program by planning, monitoring, assessing, and forecasting cost performance across the program’s portfolio of projects providing SBI TI

000490




management with the capacity to develop and implement tailored best practices in budget planning, cost control, and financial management. This increased capacity enhances the management of program resources, the monitoring of project progress, and the objective measurement of portfolio performance. The program control team also assists program principals in developing and implementing corrective action, managing change requests, and quickly and accurately reporting program performance to stakeholders. Aiding in effective PM, USACE is the primary responsible party for preparing the independent Government cost estimates for SBI TI projects, with the SBI TI PMO holding approval authority. In addition, SBI TI follows USACE’s value engineering procedures to ensure best value and operationally effective solutions are developed, and that SBI TI is able to select the best design alternatives for the projects, processes, products, and acquisition strategies. TI Process Improvement The SBI TI PMO began planning process improvement activities by identifying existing and new processes based on critical business requirements for meeting the operational objectives of this initiative. Program leadership and SMEs subsequently prioritized business processes and procedures for continuous process improvement. As the process team develops and refines PMO processes and procedures, the team lead then documents, disseminates, and uploads the resulting business and operational supporting products to the designated process asset library. Staff members within SBI then receive an automated notification of these new process assets. also In addition, a process or procedure add/change form feature has been developed to better harness intellectual capital throughout our organization and encourage team members to identify needed change, new solutions, and emergent best practices. The focus is on implementing the guidance of the Software Engineering Institute’s Capability Maturity Model Integrated (CMMI) and working towards maturity level 2. The SBI TI PMO is making significant progress several key process areas, such as Acquisition Requirements Management, Decision Analysis and Resolution, Organizational Process Focus, Organizational Process Definition, and Risk Management. The Business Process Management team is also working jointly with SBInet and SBI Acquisitions process teams to ensure we meet cross organizational standards and to enable our collective staffs to become more cohesive, productive, and efficient in achieving organizational and operational goals and objectives. SBI TI began planning process improvement activities by identifying existing and planned processes based on the business activities in TI. Priorities were assigned for development and updating of processes and procedures. As the processes and procedures were developed or updated they were loaded into the process asset library in SharePoint and a notice of their arrival

000491




was sent to the SBI TI team. A process or procedure add/change form (also resident in the library) has also been developed to encourage team identification of new or changes needed. The guidance of the Software Engineering Institute’s Capability Maturity Model Integrated for Acquisition has been used to ensure that industry best practices of maturity level 2 process areas and some maturity level 3 process areas (Acquisition Requirements Management, Decision Analysis and Resolution, Organizational Process Focus, Organizational Process Definition, and Risk Management) are incorporated as much as possible while reducing any unnecessary documentation overhead. To date, several processes and procedures have been developed or updated with the Software Engineering Institute’s Capability Maturity Model Integrated – Acquisition guidance in mind. The process team has also included references to standards and regulations for work being done under SBI. Major processes currently underway are: • SBI TI Environmental Process that defines roles and responsibilities of environmental

participants and an appendix with a proposed standard Work Breakdown Structure (WBS) for environmental activities to be used in projects. Training started in October 2008 and is ongoing.

• SBI TI Real Estate Land Acquisition Process which also defines roles and responsibilities of participants and an appendix with a proposed standard WBS for land acquisition activities to be used in projects. Training started in October 2008 and is ongoing.

• SBI TI Risk Management Process, detailed in the Risk Management User’s Guide, implemented using the SBI TI Risk Management SharePoint platform. Project/Sector risks and issues are documented in the TIPO system. The SBI TI PMO will also deploy an enhanced risk management module in this web-based application at the end of the first quarter of FY 2009. Notably, 85 percent of SBI TI PMO staff has been trained in our risk management process and analysis tools.

As part of process planning, future development, updating, and implementation will include business project management, data quality management, metrics and reporting, and quality assurance audits and reviews to verify process compliance. The Business Process Management team is working proactively with the SBI Joint Process Board to ensure that cross organizational standards are met enabling groups to work together cohesively between teams.

000492




IDENTIFICATION OF THE MAXIMUM INVESTMENT (INCLUDING LIFE-CYCLE COSTS) SBInet For SBInet (surveillance and detection; Command, Control, and Intelligence (C2I); and communications modernization), the table below identifies the sum of the FY 2007-2008 investment to date and the likely FY 2009-2014 investment required for implementing CBP’s current SBInet development and deployment plans.

Underpinning this investment profile is a comprehensive Block 1 cost estimate. The cost estimate for Block 1 includes deployment of Tucson and Yuma Sectors beginning in 2009 and completing in 2011. Deployment costs are further defined by major hardware (including MSSs and UGS) and software subsystem procurement and deployment, tower site construction and deployment, limited facility improvements, developmental and operational test & evaluation, field support (labor and material), system engineering, and PM. Block 1 O&S costs include contractor-provided logistics and maintenance costs for such items as spares, repair activity, operator and maintenance training, consumables (i.e., fuel), a modest infrastructure for managing personnel, equipment inventories, and Government-furnished property. Based on close collaboration with the operational user community, lessons learned from Block 1, and anticipated upgrades (both technology driven and required of new environments), CBP will finalize the Block 2 capabilities in mid-2010 and set the technical and system requirements in late 2010. The current Block 2 acquisition cost estimate is derived from the Block 1 technical configuration / solution, properly sized for the follow-on sectors (El Paso, Rio Grande Valley,

000493

(b) (4)




Laredo, Del Rio, San Diego, and El Centro). Block 2 O&S costs are estimated in the same manner, but would also include the technology “refresh” costs for earlier Block 1 deployments. SBI TI SBI TI life-cycle costs are being developed for TI by capturing current construction and M&R costs. CBP has little historical data on O&M costs for fence. For two years, under Operation Jump Start, the military was used to repair fence as well as roads. Current fence maintenance is being conducted through a USACE maintenance contract. Current TI O&M estimates are based on this data, projections of additional breaches as more fence is constructed, and other TI maintenance requirements (roads, lights, bridges, etc). We are working with a cost estimator to develop an Independent Government Cost Estimate. Intermediate plans call for USACE contracts to cover maintenance requirements for the remainder of the fiscal year. The data collected on maintenance action frequency and type of maintenance will be used to develop a CBP long-range maintenance strategy. Options to be considered include contract devices, in-house work force, or a combination of the two. Our assumption is that as more TI is deployed, there will be an increase in breach attempts resulting in fence damage that if left un-repaired will diminish the fence’s capability to provide persistent impedance. Due to lack of historical data and lack of M&R experience with the new fence designs and associated roads, our current estimate O&M costs for FY 2009 will evolve. DESCRIPTION OF THE METHODOLOGY USED TO OBTAIN THESE COST FIGURES The methodologies employed to develop the SBInet and TI estimates were a combination of recognized estimating techniques. These included: developing unit costs from various Government and commercial sources and applying those unit costs to known or estimated quantities of items; applying labor rates (both Government and commercial) to estimated or current staff levels; applying cost estimating relationships and factors derived from similar completed Government programs; employing results of analogies to similar efforts not formally documented in a cost estimating relationship or factor; and employing results of analogies to similar efforts along both the southern and northern borders. As part of the ongoing base lining with DHS, SBInet is preparing a comprehensive cost estimate that documents all methods, data, computations, and projections for Block 1 Acquisition and O&S costs. This detailed cost justification document will be available upon DHS approval of the SBInet Block 1 Acquisition Program Baseline. Preliminary SBI TI cost estimates are further refined with USACE Independent Government Cost Estimate information, once CBP and USACE have access to the proposed fence construction site. Cost estimates are also further refined once the appropriate fence type has been determined for the proposed fence segment.

000494




SECTION 2 DESCRIPTION OF HOW SPECIFIC PROJECTS FURTHER THE OBJECTIVES OF

THE SECURE BORDER INITIATIVE This section focuses on legislative requirement (2), to provide description of how specific projects will further the objectives of the SBI, as defined in the DHS Secure Border Plan, and how the expenditure plan allocates funding to the highest priority border security needs. In addition, this section addresses legislative condition (6), a report on budget, obligations and expenditures, the activities completed, and the progress made by the program in terms of obtaining operational control of the entire border of the United States. This section should not be read in isolation from the other sections of the Expenditure Plan that provide significant supplementary information that contribute to understanding how SBI addresses this important area for instance milestones and projects in Section 1 and 3. HOW SPECIFIC PROJECTS FURTHER THE OBJECTIVES OF THE SBI – AS DEFINED IN THE DHS SECURE BORDER PLAN The SBI program addresses the goals and objectives established by the DHS Secure Border Strategic Plan (December 2006), DHS Strategic Plan (2008), CBP Strategic Plan (draft), and the Border Patrol National Strategy. Specifically, SBI directly aligns with the achievement of Goal 1.1 in the DHS SBI Strategy, which states “Develop and deploy the optimal mix of personnel, infrastructure, technology and response capabilities to identify, classify and interdict cross-border violators”. The deployment of SBInet Technology and SBI TI solutions is based on operational assessments of the threats and vulnerabilities to the Nation’s border. CBP prioritizes requirements and allocates funding to the highest priority requirements. Choosing the right solution – a combination of Technology, TI and personnel – to control a given segment is determined through CBP’s standard planning process. While the first consideration is law enforcement operational needs, many other factors must be taken into account, including terrain, waterways, cultural sites, cost, migration patterns, and other important geographical and environmental concerns. Balancing operational priorities with local interests, CBP also obtains input from stakeholders, including landowners, residents, State and local officials, and tribal communities. The following chart shows the specific strategic goals of the DHS Strategic Plan, DHS Secure Border Strategic Plan, CBP Strategic Plan, and OBP National Strategy, where the SBI TI and SBInet programs contribute.

000495




SBI Strategic Alignment of Goals

DHS Strategic Plan

DHS Secure Border Strategic Plan

CBP Strategic Plan

OBP National Strategy

Objective 1.1:

Achieve Effective Control of The

Borders.

Goal 1:

Gain Effective Control of the borders.

Goal 1:

Secure the Nation’s borders to protect

America from the entry of dangerous people and

goods and prevent unlawful trade and

travel.

Objective 1:

Establish substantial probability of

apprehending terrorists and their weapons as

they attempt to enter the United States illegally

between the POEs.

Objective 1.1:


Borders.

Goal 1.1:

Develop and deploy the optimal mix of

personnel, infrastructure, technology, and

response capabilities to identify, classify, and interdict cross-border

violators.

Objective 1.1:

Establish and maintain effective control of air,

land, and maritime borders through the use of appropriate mix of

infrastructure, technology, and

personnel.

Objective 2:

Deter illegal entries through improved

enforcement.

Objective 1.1:


Borders.

Core Enabler:

Strengthen DHS management efforts.

Core Enabler:

Develop the capability to conduct seamlessly

coordinated CBP operations and

information/intelligence sharing, collocating

command and intelligence structures wherever practical and

operationally appropriate.

Objective 4:

Leverage “Smart Border” technology to multiply the effect of

enforcement personnel.

BSFIT funding has been spent almost exclusively on CBP’s efforts to gain control of the border between the POEs. As such, the operational requirements of the BP have been the principal driver of BSFIT planning and expenditures.

000496




CBP’s strategy to secure the Nation’s borders between the POEs is prescribed largely in the National Border Patrol Strategy. The National Border Patrol Strategy, and BSFIT funded activities, most directly support DHS’s Secure Border Goal 1 – Gain effective control of the borders, and Goal 1.1 – “Develop and deploy the optimal mix of personnel, infrastructure, technology, and response capabilities to identify, classify, and interdict cross-border violators.” The following is a brief explanation of the principles employed by BP Sector Chief Patrol Agents in determining their resource requirements and deployments in support of the National Strategy. The primary goal of the National Border Patrol Strategy is Effective Control. Effective Control is achieved when a Chief Patrol Agent determines that agents deployed in any given area are able to: • Detect an illegal entry into the United States between the POEs; • Identify and classify the threat level associated with that illegal entry; • Respond to the area of the illegal entry; and • Bring the situation to a law enforcement resolution (i.e. arrest). Effective Control is established through the proper mix of technology, personnel, and infrastructure (to include PF and VF) that will allow CBP personnel to confront smugglers and other violators before they can get away. The mix of these three components will vary depending on the challenges of the focus area. • Technology is the baseline requirement for any area of operations. It allows us to detect the

entries and to identify and classify the threat. • Personnel provide the response to confront the criminal element. • TI supports the response by either providing access, or extending the time needed for the

response by deterring or slowing the violator’s ability to easily cross the border and escape. The Strategy is to Gain, Maintain, and Expand Effective Control. • Gain: Deploy resources based on known threats, vulnerability, and risk. • Maintain: Sustain effective control once gained and seek efficiencies to allow us to hold the

area with fewer resources. • Expand: As control is gained of any given area, smuggling activity will be displaced to other

areas of operations. Deployment of resources will be adjusted to expand effective control to areas where smuggling activity shifts in reaction to enforcement efforts.

000497




Operational Requirements Based Budget Program (ORBBP) Methodology and Capabilities Enabling Effective Control of the Border OBP has implemented a standardized national planning process that provides allocation-based spending plans tied directly to operational orders and measurable goals at all levels within the organization. This process includes the deployment of sufficient resources to permit development of in-depth intelligence regarding border threats and activity. This process provides for a more all-inclusive analysis of the proper mix of technology, infrastructure, and personnel necessary to achieve established goals by every BP Sector. Ongoing planning, including scheduled yearly updates and deployment of resources in support of the plans, has significantly improved BP’s ability to gauge levels of border security. The ORBBP methodology links Sector and Station level planning, operations, and budgets together. Using this planning and analysis method, budget requests and results are connected, performance is measured against established goals, and field managers are held accountable for their results. Standardized tactical and strategic definitions that explain levels of border security and deployment are developed by HQ and provided to the field. Field managers evaluate operational and enforcement capacity specific to their sector, rank their level of operational control using the standard tactical definitions, and outline their plans to increase operational control using the same set of definitions. This planning process requires identification of resources to incrementally improve border enforcement and security capability through prioritization of resources. The planning process is designed to be flexible enough to allow BP to respond to credible information of an imminent threat of a terrorist incursion or attack, regardless of an area’s level of priority for long-term resource deployment. Each Sector develops operational plans to achieve effective control of the border in their AOR. These plans are updated annually, and provide a baseline assessment of the current level of control throughout their AOR and the resources (e.g., BP agents, air support, fencing, radars, cameras, ground sensors, etc.) needed to ultimately gain effective control of their AOR. Based on an analysis of the terrain and operational dynamic, the BP Planner will determine the right mix of technology, infrastructure, and personnel needed to detect, identify & classify, respond, and resolve illegal incursions in that area. The planner “rates” the different components’ capabilities. The key components employed today are rated against the following capabilities: • Sensors = Detection and Tracking • Cameras = Identification and Classification • Radars, Aircraft, Sensors = Detection and Tracking

000498




• PF = Persistent Pedestrian Impedance/Delay • VF = Persistent Vehicle Impedance/Delay • BP Agents = Response and Resolution Specific projects that further the objectives of the SBI, as defined by the DHS Secure Border Strategic Plan, directly address the above capabilities: SBI TI 1. Completion of approximately 370 miles of PF; and 2. Completion of approximately 300 miles of VF. In FY 2008, SBI TI completed 44.2 miles of new VF and 49.1 miles of new Primary PF. As of September 30, 2008, 203.7 miles of PF and 153.7 miles of VF were constructed along the southwest border. Currently the fence programs are on track to meet the CY 2008 milestone to have approximately 670 miles completed, under construction or under contract. SBInet Technology

The SBI TI and SBInet programs contribute directly to the DHS Secure Border Strategic Plan, Goal 1.1: “Develop and deploy the optimal mix of personnel, infrastructure, technology, and response capabilities to identify, classify, and interdict cross-border violators.” The completion of pedestrian and vehicle fence provides persistent impedance to illegal cross-border traffic between POEs and thus facilitates more efficient and effective patrol and interdiction efforts. The deployment of SBInet sensor, camera, radar, COP, and Command and Control Technology in the TUS-1 and AJO-1 project areas will provide CBP agents and officers with a greatly enhanced ability to identify and classify illegal cross-border activity, as well as facilitate coordinated responses to the activity by personnel.

000499

(b) (7)(E)

(b) (7)(E)




Each of the key components evaluated in determining the level of control along the border functions in a complementary manner to fulfill the required elements necessary for effective control. CBP agents and officers provide the law enforcement response to traffic that is identified and classified through the use of cameras. Detection and tracking capabilities to facilitate the response are carried out by sensors, radars, and aircraft. The persistent impedance provided by pedestrian and vehicle fence provides a tactical advantage to agents and limits the methods of entry and egress from the border on the part of smugglers. On an individual or stand-alone basis, each component is generally insufficient to achieve effective control; however, as an integrated system that is allocated in the necessary proportions, they collectively contribute to securing the border. BSFIT funds from FY 2007, FY 2008, and FY 2009 are being used to complete approximately 370 cumulative miles of PF, 300 miles of VF, and to continue to upgrade the SBInet technology that will improve deterrence, detection, and apprehension of illegal entrants into the United States. The funds support procurement of the surveillance sensor technology, which includes mobile and fixed surveillance platforms, cameras, radars, and UGS. The funds support procurement of the materials that are necessary for completion of the PF and VF projects and the design and testing of SBInet technology components.

SBI and Increased Manning Contribute To Expanding Effective Control Since 2004, BP has used a very complex, analytical process to determine the level of border security. It involves defined analysis of operational data, available resources, third party indicators, and the experience and professional expertise of the BP’s senior field managers. Operational Data. BP uses a variety of operational data to determine the current level of border security. Data include:

• sensor activations;

• known entries;

• agent observations;

• apprehensions;

• narcotic seizures;

• border rescues / deaths; and

• assaults on agents, etc.

The data are examined in-depth. When reviewing apprehensions, considerations include:

• the country of citizenship of the illegal aliens;

• method of entry (foot or vehicle);

• the location of activity;

• smuggling fees; and

• violence associated with the apprehensions.

000500




• the size of the groups or smuggling loads involved;

• the time and day of the activity;

Narcotics seizures are analyzed in terms of the amount of narcotics involved in each seizure, the types of narcotics seized, and whether there were weapons involved. The analysis includes reviews of sector intelligence reports and interviews of apprehended aliens and smugglers.

000501

(b) (7)(E)




Experience and Professional Expertise of Sector Chiefs. The compilation of all that is known about the situation within the AOR is then coupled with the experience and expertise of the BP agents and the knowledge of the AOR to determine the level of border security.

Strategic definitions of effective control are assessed using the following criteria:

Level of Control Criteria

Effective Control

Initial Control CapabilitiesEstablished

Less Monitored

Remote/Low Activity

Current Level of Control. In October 2005, the onboard number of BP agents totaled 11,264. As of September 30, 2008, this total significantly increased to a total of 17,499 BP agents nationwide, which reflects a 55 percent increase over a period of less than 3 years. As highlighted below, as of September 30, 2008, there were 625 miles of the southern border considered under effective control. In FY 2008, 76 additional miles of effective control were achieved through the deployment of additional fencing, sensor technology, and increased personnel numbers.

000502

(b) (7)(E)

(b) (7)(E)




Control of the Border

Control of the Border FY FY FY FY Deployed Resources

(National)

SW Border Miles Effective Control Initial Control Capabilities

Established Less Monitored Remote/Low activity

Northern Border Miles Effective Control Initial Control Capabilities


Coastal Miles Effective Control Initial Control Capabilities


OBP Data as of September 30, 2008 While technology, TI, and other resources will continue to contribute to enhancing effective control of the Nation’s borders, it is important to emphasize that effective control of a specific

segment is not necessarily gained through the deployment of just one tool or resource.

000503

(b) (7)(E)

(b) (7)(E)




Additionally, once established, border security levels remain dynamic. While the goal is always to increase the level of border security, security may decline as a result of many factors. These factors include the effect of enforcement efforts in adjacent stations or sectors, changes in the level or nature of criminal activity, or unanticipated declines in resources availability. Therefore, in order to maintain and expand upon established border security levels, it is critical to continue the appropriate application of personnel, technology, and TI. HOW THE EXPENDITURE PLAN ALLOCATED FUNDING TO THE HIGHEST PRIORITY BORDER SECURITY NEEDS The allocation of funds addresses the highest program priorities for securing the border using technology and TI in accordance with the validated operational requirements of CBP. These operational requirements are translated into detailed funding requirements that align with the DHS Integrated Planning Guidance, which outlines the Secretary’s policy and planning priorities for the Department. The CBP Resource Allocation Plan (RAP) for SBI flows from this guidance and proposes the resources, performance levels, and milestones to best achieve the Secretary’s priorities. The RAP is ultimately translated into the detailed SBI portion of the President’s budget submission to Congress, which reflects the highest border security needs, as determined by the CBP operational requirements. The RAP is a comprehensive plan of the total requirements and actions needed to best achieve the goals, commitments, and priorities of the Department within funding guidance levels. RAP submissions must account for long-term requirements, resources (including human capital, capitalization and investments, operating and maintenance, and potential disposal or termination costs), program milestones, performance targets, and risk assessments. DHS component organizations develop, propose, and prioritize their activities, programs, and associated capabilities with realistic cost estimates to most effectively meet DHS priorities. RAPs address follow-on operations, maintenance, sustainment, and technology refresh costs. During RAP development, components review threat and vulnerability assessments; assess the status, performance, and capabilities of current programs and projects; identify unresolved issues; and evaluate how they can best align resources to meet policy and planning priorities and improve mission effectiveness. With respect to the SBI Expenditure Plan, allocation of resources begins with the funding allocations proposed in the President’s budget as shaped by Congressional direction contained in Appropriation acts, Authorization acts, or other legislation. The Expenditure Plan maintains alignment with the President’s and Congress’ top border security priorities, in formulating the allocation of funding to SBI projects for execution. The SBI Expenditure Plan formulation process fully involves the input, analysis, and assessments of CBP offices, especially OBP, OFO,

000504




and A&M. The SBI Expenditure Plan, with its allocation of funding to the highest priority border security needs at the project level, is ultimately endorsed by CBP and DHS. The allocation of funds for the deployment of SBInet technology and SBI TI solutions is based on operational assessments of the threats and vulnerabilities to the Nation’s border. Heretofore, allocated funding has been spent almost exclusively on CBP’s efforts to gain control of the border between the POEs. As such, the operational requirements of the BP, as determined through the ORBBP methodology, have been the principal driver of BSFIT planning and expenditures. The ORBBP methodology requires identification of resources, including TI and technology, to incrementally improve border enforcement and security capability. Based on operational experience and area knowledge, OBP determines the right mix of technology, tactical infrastructure, personnel, and other assets needed to detect, identify and classify, respond, and resolve illegal incursions in a given area. OBP “rates” the different components capabilities: • Radars, Aircraft, Sensors; • Cameras, Agents; • Fence; • Agents, Aircraft, Vehicles, Facilities, Roads, Transportation; • Detection and Tracking; • Identification and Classification; • Persistent Impedance/Delay; and • Response and Resolution. These capability components form the basis of specific system acquisition programs. The acquisition program plans and budgets are developed and approved. After appropriate testing, the systems are deployed, operated, and maintained. In the case of personnel assets, hiring is based on DHS approved annual and out-year Future Years Homeland Security Program resource plans.

000505




SECTION 3 PLAN OF ACTION DEFINING HOW ALL FUNDS ARE TO BE OBLIGATED TO

MEET FUTURE PROGRAM COMMITMENTS

This section focuses on legislative condition (3), an explicit plan of action defining how all funds are to be obligated to meet future program commitments, with the planned expenditure of funds linked to the milestone-based delivery of specific capabilities, services, performance levels, mission benefits and outcomes, and program management capabilities. In addition, this section addresses legislative condition (6), a report on budget, obligations and expenditures, the activities completed, and the progress made by the program in terms of obtaining operational control of the entire border of the United States. This section should not be read in isolation from the other sections of the Expenditure Plan that provide significant supplementary information that contribute to understanding how SBI addresses this important area. FY 2009 PLANNED EXPENDITURE OF FUNDS FY 2007, FY 2008, and FY 2009 BSFIT funds are being used to complete approximately 370 cumulative miles of PF, 300 miles of VF, and to continue to develop, test, and deploy the SBInet technology that will improve deterrence, detection, and apprehension of illegal entrants into the United States. The funds support procurement of the surveillance sensor technology, which includes mobile and fixed surveillance platforms, cameras, radars, and UGS. The funds support procurement of the materials that are necessary for completion of the PF and VF projects and the design and testing of SBInet technology components. The allocation of funds addresses the highest program priorities for securing the border using technology and TI in accordance with the validated operational requirements of OBP and the CBP ESC.

000506




* Detailed funding descriptions for FY2009 are provided on the subsequent pages

000507

(b) (4)




BSFIT Appropriation Obligations and Expenditures

FY 2009 SBI Status of Funds As of 11/18/08

($ in thousands)

Appropriation/Fiscal Year Financial PlanGross

Obligations Expenditures

FY 2007 BSFIT

Program Mgmt & Environmental

TI

SBInet

Recoveries

Subtotal FY 2007 BSFIT 1,187,565 1,143,959 851,464

FY 2008 BSFIT


TI

SBInet

Subtotal FY 2008 BSFIT 1,225,000 1,180,064 226,578

FY 2009 BSFIT


TI

SBInet

Border Security Demo Project – Communications

000508

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




Subtotal FY 2009 BSFIT

Other appropriations

FY 2008 BSFIT TI Reprogramming

TOTAL SBI BSFIT

BSFIT Program, Project, and Activity Breakout

FY 2007 BSFIT


O&M

Development and Deployment


FY 2008 BSFIT


O&M




FY 2009 BSFIT

Program Mgmt &

000509

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




Environmental

O&M




TOTAL SBI BSFIT

Detailed Plans for FY 2009 SBI TI Funds The FY 2009 roll-out for SBI TI deployments include: enhancements (gates and canal crossovers) to some FY 2008 PF segments; construction of two new high priority fence segments; real estate planning and acquisitions to support FY 2010 deployments; and funding O&M for all TI projects to date. Of the total FY 2009 appropriation for BSFIT, the SBI TI program will include for Development and Deployment and O&M. The following section describes the major elements of the SBI TI expenditure plan for FY 2009. Enhancements to Existing Infrastructure Several of the PF225 fence segments currently being constructed with FY 2008 funds require enhancements of gates and canal crossovers. These modifications are required to both ensure the operational integrity of the border fence in this area and facilitate BP operations, as well as integrate with local legacy infrastructure—e.g., access roads and established canal architecture. TI New Construction Through analysis of operational requirements, CBP has assessed the highest priority tactical infrastructure projects based on operational need. Although there are a number of high priority TI projects, the highest priority for new construction in FY 2009 was identified as primary PF projects L1-A and L1-B, located in the Marfa BP Sector (Texas). Real Estate Planning and Acquisition Leveraging the significant lessons learned in these areas during FY 2008, real estate planning and acquisitions to support TI construction will continue throughout FY 2009. These critical activities must be completed prior to the execution of FY 2010 TI projects. Funds will be transferred to USACE as needed to research property ownership, secure Rights of Entry onto

000510

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)(b) (4)

Pick

Highlight




proposed sites, conduct property surveys and appraisals, negotiate with property owners, complete purchase transactions (including Special Use Permits with Other Government Agency owners), and support the Department of Justice (DOJ) litigation associated with necessary condemnations. Should condemnations be deemed necessary to secure Rights of Entry and/or property itself, funds will be transferred to DOJ to litigate these cases, to include travel, labor, independent appraisals, and any other supporting efforts required to respond to U.S. District Court orders. TI O&M Based on fence breach data and analysis that SBI TI has reviewed, we are devoting significant resources to ensure the continued operational integrity of all SBI TI projects, including legacy and newly constructed TI. This expenditure also allows us to be financially postured to respond to emergent O&M requirements as the SBI initiative continues to expand across the southern border. This is especially important to preserve the operational return in this significant investment in security infrastructure. SBI TI PLAN OF ACTION

MILESTONES FY 2009 PLANNED OBLIG’NS

OUTPUTS / OUTCOMES

1. Complete PF225 and VF300 Construction Projects

Complete Construction of Pedestrian and Vehicle Fence

Continuing effort Equitable adjustments for construction contracts

• SBI Phase I and II fence segments completed

• Approximately 670 miles of

operational fence deployed on Southwest Border to augment security across eight CBP sectors o Border fence deployed

tailored to meet local operational requirements

o Border fence integrated into CBP’s legacy operational capabilities

• Federal and non-fed land acquired

and rights of entry secured to deploy and maintain SBI TI

Federal, State, and local agency liaison established to coordinate and support the continued deployment and maintenance of TI on the

000511

(b) (4)

(b) (5)




Close-out all FY 2008 Award Contracts

Final administrative close-outs of all FY 2008 projects during 3rd Qtr 2009

Southwest Border systematic/integrated approach to border security

2. Enhance and Expand Southwest Border TI

Construct Enhancements to PF225 and VF300 Phase I and Phase II Fence Projects

Construct Primary PF Gates

Construct Canal Crossovers –

Continuing effort

• All PF225 Rio Grande Valley

segments except O-5 augmented with operational fence gates

• FY 2008 Segments K-2C, K-2D,

K-3 enhanced with canal crossovers to enhance operational security

Construct New Border Fence Continuing effort

• PF225 Marfa segments (L1-A &

L1-B) constructed to extend secure border

Manage TI Strategic Roll-out Provide USACE Program Oversight, Construction Mgmt, & Design (FY 2010 TI Projects)

Travel to support project planning and management

Continuing effort

Conduct Real Estate Planning & Acquisition for FY 2010 TI

Continuing effort

• Critical land acquisition activities completed to reduce FY 2010 cost risk exposure for the strategic rollout of Southwest Border TI

3. Sustain SBI TI Strategic Roll-out

Deploy enterprise resources necessary to sustain operational capabilities provided by SBI TI—Specifically, M&R

Continuing effort

• Logistical assets pre-positioned to provide responsive support for maintaining the operational integrity of SBI TI on the Southwest Border

• Policies and procedures

000512

(b) (4)




implemented to efficiently and effectively provide sustained O&M support of TI

• Agile logistics forward deployed

for rapid, tailored response to local operational needs

• Initial fence breach data captured

to assess border threat response to TI deployment o Impact to future SBI TI

integrated into roll-out planning

• Operational effectiveness

reviewed for impact to CBP operational requirements/priorities

Cost Risk Management Partnering with USACE, the SBI TI PMO has identified the key risks remaining for fence construction. These risks include: late construction starts (as known as “NTP” risks) due to the lack of possession of required real estate in the Rio Grande Valley, construction contingency risks and mitigation costs from previously unknown underground utilities and cultural resources, as well as operationally driven design changes. The SBI TI PMO have formulated a methodology to both assess current cost risk exposure and forecast cumulative program risk costs. In addition, the SBI TI PMO has established a risk reserve allocation based on the resulting risk analysis. The plan is to systematically release monies from this allocation to fund FY 2009 project execution as FY 2008 projects complete construction. This plan for managing cost risk exposure allows the SBI TI PMO to incrementally release funds for executing FY 2009 projects. A phased approach to releasing funds will be taken and is outlined below: Phase I: From now until December 31, 2008 (Rio Grande Valley Sector real estate delay risk): Assuming real estate for Rio Grande Valley is acquired in December 2008, the SBI TI PMO anticipates that any unrealized costs from risks associated with delayed NTPs, could potentially be released.

000513

(b) (4)




Phase II: From December 31, 2008, until the completion of FY 2008 projects (Rio Grande Valley severe real estate delay risk):

Once all Rio Grande Valley properties are obtained, the SBI TI PMO could then assess how much of the risk reserve was unused and release those funds for FY 2009 project execution. In addition, construction contingency risks that have closed due to construction completion in CY 2009 would also be assessed and unneeded risk reserve funds released to FY 2009 TI projects. The decision points for implementing this phased approach for releasing cost risk contingency funds are illustrated in the flowchart on the next page. Cost risk exposure over time based on current cost risk estimates is depicted in on the page that follows the flowchart.

000514

(b) (5)




Decision flowchart for releasing risk contingency funds to FY 2009 projects.

000515




SBI TI Cost Risk Exposure vs. Fence Miles Complete

Detailed Plans for FY 2009 SBInet Technology Funds In FY 2009, SBInet is building on last year’s significant engineering and design accomplishments and preparing to deploy SBInet operational (production) configurations to CBP’s Tucson Sector in Arizona. Of the total FY 2009 appropriation for BSFIT, SBInet (technology) is allocated and the program intends to execute the full

this fiscal year (no planned carry-over).

Border Fence Project Cost Risk Exposure vs Fence Miles Complete Total Task Orders =

(Does not include USACE construction & program oversight, environmental planning or real estate planning or purchase.)

10/7

/08

10/2

1/08

11/4

/08

11/1

8/08

12/2

/08

12/1

6/08

12/3

0/08

1/13

/09

1/27

/09

2/10

/09

2/24

/09

3/10

/09

3/24

/09

4/7/

09

4/21

/09

5/5/

09

5/19

/09

6/2/

09

6/16

/09

6/30

/09

7/14

/09

Schedule (weeks)

Proj

ecte

d C

ost E

xpos

ure

($M

)

300

400

500

600

700

Fenc

e C

ompl

ete

(mile

s)

Remaining Construction Contingency Delayed NTP Cost Exposure Severe RE Impact Cost ExposureSevere RE Impact Fence Complete Adjusted Projected Fence Complete Actual Fence Complete

31 D

EC 0

8

000516

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)(b) (4) (b)

(4)




SBInet will follow a deliberate, event-based plan of action to accomplish the following major objectives in FY 2009:

1.

The table below summarizes this plan of action, linking significant milestones (as appropriate) to planned obligations and associated program outputs/outcomes. SBInet PLAN OF ACTION


OUTPUTS / OUTCOMES

1. Design and Qualify Block 1

Complete Block 1.0 System Design, Integration and Qualification

Continuing effort • Demonstrate Block 1 System performance at Playas in JAN 2009; initiate Southwest Border construction

Develop and Qualify Block 1.x Enhancements, leveraging NBP and Southwest Border Needs

Complete C3I COP Software FQT in DEC 2008; and, NBP Task Order Award MAR 2009

(Executing of

FY 2007 Funds for

NBP)

• For both NBP and for Southwest Border Deployments, complete:

o RVSS, MSS Integrated with the COP

o CBP A&M Blue Force Tracker Integrated with COP

o Demonstrate Mobile COP in NBP

000517

(b) (5)

(b) (4)

(b) (4)




2. Deploy Block I

Construct, Integrate, and Accept TUS-1 and AJO-1

SQT JAN 2009 • 2 Stations deployed for 53 miles of Arizona border surveillance

Prepare Remaining Tucson West, East Deployments

Continuing effort • Long-lead purchases, complete designs for subsequent FY 2010 Station deployments

Procure MSSs Continuing effort • Additional, on-demand Southwest Border surveillance deployed to priority risk areas

Procure Field Office, Property, Permitting Services

Continuing effort • Direct support to deployment and Government acceptance efforts

3. Operate and Sustain Block 1

Increase Boeing ILS for P28, MSSs, Playas, TUS-1, and AJO-1

TUS-1 Construction Start MAR 2009

• Maintain fielded SBInet equipment at operational readiness levels; maintain CBP operators’ and technicians’ proficiency

Subsidize CBP OIT ILS for “Legacy” systems fielded

Continuing effort • Maintain non-SBInet equipment at operational readiness levels

Subsidize CBP OIT ILS for P-25 tactical comms on Southwest Border

Continuing effort • Maintain Land Mobile Radio infrastructure

Invest in transition to CBP organic ILS capabilities

Continuing effort • Enable cost-effective alternative (organic) ILS workforce for SBInet deployments

4. Invest in Communications

Subsidize OIT P-25 tactical comms modernization on Southwest Border

Continuing effort • Expanded, secure radio communications deployed throughout Arizona

000518

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




Procure OneNet circuits for SBInet Arizona

Continuing effort • Expanded, high throughput connectivity for SBInet HQs over DHS-approved backbone

Implement Phase II Microwave Frequency Rebanding

Space and Naval Warfare Systems Center Task Order Award NOV 2008

(Executing of

non-BSFIT Spectrum

Relocation funds

• Fulfill Government mandate to complete vacating auctioned spectrum for commercial entities

5. Procure Technical Support to assist Program Office personnel

Continuing effort

• Specialized systems engineering, modeling and simulation, test program monitoring and management, acquisition management consulting, and ravel and office expenses

As indicated in the table above, our top program priority is to complete successful System SQT by January 2009. This significant milestone will demonstrate and verify the Block 1 system solution meets the operator-specified performance targets and detailed-level functional specifications. Moreover, a successful SQT provides sufficient technical confidence for SBInet to authorize Boeing to construct and deploy TUS-1 and AJO-1 projects to deliver approximately 53 miles of border surveillance and control in the Tucson Sector. Initiating the construction and deployment of SBInet Block 1 to Arizona early in FY 2009 is a high priority as well: we will strive to complete the TUS-1 deployment and enter a formal operational test and evaluation phase by year’s end to provide for a “full rate” production decision as early as practicable in FY 2010. With this favorable full rate decision, SBInet can begin to roll-out capabilities—and enabling effective control of the border—at a significantly accelerated, more cost-effective rate.

000519

(b) (4)

(b) (4)

(b) (4)

(b) (7)(E)




As indicated in the table on the previous page, SBInet is budgeting approximately to develop Block 1.1 and 1.2. CBP proposes that this substantial FY 2009 investment in capabilities directly supporting the NBP (and coincidentally the southwest border deployments) fulfills the Congress’ requirement for SBI to allocate of FY 2009 BSFIT funding for “northern border technologies”. The table on the following page illustrates the FY 2009-2011 SBInet plan of action, milestones, and major investments.

000520

(b) (7)(E)

(b) (4)

(b) (4)

(b) (4)




Overview of SBInet Block 1 Re-Plan Tier 1 Roadmap (preceding chart):

• Provides a schedule of near-term activities and context for follow-on plans: o Focuses on activities funded with FY 2007 and prior funds; o Identifies major program milestones; and o Divides activities into five investment groupings, described below.

• Block 1.0 System Design & Qualification (reference Section 1 in Table 1 on page 71) reflects system-level activities being performed under the System Task Order, COP Task Order, and Independent Verification and Validation (IV&V) contract to complete development and test of the initial SBInet increment to inform a deployment decision. Also includes three follow-on enhancements to the Block 1 design:

• Communications Infrastructure (reference Section 4 in Table 1 on page 72) reflects SBInet communications upgrades necessary for enabling SBInet deployments. o

o

o

o

• Block 1.0 Deployment Design & Acceptance (reference Section 2 in Table 1 on page 71, plus the independent operational testing activities in Section 5 on page 72) shows the near-term southwest border deployments, as well as the NBP. It includes the necessary predecessor laydown design activities required to define the Block 1 system for a particular geographic area, as well as supporting SBInet Field Office activities, land acquisition, facility-related services, construction permits, additional MSS procurements, and independent Operational Test & Evaluation services. o Prior year and FY 2009 funds procure the NBP, TUS-1 and AJO-1 design / deployments,

long-lead for Nogales, and the design for remaining Tucson and Yuma Sector deployments, which are approved deployments to be procured with FY 2010 funds. El Paso Sector design / deployment not yet approved.

• Block 2.0 System Design & Qualification shows the follow-on planning for the next major SBInet design cycle, which will be informed by the lessons learned from Block 1, demonstrations from the NBP, and additional capability needs identified by the user community.

000522

(b) (7)(E)

(b) (7)(E)




• Sustainment (reference Section 3 in Table 1 on page 71) consists of Government and contractor activities and spares required to sustain SBInet and legacy detection / communication deployments, as well as investments to transition to organic support.

The following section describes the funding requirements for each significant milestone in the above table. Design and Qualify Block 1 Pending successful completion of SQT by January 2009, SBInet will begin the design and qualification of Block 1 and authorize Boeing to construct and deploy TUS-1 and AJO-1 projects. Funds will support the following engineering, lay-down, and test and evaluation activities. Systems Task Order (STO) Planned Obligation The initial task order issued under the SBInet contract, called PM Task Order (PMTO), was in effect until mid-April 2008 and has been renamed STO for the follow-on period to emphasize the technical component of the effort. These task orders provide for the foundational PM and systems engineering services required of Boeing to sustain the overall SBInet program. The STO was awarded on April 15, 2008 for a 10-month base period of performance with 2 option periods. As with PMTO, the STO provides the foundational support for the following major areas: • Mission Area and Operational Analysis; • Establishing and Maintaining System Toolbox; • System, Design, Integration, and Testing; and • Program and Business Management. Under the STO, Boeing’s organization continues to be staffed to support the aforementioned scope with a focus on completing the Block 1.0 SBInet System Qualification by the end of the base period of performance. CDR has been closed, and the SQT is scheduled to be completed by the end of December 2008. During the upcoming period of performance, the STO will provide system engineering and System Integration Lab support to the Arizona Project deployments. The STO will also update the system-level requirements to address the northern border as well as incorporating lessons learned and changes to the ORD and subsequent OCD. Improvements to the Block 1.0 SBInet System will include integrating legacy sensors (MSS and RVSS) as well as a laser illuminator

000523

(b) (4)




into a Block 1.1 build. CDR for Block 1.1 will be completed by the end of this period of performance. The STO will continue its support of the project deployments as described above. The STO will also complete the full integration and qualification of the MSSs, RVSSs, and laser illuminator into the Block 1.1 System. C3I System Planned Obligation In FY 2008, an initial C3I operating capability, commonly referred to as the Release 0.5 COP, was developed and tested in preparation for deployment to TUS-1 and AJO-1. The C3I COP is a 3-year task order and the project team is completing the first 14-month base period in February 2009. For FY 2009, it is expected the existing C3I task order, in coordination with the STO, will: • Initiate planning related to Block 1.1 and 1.2 to include formal allocation of requirements to

Command and Control systems segments. •

•

• Design and develop the C2I system and support operational testing of the system to demonstrate operational capabilities in accordance with the requirements.

• Operate and maintain the C2I Release 0.5 software. • Provide Release 0.5 software capability to support the NBP. • Complete development, then O&M of the SBInet Network Operations Center/Security

Operations Center (NOC/SOC). The C3I system to be deployed will include developmental software, commercial software to deploy, and maintain C3I system. Specifically, the SBInet C3I System is expected to be: • A development and maintenance environment to develop, operate and sustain the C2I system

(including facilities, commercial third party license agreements, personnel training, demonstrations, software maintenance, status reporting, and continuity of operations; and

• Software and software support for C2I facilities at TUS-1 and AJO-1. IV&V Planned Obligation

000524

(b) (4)

(b) (7)(E)

(b) (7)(E)

(b) (4)




The DHS CIO certified that an IV&V agent (contract) is in place as outlined in the 2009 BSFIT Expenditure Plan legislative reporting requirements. A contract has been established to conduct IV&V of the SBInet C3I software, trace C3I requirements to software functions, ensure the software meets the requirements and is reliable and maintainable, and determine whether the software satisfies its intended use and user needs. In FY 2009, the first priority is to develop a Plan of Action and Milestones for TUS-1 and Block 1. Deploy Block 1 Deployment of Block 1 includes constructing, integrating, and accepting TUS-1 and AJO-1. It also includes preparing remaining deployments, procuring MSSs, and procuring field office and property permitting services. Funds will support the following lay-down, facilities, and test and evaluation activities. Southwest Field Office Operations (SWFO) Planned Obligation The SWFO supports all deployment activities associated with projects under the deployment division. The SWFO assists in the management and oversight of Task Orders and functions as the contracting officer’s technical representative in the field and interfaces and collaborates with other Task Order Managers in SBInet. Through appropriate staffing and funding, the SWFO confers with program and project managers as well as project analysts to provide technical advice and to assist with problem resolution. The SWFO participates in technical and analytical work pertaining to planning, development, acquisition, testing, integration, installation, utilization, or modification of systems, facilities, services, ILS and procedures. It works closely with the prime contractor and their sub-contractors and assists them with the SBInet deployment and implementations; this includes interacting with the customer and associated stakeholders. The SWFO has the ability to identify strategies and implement programs, which contribute to providing top quality service. FY 2009, is planned to continue operations throughout the year for leasing office space, office furniture, vehicle fuel and maintenance, janitorial services, office equipment, communications, travel, and training.

000525

(b) (4)

(b) (4)

(b) (4)(b)(4); (b)(7)(E)




Land Acquisitions, Architect and Engineering (A&E), and Facilities Planning Planned Obligation The long-term sustainment strategy for SBInet is organic CBP support. In order for this organic capability to be established, SBInet will need to work with legacy CBP offices, such as Facilities, Maintenance and Engineering (FM&E) within the Office of Finance and OIT, to begin the process of planning the organic SBInet Facilities need and meld this in with the overall CBP program for facilities. USACE will support the real estate acquisition process to purchase real estate from private landowners. The sites will be in the Tucson East, Tucson West, TUS-1, AJO-1, Tohono O’dham Nation, Northern Border and El Paso-1 Project Areas. Design Task Order Planned Obligation The Design Task Order with Boeing develops the detailed lay-down designs and plans for the deployment of the SBInet System. The Task Order is designed to employ the necessary technical, environmental, and pre-construction requirements. Reviews, including the Deployment Planning Review (DPR), Deployment Design Review (DDR), and Deployment Readiness Review (DRR), are conducted to evaluate the requirements for each EA project area, or each BP station within a BP sector. DPR is held to ensure that SBInet, the user community, and external stakeholders understand the requirements and constraints unique to a given Project Lay-down area, as well as understanding the capabilities and constraints of the SBInet Block intended for deployment. This review also sets an initial baseline for deployment site locations. DDR is held to review the information needed to complete the NEPA process and to review and approve long lead purchases. DRR is held to assess the readiness of the program to enter the site preparation and construction phases. In FY 2008, El Paso, Yuma, and Tucson Sectors completed preliminary lay-down design and some detail lay-down design. Within the Tucson Sector, DDR and DRR for TUS-1 and DDR for AJO-1 were completed. Environmental Findings of No Significant Impact were completed for the El Paso Phase 1 and Tucson West EAs areas. In FY 2009, CBP plans to complete DRR for AJO-1, and both DPR and DDR for Nogales Station, Sonoita Station, and Tucson Station 2. CBP also anticipates to complete DPR and DDR on Douglas Station, Naco Station, and Wilcox Station; and DRR for Nogales Station, Sonoita Station, and Tucson Station 2.

000526

(b) (7)(E)

(b) (4)

(b) (4)




Arizona Deployment Task Order (ADTO) Planned Obligation

000527

(b) (4)(b) (7)(E)




•

Army Testing Planned Obligation An IAA has been established to conduct Operational Test and Evaluation and Follow-on Operational Test & Evaluation by an independent Government Agency: the U.S. Army IT&E team. The team determines operational effectiveness and suitability of SBInet under realistic operational conditions, determines if the approved key performance parameters and critical operational issues have been satisfied, and as practical integrated into the contractor Developmental Test and Evaluation effort to facilitate resolution of operational test objectives and to familiarize the operational test team with the system. In FY 2009, to commence work and began testing, IAW Block 1 IMS: • TUS-1 SQT observe/collect data; • TUS-1 SAT observe/collect data; and • Conduct TUS-1 Operational Test and Evaluation. Operate and Sustain Block 1 Operations and sustainment of Block 1 requires contractor and Government maintenance and logistics support. Funds will support the following operation and support activities. Boeing ILS Task Order Planned Obligation

000528

(b) (7)(E)

(b) (4)

(b) (4)

(b) (4)




The long-term sustainment strategy for SBInet is organic CBP support. Until an organic capability is established, ILS will be procured from Boeing and or other suppliers, when appropriate. Accordingly, a new task order was awarded in August 2008 to Boeing to provide a full range of ILS maintenance and planning services required to meet SBInet mission objectives. The task order has a base period (August 2008 – September 30, 2009) and two un-priced option periods. FY 2009 planned obligation to provide the following: Contract Staffing Approximately 74 contractor support personnel to perform SBInet

program tasks such as SBInet equipment maintenance, operator training development, asset management, technical documentation, help desk support, and NOC/SOC support.

Facilities Build-out Tucson facility for operating training support and development

of facility support for MSSs in Tucson and Ajo. Spares Purchase P-28, ADTO, and MSS spares – The purchase of spares will be

the end result of the Provisioning Conference, which will determine the type and how much. We are currently in the process of obtaining an IAA with the Federal Aviation Administration (FAA) Logistics Center to obtain logistics support, purchasing of spares, and test equipment. We believe that a potential budget risk exists if SBInet does not obtain another source to purchase spare parts and test equipment. Based on our analysis, we believe that substantial savings in the purchase of spare parts from the FAA Logistics Center.

Test Equipment Purchase P-28, ADTO, and MSS Test Equipment – The purchase of the

test equipment will be the end result of the Provisioning Conference, which will determine the type and how much. We are currently in the process of obtaining an IAA with the FAA Logistics Center to obtain logistics support, purchasing of spares, and test equipment. We believe that a potential budget risk exists if SBInet does not obtain another source to purchase spare parts. Based on our analysis, we believe there are substantial savings in the purchase of spare parts and test equipment from the FAA Logistics Center.

Training Support FAA Academy, OIT, and CBP Office of Training and Development –

Development of organic CBP SBInet maintenance equipment training program.

OIT Transfer for Legacy Support Planned Obligation

000529

(b) (4)

(b) (4)




will be transferred to CBP’s OIT to sustain legacy hardware and software deployed prior to SBInet. •

• Sensor O&M Forward Supply Center and Forward Supply Points – O&M in the field; parts, consumables, and battery support for over deployed sensors; and infrastructure replacement to complete the remaining southern border (Southwest and Southern California).

• Enforcement Technology Program Albuquerque and Lorton Maintenance and Logistics –

administration and configuration support, burdened labor, subcontractor labor, travel/ODCs, and contractor fees.

• Border Enforcement and Management Systems, ICAD – support ICAD program and its

integration within SBI. Support development and enhancements of capturing latitude and longitude of physical locations and displaying this information in a geospatial manner to give managers a visual display of data to make informed decisions. Support CBP personnel and scheduling functions integration with the C3I COP application via the service oriented architecture principles.

• P-25 Tactical Communications Modernization and Microwave and Remote Tower

Infrastructure O&M for support to upgrade Land Mobile Radio tactical communications systems within CBP. Cover expenses for labor, subscriber, and infrastructure equipment maintenance; subscriber and equipment repair and refresh; spare parts; and recurring circuit and site lease costs. O&M of microwave systems and remote tower infrastructure includes inspection and maintenance costs.

Naval Air Systems Command (NAVAIR) Automated Identification Technology (AIT) Planned Obligation An IAA has been established between CBP and NAVAIR to provide AIT and engineering support. The AIT Team serves as an independent Government entity providing engineering and technical services to support CBP in the areas of AIT technologies and the deployment and implementation of equipment and personnel associated with those technologies. Such activities may include, but not be limited to, work in the following areas: • Mission Engineering; • Prime Mission Product; • Facilities and Infrastructure • Test and Evaluation;

000530

(b) (4)

(b) (7)(E)

(b) (4)

(b) (7)(E)




• Integrated Logistic Support; • Deployment and Installation; • PM; • Maintenance Management; • Spare and Repair Parts Allocation; • Support Equipment PM; • Configuration Management; • Document Management; and • Training. NAVAIR will perform the following tasks: • Establishing a process for SBInet document control, tracking, and retrieval; • In conjunction with CBP Asset Management, continuation of updating the CBP Asset

Marking Guideline to standardize asset bar-coding placement procedures and data collection requirements;

• Bar-code tagging and data collection efforts for assets that are part of the MSSs being deployed as part of the SBInet and P-28;

• Analysis of 17 existing and deployed CBP inventory and maintenance software applications. The results of which will be used as the basis to establish one CBP wide system;

• Development of a CBP Software Systems Activity that will maintain configuration controls over all CBP deployed software application programs;

• In conjunction with the SBInet – ILS Directorate in the development of an Integrated Logisitics Support Plan (ILSP) to ensure a smooth and coherent transition from the Integration Contractor to CBP.

Invest in Communications SBInet is implementing technology that includes surveillance, detection, identification, tracking, communications, and command and control enhancements. Funds will support the following lay-down activities. P-25 Tactical Communications Project Planned Obligation CBP has a critical need to modernize its tactical communication assets and move from a mixed analog / digital, leased circuit based architecture to an integrated internet protocol/quality of service (IP/QoS)-based digital network environment. The P-25 Tactical Communication Project upgrades CBP Land Mobile Radios to P-25 systems and enables GPS for SBInet COP Blue Force Tracking. CBP OIT Wireless Technology Program (WTP) will support P-25 tactical communications (TacCom) modernization and provide: • Initiation and assessment planning for each sector;

000531

(b) (4)




• Requirements gathering and RF site survey analysis; • System design – system includes subscriber units, civil infrastructure, communications

infrastructure (repeaters, controllers) and dispatch equipment. P-25 modernization is dependent on SBInet to provide microwave backhaul in a given project area.

• Spectrum planning and site leasing; • Equipment and infrastructure procurement and installation; and • Acceptance testing, training, and close out. FY 2009, with the planned obligation of for modernization plus for O&M in the previous section, the total P-25 investment is in accordance with approval letter from Congress on the FY 2009 BSFIT reprogramming request. One Net Direct Connect Planned Obligation One Net Direct Connect is a dedicated high speed, native IPv6 wireline network supporting real time COP video, data and VoIP bi-directional direct connectivity between sector HQ, stations, POEs and checkpoints. It provides premium service levels including high availability, dedicated throughput and minimized latency. In addition, Fiber optics based network facilities will accommodate simple upgrade to OC3 data rate throughput for SBInet deployment. In FY 2009, the planned obligation is to obtain CBP OIT services to provide system design and configuration, system procurement and deployment, and system management and maintenance services via FTS 2001 and future contract vehicle. SBInet network bandwidth at CBP locations will be completed in the year prior to start of SBInet /Boeing deployment task order construction phase. Procure Technical Support The Program Office requires engineering and technical service support to assist with the design and implementation of deployments and technology. Funds will support the following activities. A contract has been established with MITRE to provide direct systems engineering analysis and guidance support to Architecture and Systems Design, Logistics, Operations, Maintenance and Facilities, and Planning and Business Operations. A contract has been established with The Johns Hopkins University (JHU) Applied Physics Laboratory (APL) to support SBInet in developing systems engineering processes and methodologies for the design, development, and testing of complex systems for border protection. JHU APL provides systems engineering technical support, modeling and simulation support tool box support, and emerging technical needs support.

000532

(b) (4) (b) (4)(b) (4)

(b) (4)

(b) (4)




An IAA has been established between CBP and DOI, National Business Center, to conduct follow-on work associated with the Smart Sensor system developed previously by DHS S&T as a SBIR Program initiative. Program will build on a current agreement to develop de-clutter and track algorithms for existing toolbox radars and an SBIR managed by DHS S&T to demonstrate a new and improved Radar, Camera, tracking and de-clutter algorithms. Other sensor development and testing will be fused with the tracking algorithms and possess real time capability. An IAA has been established between CBP and S&T to provide system concept development support from Booz Allen Hamilton Inc. The team analyzes operator needs, business processes, and existing systems to define the inventory of capabilities needed from SBInet. They apply an iterative approach and a structured methodology, Capability Based Requirements Allocation (CBRA), within which operators, industry, and the System Program Office work jointly to define and deploy capabilities. An IAA has been established between CBP and Defense Acquisition University (DAU) to provide senior acquisition, risk management, and Systems Engineering SMEs support. DAU will support Program Planning documentation, COP Trade study, OCD and Block 2 A-Spec development, and Risk Management Assessments. The SBInet Travel Authorization Policy establishes the requirement for Government and contractor personnel supporting SBInet to have travel approval once dates and locations have been determined and confirmation of budget exists. SBI validate travel need and funding availability, prepare and submit travel authorization forms to the appropriate travel approver, make travel reservations, and complete the appropriate post travel activities. Environmental Section Congress authorized BSFIT funding of for environmental planning, assessments, and mitigation for FY 2009. SBI FY 2009 environmental program efforts are focused on investing in tools for improved project planning; integrating the planning efforts for SBInet and TI projects for efficiency and improved consultation with stakeholders; undertaking and expediting the environmental compliance and planning actions for FY 2009 and out-year SBInet and TI projects; and implementing the highest priority mitigation requirements for both SBInet and TI projects. Additional explanation on the environmental plan and mitigation efforts is provided in Appendix H.

000533

(b) (4)




SECTION 4 IDENTIFICATION OF STAFFING, INCLUDING FULL-TIME EQUIVALENTS,

CONTRACTORS, AND DETAILEES, BY PROGRAM OFFICE This section focuses on legislative condition (4), an identification of staffing, including full-time equivalents (FTEs), contractors, and detailees, by program office. SBI PROGRAMS AND ORGANIZATION The SBI Programs are led and managed by the SBI Executive Director who is ultimately responsible for their success. The Executive Director is currently assisted by the SBInet Program Manager and the SBI TI Program Manager who are responsible for the day-to-day operations of their assigned programs. SBI: Current Organizational State Since mid-2008, SBI has been operating under the below organizational chart in order to meet the goals and functions of the SBInet technology and SBI TI programs. As illustrated in the table and the organizational chart below, SBI is currently organized into the following areas: Office of the Executive Director, the Program Control Division, TI, SBInet, and Budget and Finance. The SBI organization is adequately staffed to accomplish its current mission through a combination of Federal, contract, and detailee positions.

Executive Director

Deputy Executive Director

SBInetBudget

and Finance

Program Control Division

Tactical Infrastructure

Secure Border Initiative

000534

Pick

Highlight




SBI: Current Organizational State (continued)

The Program Control Division oversees the activities of SBI’s executive correspondence, audit liaison, administrative services, human resources services, strategic planning and reporting, and ESC coordination. Program Control Division ensures the appropriate coordination with other CBP offices in the aforementioned activities. These functions are executed by five branches: Executive Secretary, Audit Liaison Branch, Human Resources Branch, Office Operations Branch, and the Strategic Planning and Performance Management Branch. The Budget and Finance Division oversees all budget and financial management including budget operations for the Program Executive office, support service contracts, and all budget reporting and correspondence for SBInet and TI. Additionally, Budget and Finance is further responsible for the executive budget reporting and correspondence, audit liaison, responses to Congressional reporting requirements, preparation for appropriations hearings, long-term budget plans for the Future Years Homeland Security Program, financial documentations in support of the CBP internal program and budget reviews, and coordinating material for the IRC/IRB and DHS investment oversight process. These functions are executed by four branches: Budget Execution Branch, Budget Formulation Branch, SBI Budget Reports, and SBI Program Offices Budget Operations Branch. The TI Program is responsible for planning and the execution of construction of all roads (patrol, drag, and access), fence (pedestrian and vehicle), and lighting. As part of this function,


FY 2008 Year-end

Actual FTE

Utilization (SBI)

Current On-

Board (SBI)

Contractor Support

Detailees (incl CBP and

other Federal)

Total Year End

Office of the Executive Director 3.9 3 2 0 5 Program Control Division 16.4 17 10 1 28 Tactical Infrastructure (TI) 13.6 12 20 2 34 Budget and Finance 8.7 9 4 0 13 SBInet 46.4 46 87 15 148

TOTALS: 89.0 87 123 18 228

000535




TI is responsible for the planning and execution of all construction related issues, such as supply, supply chain management, and O&M. The TI organization is also staffed to support the environmental planning and real estate acquisition efforts for both the TI and SBInet programs. TI partners with other organizations, such as USACE, and other Government agencies, such as the DOI and the Environmental Protection Agency. These functions are executed by four divisions: ILS Division, Projects Division, Business Management/Operations Division, and the Environmental Planning and Real Estate Acquisition Division. SBInet provides leadership, PM, and acquisitions management to deploy SBInet technologies. These divisions are aligned with the program’s task orders and task order systems life-cycles and with all resources and full responsibility for cost, schedule, and performance of work. SBInet is responsible for architecture and system design, deployment, ILS, and the interface between operational components to capture and manage operations requirements. These functions are executed by four divisions: Architecture and System Design Division, Deployment Division, ILS Management Division, and the Operational Requirements Division. SBI Organization – Moving Forward Much of the current SBI organization structure was developed in the early stages of the program. As such, SBI recognized it would need to periodically review its personnel resources throughout the program’s life-cycle to ensure it continues to have the human capital required to effectively meet its goals and responsibilities. As the SBI program has progressed, the organization has continued to optimize the alignment of its resources. Under new executive leadership, SBI is streamlining the structure and functions of the organization to further ensure strong PM practices and increased accountability. In doing so, leadership is taking into account lessons learned from the program, as well as recommendations received by GAO and DHS’s Office of Inspector General (OIG). SBI programs are responsive to needs and requirements of the mission elements that share responsibility for the security of the Nation’s borders. Within CBP, those mission elements include OBP, OFO, A&M, and Office of Intelligence and Operations Coordination. In addition, SBI is charged with integrating and responding to requirements of mission elements outside of CBP—including but not limited to the USCG, ICE, and the DHS Office of Intelligence and Analysis. In meeting its responsibilities, SBI performs four broad types of functions: • Operational Integration: Although SBI does not determine operational requirements, it does

have responsibility to facilitate the synthesis and integration of those requirements on behalf of the mission elements described above. Facilitation and documentation of activities like mission analyses, AoAs, operational assessments, and quantification of operational

000536




requirements would be conducted as a part of operational integration activities. This function is critical to ensure operational requirements are effectively obtained for both the tactical infrastructure and technology programs.

• Technology Demonstration: As part of its support to the mission elements, SBI has responsibility to assess the opportunities and effectiveness of technology solutions within an operational environment. Technology demonstrations do not respond to specific operational requirements, but the results of a technology demonstration may help advise the development and definition of future requirements. In many cases, systems deployed as part of a technology demonstration may be left in the field for the continued use of the operational mission element. However, in these cases, the technology demonstration systems do not normally have established logistics support and are generally not “hardened” for long-term operational use. The intent of a technology demonstration is primarily to learn about the technology rather than to provide for a long-term operational capability.

• Commodity Procurement: Mission elements may be aware of already available systems that could be procured (without further development or upgrade) to enhance mission effectiveness. SBI has responsibility to procure these types of systems in response to validated requests from the mission elements. In these cases, the SBI commitment is to deliver the commodities in accordance with their existing technical capabilities, including technology and tactical infrastructure. There is no development or enhancement of the commercially available capabilities.

• System Development: SBI has the responsibility to develop materiel solutions to fill in “gaps” between currently available capabilities, and needs of the operational mission elements for enhanced, upgraded, or increased capabilities. In performing this function, SBI operates in accordance with DHS acquisition policies related to the System Development Life Cycle. Where operational mission elements can define and quantify a required capability end-state, SBI will perform development against an approved ORD. Where the requirement is less well defined or where capabilities are available as opportunities, SBI will perform development against an OCD. In either case—ORD or OCD—SBI acts in response to the needs and desires of the operational mission elements.

Under the New Organization The organization chart depicted below represents the preliminary structure and staffing levels identified by the new SBI executive leadership to effectively manage the programs. It is anticipated that the realigned organization will be in place by January 2009. While the total number of required personnel (all sources) is expected to remain fairly constant during the next few years, SBI anticipates a significant shift in resources from contractor to Federal positions over a period of time. However, contractor support will continue to be required until Federal positions can be filled, as well as for specialized skill sets/hard-to-fill positions, and for surges in workload periods. The projected FTE numbers below refer to the anticipated end-state staffing levels, which SBI is targeting to achieve by late FY 2009/early FY 2010. Further, SBI will

000537

Pick

Highlight




review the organizational structure and staffing again this fiscal year to ensure the levels, skill mix, and construct remain adequate and effective.

Executive Director (SES)Deputy Executive Director (SES)

Administration

Operational Integration

SBInet Program Tactical InfrastructureProgram

Business ManagementOperations System Engineering

6 FTE

5 FTE 4 Cont

50 FTE 15 Cont 10 FTE 6 Cont

15 FTE 5 Cont 55 FTE 15 Cont 40 FTE 10 Cont

Secure Border Initiative

*The total staffing level reflected is 181 FTE and 55 contractors.

SBInet Program Directorate is responsible for technology program design and contractor oversight. These functions will be carried out through the following branches: Sensors and Hardware, C3I Systems, Integration and Deployment, and Systems Management. This organization will receive matrix support from the Business Management Operations and Systems Engineering Organizations, as well as input from the Operational Integration Organization. Associated SBI functional area(s): Technology Demonstration, Commodity Procurement, and Systems Development. TI Program Directorate is responsible for TI program design, including USACE and contractor oversight. To help CBP gain effective control of the Nation’s borders, TI (PF, VF, roads, and lighting) is deployed to regions of the border on the basis of terrain and threat considerations. These functions will be carried out through the following branches: Land and Environment,

000538




Infrastructure Design, Construction Control, and Systems Management. This organization will receive matrix support from the Business Management Operations and Systems Engineering Organizations, as well as input from the Operational Integration Organization. Associated SBI functional area(s): Primarily Commodity Procurement. Operational Integration Directorate is responsible for operational requirements support and documentation, mission analyses, mission modeling and simulation, exercise and operational demonstration support, and acting as the operational liaison, including reaching back to the operational components for input. This organization will create mechanisms that help the mission elements evaluate options, make decisions, and transmit those decisions for action and implementation, including technology and tactical infrastructure solutions. That directorate will not be responsible for defining or validating operational needs; this remains the responsibility of the operational mission elements in that regard (i.e., OBP, OFO, and A&M). These functions will be carried out through the following branches: Operational Requirements and Missions Analysis. Associated SBI functional area(s): Operational Integration. Systems Engineering Directorate is responsible for the technical and performance management, configuration control, testing and evaluation, logistics planning and support, and specialty engineering. It will not be responsible for functional engineering, which will be carried out by our prime contractors. The functions will be carried out through the following branches: Requirements Management, Logistics, Test and Evaluation, and Specialty Engineering. This directorate will provide matrix support to both the SBInet and TI Programs. Associated SBI functional area(s): Technology Demonstration, Commodity Procurement, and Systems Development. Business Management Operations Directorate is responsible for budgets, cost estimation, program documentation, schedule management, risk management, acquisition management and control, and audit. This directorate will provide matrix support to both the SBInet and TI Programs. The functions will be carried out through the following branches: Budget, Cost/Schedule Control, Program Documentation, and Acquisition. Associated SBI functional area(s): Supports the efforts of the SBI directorates executing Technology Demonstration, Commodity Procurement, Systems Development, and Operational Integration. Administration The Administration staff, which reports directly to the Executive Director and Deputy Executive Director, is responsible for correspondence control, tasking and suspense control, personnel matters, and building and space management.

000539




SECTION 5 ADDRESSING SECURITY NEEDS AT THE NORTHERN BORDER AND PORTS THE

POES This section focuses on legislative requirement (5), a description of how the plan addresses security needs at the northern border and POEs, including infrastructure, technology, design and operations requirements, specific locations where funding would be used, and priorities for northern border activities. NORTHERN BORDER PROJECT CBP is in the final stages of developing a Northern Border Strategy. Simultaneously, as part of the DHS Northern Border Security Task Force, CBP has made considerable progress in developing portions of a DHS-wide technological baseline for securing the northern border. In addition, CBP will have involvement in the development of a comprehensive DHS Northern Border Strategy. DHS and CBP have taken many steps to improve security on the northern border, both before and after September 11, 2001. The vision for northern border security consists of a few basic tenets. Between the ports, we need to have situational awareness and interdiction capability commensurate with the threat. At the ports, our officers need to have all the tools possible to identify and separate low-threat from high-threat cargo and travelers, as well as manage other aspects of our large and complex trade relationship with Canada. Intelligence and information should be pushed to those who need it even before they ask. Robust partnerships will increase our effectiveness and that of fellow law enforcement agencies. Finally, as always, the most important key to success is a well-trained, staffed, and motivated workforce of the highest integrity. Additional BP Agents have been deployed from the southwest border to the northern border with a total force of over 2,000 expected by September 2010. We conduct joint operations with the U.S. Department of Defense’s Joint Task Force – North, continue to pilot maritime technology projects incorporating ground based radar and proof of concept multi-sensor systems, and seek increased liaisons with our Canadian partners through Project North Star and the Integrated Border Enforcement Teams. In addition, CBP is expanding air and marine operations on the northern border, including the future deployment of UASs. CBP annually

000540




participates in a joint operation with the USCG with participation from the Royal Canadian Mounted Police and State and local law enforcement agencies. To address both known and potential threats at the northern border, we are creating a stronger, more proactive presence at and between POEs. Six Field Offices and 8 BP sectors encompassing 12 states stretch from the Pacific, across the Rocky Mountains, Great Plains, the Great Lakes, to the Atlantic. To best support this effort, CBP has developed a plan to increase security along the northern border through the accelerated start up of A&M operations at five locations. CBP A&M established the following primary Air Branches on the northern border: • Bellingham, Washington, in fourth quarter of FY 2004; • Plattsburgh, New York, fourth quarter of FY 2006; • Great Falls, Montana, in October 2007; • Grand Forks, North Dakota, in September 2007; and • Great Lakes A&M, Detroit, Michigan, in August 2008. The primary missions of the A&M component are air-to-land border security, air-to-air border security, and water-to-water border security. Each of these new A&M locations were chosen to allow A&M assets to provide the most effective law enforcement response to all suspect activity at the border. In addition, due to its strategic and central location, the North Dakota Air Branch in Grand Forks will have an expanded role. It is currently under review to certify its operational readiness for UAS operations. CBP A&M assets are an integral part of achieving the goal of securing the northern border. The primary approach is to support air, land, and marine interdiction efforts through the application of a wide spectrum of platforms and missions. Air assets also support diversified missions including air interdiction missions, insertion of agents into remote areas to execute enforcement actions (air-mobile concept), airspace security at designated special events, and humanitarian relief. Continued cooperation and operational support is provided for interrelated DHS component missions, as well as outside agencies. The following illustrates the strategic mission sets and capabilities that A&M is focused on providing to the northern border as well as nationwide: •

000541

(b) (7)(E)




000542

(b) (7)(E)




The Director of Air Operations, A&M, is tasked with the planning process for providing the appropriate level of aviation support to the corresponding BP Sector’s Chief Patrol Agent’s priorities in order to gain effective control of their AOR. The Director of Air Operations is the SME on aviation-related requirements and matters to the Chief Patrol Agent of the respective BP Sectors. This usually includes having delegated tactical control over other agency aviation assets supporting that Sector. Air support is effective when utilized as an additional layer of defense behind the tactical units supporting the agents on the border. This allows the aircraft the flexibility to operate independently, searching the areas ground agents cannot easily access, while remaining in a position to assist those same ground agents when they detect that a group of individuals that has passed through the first line of defense. CBP-Air assets greatly decrease the time from detection to apprehension while agent safety is significantly increased thus serving as a force multiplier for the ground agents. In addition, CBP A&M assets maintain an air-to-air posture in Sector AORs. Furthermore, A&M has utilized Congressional funding received in FY 2007 to deploy Marine Interdiction Agents and vessels to the Buffalo and Detroit Marine Units in support of northern border expansion. At present, the three primary threats along the northern border are terrorism, drug trafficking, and illegal immigration. CBP is continuously working to improve the security of U.S. borders by adapting and incorporating new technology, enhancing POE inspection capabilities, and strengthening our efforts between the POEs. However, smugglers and extremists are flexible and adaptive. They will evolve in a continuing attempt to respond to and counter our efforts. To secure this border and facilitate legitimate trade and travel, CBP leverages technology and partnerships to detect cross border incursions between the POEs and, when necessary due to distances or challenging terrain, uses its wide array of vehicles (ATVs, snowmobiles, marine vessels, and aircraft) to interdict them. At the POEs, CBP uses state of the art technology to quickly screen the heavy volume of passengers and cargo transiting the U.S./Canada border to ensure that no illicit goods or travelers cross into the United States. In the trade environment, this is augmented by robust pre-entry and post-release activity commensurate with cargo risk. To accomplish this, CBP emphasizes the importance of leveraging intelligence-driven, integrated operations; partnerships with Federal, State, local, tribal, private sector, and international entities; and sound management principles built on the foundation of the highest ethical standards. CBP will use this strategic approach to deploy further resources to the northern border. We will make decisions regarding execution of the Northern Border Strategy that are informed by

000543




intelligence-based threat analysis. Should there be a change in the perceived threat of cross-border activity or a shift in this activity, this may also affect how and when the Strategy is implemented. SBINET NBP In March 2007, Congress directed CBP to redirect of the BSFIT appropriation “to begin addressing needs and vulnerabilities along the northern border”. Accordingly, CBP began a project to capture requirements for and to develop a SBInet prototype that would inform and demonstrate the technology issues associated with the integration of air, land, and maritime assets into a COP (caveat). On June 17, 2008, the CBP ESC recommended and the DHS Deputy Secretary approved a change in the project to provide a framework for expanding capabilities to more than one area within the Great Lakes region. In addition to the original sector location, three additional areas along the northern border were identified for deployment of additional existing technologies. The NBP is addressing current vulnerabilities along the northern border as expressed by CBP operational components as an interim step to a broader, more comprehensive multi-agency long-term strategy. The two primary objectives of the NBP are the demonstration of the integration of proven technology and air, land, and marine assets into a COP in the Detroit Sector, and the deployment of proven surveillance technology capabilities in the Detroit, Buffalo, and Swanton BP Sectors. In October 2008, Congress directed an additional in BSFIT appropriation “be directed towards Northern Border Technology.” The ESC will consider how these funds can further expand the NBP by evaluating the optimum mix of additional existing technology and systems development while being cognizant of the longer term CBP and DHS Northern Border Strategy. • UGS

UGS enable the BP to develop border awareness by detecting potentially illegal incursions in remote areas. They are designed to provide continuous, low-cost, and covert awareness of cross-border activity. The BP has used UGS systems to great effect on the northern border, and CBP will expand their usage. Work is also underway to mitigate the effects of extreme cold weather on UGS. Additional arrays of UGS, in conjunction with the aviation platforms discussed earlier, will help provide CBP an increased detection and interdiction capability in remote areas of the northern border.

• Tactical Communication CBP’s OIT, Enterprise Wireless Program leads the nationwide Tactical Communications Modernization effort. This project will modernize communications infrastructure and subscriber units for the OBP, OFO, and A&M. While this is important everywhere CBP officers and agents are deployed, in the remote areas of the northern border, robust communications are particularly important. The modernization will provide increased system capacity and expanded communications coverage and will include a communications

000544

(b) (4)

(b) (4)




interoperability capability to meet operational requirements. In parallel with the modernization, Enterprise Wireless Program is responsible for the provisioning of GPS capability for Blue Force Tracking, which will likely be an integral part of the technology solutions deployed on the northern border, for example the SBInet NBP.

Environmental Planning for the Northern Border HQ CBP Facilities, Management, and Engineering in the Office of Finance and SBI have joined efforts to develop and execute a strategy to perform required environmental planning associated with Congressional and DHS direction regarding securing the U.S. northern border. Environmental planning includes developing appropriate NEPA documents; developing plans to comply with the Endangered Species Act, the National Historic Preservation Act, and the Clean Water Act (wetlands and jurisdictional waters); and consulting with affected tribes. The strategy calls for development of up to four programmatic Environmental Impact Statements (EISs) based on the northern sectors (two sectors per EIS). Development of these EISs would include public scoping meetings across the northern sectors to garner public input toward development of the proposed action. CBP initiated coordination with the Advisory Council on Historic Preservation toward development of a border-wide programmatic agreement regarding actions to comply with the National Historic Preservation Act. This programmatic agreement would include each State’s Historic Preservation Officer and affected tribes, and it would significantly streamline and integrate planning from State to State and sector to sector for preserving historic and cultural resources. The Advisory Council on Historic Preservation would also provide subject matter expertise to CBP to facilitate the border-wide agreement with affected States and tribes.

000545




SECTION 6 REPORT ON BUDGET, OBLIGATIONS AND EXPENDITURES, ACTIVITIES

COMPLETED, AND PROGRESS MADE IN OBTAINING OPERATIONAL CONTROL OF THE ENTIRE BORDER OF THE UNITED STATES

This section focuses on legislative requirement legislative condition (6), a report on budget, obligations and expenditures, the activities completed, and the progress made by the program in terms of obtaining operational control of the entire border of the United States. In addition to providing new information this section consolidates information contained in other sections of the Expenditure Plan for the convenience of the reader. This section should not be read in isolation from the other sections of the Expenditure Plan that provide significant supplementary information that contribute to understanding how SBI addresses this important area. BUDGET, OBLIGATIONS, AND EXPENDITURES Key Investments to Further Border Security CBP’s FY 2009 budget of nearly supports our complex mission of securing our borders against terrorists and terrorist weapons from entering the United States, while also facilitating the flow of legitimate trade and travel. Within this amount, the BSFIT account provides CBP with for high priority investments in technology and TI. In FY 2009, Congress also directed of the BSFIT appropriation for the Border Interoperability Demonstration Project. During the past 2 years, over has been appropriated to the BSFIT account to develop and deploy key border security resources to support CBP’s operations. These funds have enabled CBP to establish the SBI program office, demonstrate important technology concepts, develop key integration processes and products, and deploy over 500 miles of fencing in high priority areas.

000546

(b) (4)

(b) (4)(b) (4)

(b) (4)




In FY 2009, CBP will build on these achievements and continue to provide a strong foundation for future deployments. Key initiatives and corresponding funding amounts for FY 2009 include: • Development and Deployment of SBInet Technology and SBI Tactical Infrastructure –

o SBInet Technology – o TI –

• O&S, including O&M for SBInet and TI – • PM, including personnel and regulatory/environmental requirements – (includes

for environmental functions, for PM functions, and in funds for the Border Interoperability Demonstration Project, as directed by Congress).

000547

(b) (4)

(b) (4)

(b) (4)(b) (4)

(b) (4)

(b) (4)(b) (4) (b) (4) (b) (4)




FY 2009 BSFIT -

Develop & Deploy Technology ,

Develop & Deploy Tactical Infrastructure,

Operations and Support,

Program Management,

CBP will work to apply these resources during FY 2009 where they can most appropriately assist in achieving and maintaining effective control over the international border. Continued investment will be required to insure that our existing tools are adequately supported and maintained and that additional resources can be developed and deployed to the field. FY 2009 Planned Expenditure of Funds FY 2007, FY 2008, and FY 2009 BSFIT funds are being used to complete approximately 370 cumulative miles of PF, 300 miles of VF, and to continue to develop, test, and deploy the SBInet Technology that will improve deterrence, detection, and apprehension of illegal entrants into the United States. The funds support procurement of the surveillance sensor technology, which includes mobile and fixed surveillance platforms, cameras, radars, and UGS. The funds support procurement of the materials that are necessary for completion of the PF and VF projects and the design and testing of SBInet technology components. The allocation of funds addresses the highest program priorities for securing the border using technology and TI in accordance with the validated operational requirements of OBP and the CBP ESC.

000548

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




SBI BSFIT Programs (dollars are in )

Name Effort

FY 2006 Supp. FY 2007 Actual FY07 Carryover

FY 2008 Approved

Reprogramming (Add to

FY 2008 Aug Realignment

FY2009 Enacted Budget*

1

Management Task Order (System Task Order)Mission Engineering

Advanced Technology DevelopmentAdvanced Technology

2 SBInet Technology

TUCSON Project 28 TUS-1, AJO-1, and NogalesLand AcquisitionSouthwest Field OfficeFOLLOW-ON SECTOR DESIGNS (DTO)TEXAS Mobile SystemNorthern Border LETCMobile Surveillance SystemsUGSCommon Operating Picture Independent Verification and Validation Tactical Communications (P.25 Upgrades &ONENET)

3 Tactical Infrastructure (fence, roads, lights, barriers)

Funds reprogrammed to TI

TUCSONYUMA TUCSON & YUMA TITactical Infrastructure - Fence (PF 225)Tactical Infrastructure - Vehicle Barriers (VF 300)TI FY09 - fence, lights, roadsSan DiegoSupply & Supply Chain Management for VF300/PF225

4 Test and Evaluation

Independent OT&E

5 Operations & Support (Integrated Logistics Support)

SBInet Technology Operations & Support (legacy includFence Operations & Maintenance

6 Program Management

Personnel Operations and Support

Regulatory & Environmental RequirementsFunds for Border Communications Demo Project

TOTALS $

* Detailed funding descriptions for FY2009 are provided on the subsequent pages

Systems Engineering

Mission Engineering

000549

(b) (4)

(b) (4)




BSFIT Appropriation Obligations and Expenditures

FY 2009 SBI Status of Funds As of 11/18/08

Appropriation/Fiscal Year Financial

Plan Gross

Obligations Expenditures

FY 2007 BSFIT


TI

SBInet

Recoveries


FY 2008 BSFIT


TI

SBInet


000550

(b) (4)

(b) (4)




FY 2009 BSFIT


TI

SBInet



Other appropriations


TOTAL SBI BSFIT

BSFIT Plans, Programs, and Activity Breakout

FY 2007 BSFIT


O&M



000551

(b) (4)

(b) (4)




FY 2008 BSFIT


O&M




FY 2009 BSFIT


O&M




TOTAL SBI BSFIT

Detailed Plans for FY 2009 SBI TI Funds The FY 2009 roll-out for SBI TI deployments include: enhancements (gates and canal crossovers) to some FY 2008 PF segments; construction of two new high priority fence segments; real estate planning and acquisitions to support FY 2010 deployments; and funding O&M for all TI projects to date. Of the total FY 2009 appropriation for BSFIT, the SBI TI program will include The following section describes the major elements of the SBI TI expenditure plan for FY 2009. Enhancements to Existing Infrastructure Several of the PF225 fence segments currently being constructed with FY 2008 funds require enhancements of gates and canal crossovers. These modifications are required to both ensure the

000552

(b) (4)

(b) (4)(b) (4)




operational integrity of the border fence in this area and facilitate BP operations, as well as integrate with local legacy infrastructure—e.g., access roads and established canal architecture. TI New Construction Through analysis of operational requirements, CBP has assessed the highest priority TI projects based on operational need. Although there are a number of high priority TI projects, the highest priority for new construction in FY 2009 was identified as primary PF projects L1-A and L1-B, located in Marfa Sector (Texas). Real Estate Planning and Acquisition Leveraging the significant lessons learned in these areas during FY 2008, real estate planning and acquisitions to support TI construction will continue throughout FY 2009. These critical activities must be completed prior to the execution of FY 2010 TI projects. Funds will be transferred to USACE as needed to research property ownership, secure Rights of Entry onto proposed sites, conduct property surveys and appraisals, negotiate with property owners, complete purchase transactions (including Special Use Permits with Other Government Agency owners), and support the Department of Justice litigation associated with necessary condemnations. Should condemnations be deemed necessary to secure Rights of Entry and/or property itself, funds will be transferred to DOJ to litigate these cases, to include travel, labor, independent appraisals and any other supporting efforts required to respond to U.S. District Court orders. O&M Based on fence breach data and analysis that SBI TI has reviewed, we are devoting significant resources to ensure the continued operational integrity of all SBI TI projects. This expenditure also allows us to be financially postured to respond to emergent O&M requirements as the SBI initiative continues to expand across the southern border. This is especially important to preserve the operational return in this significant investment in security infrastructure. Cost Risk Management Partnering with USACE, the SBI TI PMO has identified the key risks remaining for fence construction. These risks include: late construction starts (as known as “NTP” risks) due to the lack of possession of required real estate in the Rio Grande Valley, construction contingency risks and mitigation costs from previously unknown underground utilities and cultural resources, as well operationally driven design changes. The SBI TI PMO have formulated a methodology to both assess current cost risk exposure and forecast cumulative program risk costs. In addition, the SBI TI PMO has established a risk reserve allocation based on the resulting risk analysis. The plan is to systematically release monies from this allocation to fund FY 2009 project execution as FY 2008 projects complete construction. This plan for managing cost risk

000553




exposure allows the SBI TI PMO to incrementally release funds for executing FY 2009 projects. A phased approach to releasing funds will be taken and is outlined below: Phase I: From now until December 31, 2008 (Rio Grande Valley Sector real estate delay risk):

Phase II: From December 31, 2008, until the completion of FY 2008 projects (Rio Grande Valley severe real estate delay risk):

SBI TI program will keep DHS and OMB updated on the real estate acquisition. Detailed Plans for FY 2009 SBInet Technology Funds In FY 2009, SBInet is building on last year’s significant engineering and design accomplishments and preparing to deploy SBInet operational (production) configurations to CBP’s Tucson Sector in Arizona. Of the total FY 2009 appropriation for BSFIT, SBInet (technology) is allocated and the program intends to execute the full

this fiscal year (no planned carry-over). SBInet will follow a deliberate, event-based plan of action to accomplish the following major objectives in FY 2009:

1. Complete the design, development, and qualification of SBInet Block I configuration; 2. Complete the construction and deployment of the initial SBInet Block 1 configuration in

two Tucson Sector areas of operation – TUS-1 and AJO-1 – and launching the northern border demonstration project with readily available surveillance and security systems;

3. Expand the operations and sustainment of SBInet Block 1 for P-28 configuration, the Playas field test site, plus the addition of the TUS-1 and AJO-1 deployments, the NBP, and also the addition of up to 18 more MSSs (for a total of 62 operational assets);

000554

(b) (5)

(b) (5)

(b) (4)(b) (4) (b)

(4)




4. Continue the funding of the OIT-managed tactical communications modernization efforts across the southwest border, and connect SBInet operational command centers to DHS’s OneNet; and

5. Procure specialized technical support services to augment Government staff skills for improved, cost-effective PM.

The table below summarizes this plan of action, linking significant milestones (as appropriate) to planned obligations and associated program outputs/outcomes. SBInet PLAN OF ACTION


OUTPUTS / OUTCOMES

1. Design and Qualify Block 1

Complete Block 1.0 System Design, Integration and Qualification

Continuing effort • Demonstrate Block 1 System performance at Playas in JAN 2009; initiate Southwest Border construction

Develop and Qualify Block 1.x Enhancements, leveraging NBP and Southwest Border Needs

Complete C3I COP Software FQT in DEC 2008; and, NBP Task Order Award MAR 2009

(Executing of FY

2007 Funds for NBP)

• For both NBP and for Southwest Border Deployments, complete

o RVSS, MSS Integrated with the COP

o CBP A&M Blue Force Tracker Integrated with COP

o Demonstrate Mobile COP in NBP

2. Deploy Block I

Construct, Integrate, and Accept TUS-1 and AJO-1

SQT JAN 2009 • 2 Stations deployed for 53 miles of Arizona border surveillance

Prepare Remaining Tucson West, East Deployments

Continuing effort • Long-lead purchases, complete designs for subsequent FY 2010 Station deployments

Procure MSSs Continuing effort • Additional, on-demand Southwest Border surveillance deployed to priority risk areas

000555

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




Procure Field Office, Property, Permitting Services

Continuing effort • Direct support to deployment and Government acceptance efforts

3. Operate and Sustain Block 1

Increase Boeing ILS for P28, MSSs, Playas, TUS-1, and AJO-1

TUS-1 Construction Start MAR 2009

• Maintain fielded SBInet equipment at operational readiness levels; maintain CBP operators’ and technicians’ proficiency

Subsidize CBP OIT ILS for “Legacy” systems fielded

Continuing effort • Maintain non-SBInet equipment at operational readiness levels

Subsidize CBP OIT ILS for P-25 tactical comms on Southwest Border

Continuing effort • Maintain Land Mobile Radio infrastructure

Invest in transition to CBP organic ILS capabilities

Continuing effort • Enable cost-effective alternative (organic) ILS workforce for SBInet deployments

4. Invest in Communications

Subsidize OIT P-25 tactical comms modernization on Southwest Border

Continuing effort • Expanded, secure radio communications deployed throughout Arizona

Procure OneNet circuits for SBInet Arizona

Continuing effort • Expanded, high throughput connectivity for SBInet HQs over DHS-approved backbone

Implement Phase II Microwave Frequency Rebanding

Space and Naval Warfare Systems Center Task Order Award NOV 2008

(Executing of non-BSFIT

Spectrum Relocation

funds

• Fulfill Government mandate to complete vacating auctioned spectrum for commercial entities

000556

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




5. Procure Technical Support to assist Program Office personnel

Continuing effort

• Specialized systems engineering, modeling and simulation, test program monitoring and management, acquisition management consulting, and travel and office expenses

As indicated above, our top program priority is to complete successful System SQT by January 2009. This significant milestone will demonstrate and verify the Block 1 system solution meets the operator-specified performance targets and detailed-level functional specifications.

With this favorable full rate decision, SBInet can begin to roll-out capabilities—and enabling effective control of the border—at a significantly accelerated, more cost-effective rate. Concurrently with our initial SBInet Block I deployment to TUS-1, SBInet will also launch the NBP and begin to address these geographical needs and vulnerabilities with “legacy” and SBInet technologies in a maritime (river/lake) cold weather environment. A significant element of the SBInet plan of action in FY 2009 is to leverage SBInet system software development efforts applicable to both the northern and southern border missions.

000557

(b) (4)

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)




As indicated in Table 2 above, SBInet is budgeting approximately to develop Block 1.1 and 1.2. CBP proposes that this substantial FY 2009 investment in capabilities directly supporting the NBP (and coincidentally the southwest border deployments) fulfills the Congress’ requirement for SBI to allocate of FY 2009 BSFIT funding for “northern border technologies”. The following table illustrates the FY 2009-2011 SBInet plan of action, milestones, and major investments.

000558

(b) (4)

(b) (4)

(b) (4)




Overview of SBInet Block 1 Re-Plan Tier 1 Roadmap (preceding chart):

• Provides a schedule of near-term activities and context for follow-on plans: o Focuses on activities funded with FY 2007 and prior funds o Identifies major program milestones o Divides activities into five investment groupings, described below

• Block 1.0 System Design & Qualification (reference Section 1 in Table 2 on page 106) reflects system-level activities being performed under the System Task Order, COP Task Order, and IV&V contract to complete development and test of the initial SBInet increment to inform a deployment decision. Also includes three follow-on enhancements to the Block 1 design: o Legacy Sensor Integration integrates RVSS, MSS, and Laser Illuminator into SBInet. o A&M Integration provides SBInet with “blue force tracking” of A&M assets. o A&M Operations Center Video Integration will provide SBInet with video feeds from

A&M assets. (Not approved) • Communications Infrastructure (reference Section 4 in Table 2 on page 107) reflects

SBInet communications upgrades necessary for enabling SBInet deployments. o Microwave Spectrum Relocation provides communications modifications required due

to the government’s auction of the frequency spectrum to commercial entities. o P-25 Tactical Communications augments other CBP funds to provide expanded, secure

radio communications for near-term SBInet deployments. o SBInet OneNet Connectivity provides high throughput fiber communications between

the Arizona Sector HQ and Stations where SBInet will be deployed. o Highspeed / Broadband Wireless will provide high throughput wireless

communications to enable shared situational awareness between COP command center operators and agents in the field. (Not approved)

• Block 1.0 Deployment Design & Acceptance (reference Section 2 in Table 2 on page 106, plus the independent operational testing activities in Section 5 on page 107) shows the near-term southwest border deployments, as well as the Northwest Border Project. It includes the necessary predecessor laydown design activities required to define the Block 1 system for a particular geographic area, as well as supporting SBInet Field Office activities, land acquisition, facility-related services, construction permits, additional MSS procurements, and independent Operational Test & Evaluation services. o Prior year and FY 2009 funds procure the Northern Border Project, Tucson-1 and Ajo-1

design / deployments, long-lead for Nogales, and the design for remaining Tucson and Yuma Sector deployments, which are approved deployments to be procured with FY 2010 funds. El Paso Sector design / deployment not yet approved.

• Block 2.0 System Design & Qualification shows the follow-on planning for the next major SBInet design cycle, which will be informed by the lessons learned from Block 1, demonstrations from the NBP, and additional capability needs identified by the user community.

000560




• Sustainment (reference Section 3 in Table 2 on page 107) consists of government and contractor activities and spares required to sustain SBInet and legacy detection / communication deployments, as well as investments to transition to organic support.

The following section describes the funding requirements for each significant milestone in the above table. Design and Qualify Block 1 Pending successful completion of SQT by January 2009, SBInet will begin the design and qualification of Block 1 and authorize Boeing to construct and deploy TUS-1 and AJO-1 projects. Funds will support the following engineering, lay-down, and test and evaluation activities. STO Planned Obligation The initial task order issued under the SBInet contract, called PMTO, was in effect until mid-April 2008 and has been renamed STO for the follow-on period to emphasize the technical component of the effort. These task orders provide for the foundational PM and systems engineering services required of Boeing to sustain the overall SBInet program. The STO was awarded on April 15, 2008, for a 10-month base period of performance with 2 option periods. As with PMTO, the STO provides the foundational support for the following major areas: • Mission Area and Operational Analysis; • Establishing and maintaining System Toolbox; • System, Design, Integration, and Testing; and • Program and Business Management. Under the STO, Boeing’s organization continues to be staffed to support the aforementioned scope with a focus on completing the Block 1.0 SBInet System Qualification by the end of the base period of performance. CDR has been closed, and the SQT is scheduled to be completed by the end of December. During the upcoming period of performance, the STO will provide system engineering and System Integration Lab support to the Arizona Project deployments. The STO will also update the system-level requirements to address the northern border, as well as incorporating lessons learned and changes to the ORD and subsequent OCD. Improvements to the Block 1.0 SBInet System will include integrating legacy sensors (MSS and RVSS) as well as a laser illuminator into a Block 1.1 build. CDR for Block 1.1 will be completed by the end of this period of performance.

000561

(b) (4)




The STO will continue its support of the project deployments as described above. The STO will also complete the full integration and qualification of the MSSs, RVSSs, and laser illuminator into the Block 1.1 System. C3I System Planned Obligation In FY 2008, an initial C3I operating capability, commonly referred to as the Release 0.5 COP, was developed and tested in preparation for deployment to TUS-1 and AJO-1. The C3I COP is a 3-year task order and the project team is completing the first 14-month base period in February 2009. For FY 2009, it is expected the existing C3I task order in coordination with the STO will: • Initiate planning related to Block 1.1 and 1.2 to include formal allocation of requirements to

Command and Control systems segments. • Identify changes to the current software architecture impacted by legacy sensor integration

(RVSS integration, MSS with Laser Illuminator). This includes architectural impacts with A&M Blue Force Track Integration with the C3I Mobile COP.

• Develop and document the SBInet C3I system requirements for enhancements to Release 0.5. o Custom screen configurations to display station-level situational awareness information

on the large screen; and o Mark, stop, start, rewind, or otherwise control the playback of daytime / nighttime video

from within the C3I user screens. • Design and develop the C2I system and support operational testing of the system to

demonstrate operational capabilities in accordance with the requirements. • Operate and maintain the C2I Release 0.5 software. • Provide Release 0.5 software capability to support the NBP. • Complete development, then O&M of the SBInet NOC/SOC. The C3I system to be deployed will include developmental software, commercial software to deploy, and maintain C3I system. Specifically, the SBInet C3I System is expected to be: • A development and maintenance environment to develop, operate, and sustain the C2I

system (including facilities, commercial third party license agreements, personnel training, demonstrations, software maintenance, status reporting, and continuity of operations); and

• Software and software support for C2I facilities at TUS-1 and AJO-1. IV&V Planned Obligation The DHS CIO certified that an IV&V agent (contract) is in place as outlined in the 2009 BSFIT Expenditure Plan legislative reporting requirements. A contract has been established to conduct IV&V of the SBInet C3I software, trace C3I requirements to software functions, ensure the

000562

(b) (4)

(b) (4)




software meets the requirements and is reliable and maintainable, and determine whether the software satisfies its intended use and user needs. In FY 2009, the first priority is to develop a Plan of Action and Milestones for TUS-1 and Block 1. Deploy Block 1 Deployment of Block 1 includes constructing, integrating, and accepting TUS-1 and AJO-1. In addition, prepare remaining deployments, procuring MSSs, and procure field office and property permitting services. Funds will support the following lay-down, facilities, and test and evaluation activities. SWFO Planned Obligation The SWFO supports all deployment activities associated with projects under the deployment division. The SWFO assists in the management and oversight of Task Orders and functions as the contracting officer’s technical representative in the field and interfaces and collaborates with other Task Order Managers in SBInet. Through appropriate staffing and funding, the SWFO confers with program and project managers as well as project analysts to provide technical advice and to assist with problem resolution. The SWFO also participates in technical and analytical work pertaining to planning, development, acquisition, testing, integration, installation, utilization, or modification of systems, facilities, services, ILS, and procedures. It works closely with the prime contractor and their sub-contractors and assists them with the SBInet deployment and implementations; this includes interacting with the customer and associated stakeholders. The SWFO has the ability to identify strategies and implement programs which contribute to providing top quality service. In FY 2009, is planned to continue operations throughout the year for leasing office space, office furniture, vehicle fuel and maintenance, janitorial services, office equipment, communications, travel, and training. MSSs Planned Obligation

000563

(b) (4)

(b) (4)

(b) (4)(b) (7)(E)




Land Acquisitions, Architect and Engineering (A&E), and Facilities Planning Planned Obligation The long-term sustainment strategy for SBInet is organic CBP support. In order for this organic capability to be established, SBInet will need to work with legacy CBP offices, such as Facilities, Maintenance and Engineering in the Office of Finance and OIT, to begin the process of planning the organic SBInet facilities need and meld this in with the overall CBP program for facilities. USACE will support the real estate acquisition process to purchase real estate from private landowners. The sites will be in the Tucson East, Tucson West, TUS-1, AJO-1, Tohono O’dham Nation, Northern Border, and El Paso-1 Project Areas. Design Task Order Planned Obligation The Design Task Order with Boeing develops the detailed lay-down designs and plans for the deployment of the SBInet System. The Task Order is designed to employ the necessary technical, environmental and pre-construction requirements. Reviews, including the DPR, DDR, and DRR, are conducted to evaluate the requirements for each EA project area, or each BP station within a BP sector. DPR is held to ensure that the SBInet System Program Office, the user community, and external stakeholders understand the requirements and constraints unique to a given Project Lay-down area, as well as understanding the capabilities and constraints of the SBInet Block intended for deployment. This review also sets an initial baseline for deployment site locations. DDR is held to review the information needed to complete the NEPA process and to review and approve long lead purchases. DRR is held to assess the readiness of the program to enter the site preparation and construction phases. In FY 2008, El Paso, Yuma, and Tucson Sectors completed preliminary lay-down design and some detail lay-down design. Within the Tucson Sector, DDR and DRR for TUS-1 and DDR for AJO-1 were completed. Environmental Findings of No Significant Impact were completed for the El Paso Phase 1 and Tucson West EAs areas. In FY 2009, plan to complete DRR for AJO-1, and both DPR and DDR for Nogales Station, Sonoita Station, and Tucson Station 2. A separate task order, intended to perform both lay-down design and deployment for future projects, is anticipated to be awarded in the third quarter of FY 2009, and is anticipated to complete DPR and DDR on Douglas Station, Naco Station, and Wilcox Station, and DRR for Nogales Station, Sonoita Station, and Tucson Station 2. ADTO Planned Obligation

000564

(b) (4)

(b) (4)

(b) (4)




To accomplish the deployment of TUS-1 and AJO-1 by the end of CY 2008, the task order was awarded in two phases. Phase I, which included the procurement of long lead components and site construction, was awarded in June 2008. Phase II, which included the tower payload installation, COP facility construction, and IT infrastructure build out, was awarded in September 2008. The current planning schedule has TUS-1 construction commencing March 2009, with AJO-1 construction starting June 2009. TUS-1: • Consists of construction, and require about 4 miles of

pioneer road work; • Construction of each site, to include fencing, tower, power system and payload installations

as well as checkout; • Procurement of Material to build out project not previously procured in FY 2008; • Retraining of construction crews; • Construction and fit out of COP facility; • Construction and checkout of IT infrastructure; • Conduct System Acceptance testing prior to final acceptance; • Obtain required building, Right of Entry, Arizona Department of Transportation, etc.

permits; and • Cost required to extend the PoP due to replan.

AJO-1:

• Consists of sites construction, and require about 6 miles of pioneer road work;

• Construction of each site, to include fencing, tower, power system and payload installations as well as checkout;

• Procurement of Material to build out project not previously procured in FY 2008; • Retraining of construction crews;

000565

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)




• Construction and fit out of COP facility; • Construction and checkout of IT infrastructure; • Conduct System Acceptance testing prior to final acceptance; • Obtain required building, Right of Entry, Arizona Department of Transportation, etc.

permits; and • Cost required to extend the PoP due to replan. Current planning for TUS-1 and AJO-1 follow-on projects has the next deployment occurring in Nogales station with construction projected to start first quarter of FY 2010. In order to start construction in FY 2010, certain activities and funding is required in FY 2009, to include procurement of long lead components and associated deployment planning activities. The current Nogales laydown consists of construction, and require about 2-3 miles of pioneer road work. Additionally, all the same activities previously identified for TUS-1 and AJO-1 will be required to complete construction and acceptance of Nogales. Army Testing Planned Obligation An IAA has been established to conduct Operational Test and Evaluation and Follow-on Operational Test & Evaluation by an independent Government Agency: the U.S. Army IT&E team. The team determines operational effectiveness and suitability of SBInet under realistic operational conditions, determines if the approved key performance parameters and critical operational issues have been satisfied, and as practical integrated into the contractor Developmental Test and Evaluation effort to facilitate resolution of operational test objectives and to familiarize the operational test team with the system. FY 2009, to commence work and began testing, IAW Block 1 IMS: • TUS-1 SQT observe/collect data; • TUS-1 SAT observe/collect data; and • Conduct TUS-1 Operational Test and Evaluation. Operate and Sustain Block 1 Operations and sustainment of Block 1 requires contractor and Government maintenance and logistics support. Funds will support the following operation and support activities. Boeing ILS Task Order Planned Obligation The long-term sustainment strategy for SBInet is organic CBP support. Until an organic capability is established, ILS will be procured from Boeing and or other suppliers, when

000566

(b) (4)

(b) (4)

(b) (4)

(b) (7)(E)




appropriate. Accordingly, a new task order was awarded in August 2008 to Boeing to provide a full range of ILS maintenance and planning services required to meet SBInet mission objectives. The task order has a base period (August 2008 – September 30, 2009) and two un-priced option periods. FY 2009 planned obligation to provide the following: Contract Staffing Approximately 74 contractor support personnel to perform SBInet

program tasks such as SBInet equipment maintenance, operator training development, asset management, technical documentation, help desk support, and NOC/SOC support.

Facilities Build-out Tucson facility for operating training support and development

of facility support for MSSs in Tucson and Ajo. Spares Purchase P-28, ADTO, and MSS spares – The purchase of spares will be

the end result of the Provisioning Conference, which will determine the type and how much. We are currently in the process of obtaining an IAA with the FAA Logistics Center to obtain logistics support, purchasing of spares, and test equipment. We believe that a potential budget risk exists if SBInet does not obtain another source to purchase spare parts and test equipment. Based on our analysis, we believe that substantial savings in the purchase of spare parts from the FAA Logistics Center.

Test Equipment Purchase P-28, ADTO, and MSS Test Equipment – The purchase of the

test equipment will be the end result of the Provisioning Conference, which will determine the type and how much. We are currently in the process of obtaining an IAA with the FAA Logistics Center to obtain logistics support, purchasing of spares, and test equipment. We believe that a potential budget risk exists if SBInet does not obtain another source to purchase spare parts. Based on our analysis, we believe there are substantial savings in the purchase of spare parts and test equipment from the FAA Logistics Center.

Training Support FAA Academy, OIT, and CBP Office of Training and Development –

Development of organic CBP SBInet maintenance equipment training program.

OIT Transfer for Legacy Support Planned Obligation

will be transferred to CBP’s OIT to sustain legacy hardware and software deployed prior to SBInet.

000567

(b) (4)(b) (4)

(b) (4)




• RVSSs – O&M in the field and support unique static and mobile specialized installations,

and replace RVSS cameras that are beyond useful life and/or are more cost efficient to replace than to maintain.

• Sensor O&M Forward Supply Center and Forward Supply Points – O&M in the field; parts,

consumables, and battery support for over ; and infrastructure replacement to complete the remaining southern border (Southwest and Southern California).

• Enforcement Technology Program Albuquerque and Lorton Maintenance and Logistics –

administration and configuration support, burdened labor, subcontractor labor, travel/ODCs, and contractor fees.

• Border Enforcement and Management Systems, ICAD – support ICAD program and its

integration within SBI. Support development and enhancements of capturing latitude and longitude of physical locations and displaying this information in a geospatial manner to give managers a visual display of data to make informed decisions. Support CBP personnel and scheduling functions integration with the C3I COP application via the service oriented architecture principles.

• P-25 Tactical Communications Modernization and Microwave and Remote Tower

Infrastructure O&M for support to upgrade Land Mobile Radio tactical communications systems within CBP. Cover expenses for labor, subscriber, and infrastructure equipment maintenance; subscriber and equipment repair and refresh; spare parts; and recurring circuit and site lease costs. O&M of microwave systems and remote tower infrastructure includes inspection and maintenance costs.

NAVAIR AIT Planned Obligation An IAA has been established between CBP and NAVAIR to provide AIT and engineering support. The AIT Team serves as an independent Government entity providing engineering and technical services to support CBP in the areas of AIT technologies and the deployment and implementation of equipment and personnel associated with those technologies. Such activities may include, but not be limited to, work in the following areas: • Mission Engineering; • Prime Mission Product; • Facilities and Infrastructure • Test and Evaluation; • Integrated Logistic Support; • Deployment and Installation;

000568

(b) (4)

(b) (7)(E)




• PM; • Maintenance Management; • Spare and Repair Parts Allocation; • Support Equipment PM; • Configuration Management; • Document Management; and • Training. NAVAIR will perform the following tasks: • Establishing a process for SBInet document control, tracking, and retrieval; • In conjunction with CBP Asset Management, continuation of updating the CBP Asset

Marking Guideline to standardize asset bar-coding placement procedures and data collection requirements;

• Bar-code tagging and data collection efforts for assets that are part of the MSSs being deployed as part of the SBInet and P-28;

• Analysis of 17 existing and deployed CBP inventory and maintenance software applications. The results of which will be used as the basis to establish one CBP wide system;

• Development of a CBP Software Systems Activity that will maintain configuration controls over all CBP deployed software application programs;

• In conjunction with the SBInet – ILS Directorate in the development of an Integrated Logisitics Support Plan (ILSP) to ensure a smooth and coherent transition from the Integration Contractor to CBP.

Invest in Communications SBInet is implementing technology that includes surveillance, detection, identification, tracking, communications, and command and control enhancements. Funds will support the following lay-down activities. P-25 Tactical Communications Project Planned Obligation CBP has a critical need to modernize its tactical communication assets and move from a mixed analog / digital, leased circuit based architecture to an integrated internet protocol/quality of service (IP/QoS)-based digital network environment. The P-25 Tactical Communication Project upgrades CBP Land Mobile Radios to P-25 systems and enables GPS for SBInet COP Blue Force Tracking. CBP OIT Wireless Technology Program (WTP) will support P-25 tactical communications (TacCom) modernization and provide: • Initiation and assessment planning for each sector; • Requirements gathering and RF site survey analysis;

000569

(b) (4)




• System design – system includes subscriber units, civil infrastructure, communications infrastructure (repeaters, controllers) and dispatch equipment. P-25 modernization is dependent on SBInet to provide microwave backhaul in a given project area.

• Spectrum planning and site leasing; • Equipment and infrastructure procurement and installation; and • Acceptance testing, training and close out. FY 2009, with the planned obligation of for modernization plus for O&M in the previous section, the total P-25 investment is in accordance with approval letter from Congress on the FY 2009 BSFIT reprogramming request. One Net Direct Connect Planned Obligation One Net Direct Connect is a dedicated high speed, native IPv6 wireline network supporting real time COP video, data and VoIP bi-directional direct connectivity between sector HQ, stations, POEs and checkpoints. It provides premium service levels including high availability, dedicated throughput and minimized latency. In addition, Fiber optics based network facilities will accommodate simple upgrade to OC3 data rate throughput for SBInet deployment. In FY 2009, the planned obligation is to obtain CBP OIT services to provide system design and configuration, system procurement and deployment, and system management and maintenance services via FTS 2001 and future contract vehicle. SBInet network bandwidth at CBP locations will be completed in the year prior to start of SBInet /Boeing deployment task order construction phase. Procure Technical Support The Program Office requires engineering and technical service support to assist with the design and implementation of deployments and technology, funds will support the following activities. A contract has been established with MITRE to provide direct systems engineering analysis and guidance support to Architecture and Systems Design, Logistics, Operations, Maintenance and Facilities, and Planning and Business Operations. A contract has been established with the JHU APL to support SBInet in developing systems engineering processes and methodologies for the design, development, and testing of complex systems for border protection. JHU APL provides systems engineering technical support, modeling and simulation support tool box support, and supports emerging technical needs. An IAA has been established between CBP and the DOI, National Business Center, to conduct follow-on work associated with the Smart Sensor system developed previously by DHS S&T as

000570

(b) (4) (b) (4)(b) (4)

(b) (4)

(b) (4)




a SBIR Program initiative. Program will build on a current agreement to develop de-clutter and tracking algorithms for existing toolbox radars and an SBIR managed by DHS S&T to demonstrate a new and improved Radar, Camera, tracking, and de-clutter algorithms. Other sensor development and testing will be fused with the tracking algorithms and possess real time capability. An IAA has been established between CBP and the S&T Directorate to provide system concept development support from Booz Allen Hamilton Inc. The team analyzes operator needs, business processes, and existing systems to define the inventory of capabilities needed from SBInet. They apply an iterative approach and a structured methodology, CBRA, within which operators, industry, and the System Program Office work jointly to define and deploy capabilities. An IAA has been established between CBP and DAU to provide senior acquisition, risk management, and Systems Engineering SMEs support. DAU will support Program Planning documentation, COP Trade study, and OCD and Block 2 A-Spec development, and Risk Management Assessments. The SBInet Travel Authorization Policy establishes the requirement for Government and contractor personnel supporting the SBInet to have travel approved once dates and locations have been determined and confirmation of budget exists. SBI validate travel need and funding availability, prepare and submit travel authorization forms to the appropriate travel approver, make travel reservations, and complete the appropriate post travel activities. Environmental Section Congress authorized BSFIT funding of for environmental planning, assessments, and mitigation for FY 2009. SBI FY 2009 environmental program efforts are focused on investing in tools for improved project planning; integrating the planning efforts for SBInet and TI projects for efficiency and improved consultation with stakeholders; undertaking and expediting the environmental compliance and planning actions for FY 2009 and out-year SBInet and TI projects; and implementing the highest priority mitigation requirements for both SBInet and TI projects. Additional explanation on the environmental plan and mitigation efforts is provided at Appendix H.

000571

(b) (4)




CERTIFICATIONS Appendix C: A certification by the DHS Chief Procurement Officer is in this Appendix Appendix D: A certification by the DHS Chief Information Officer is in this Appendix Appendix E: A certification by the DHS Chief Human Capital Officer is in this Appendix

000572




Appendix A – List of Acronyms

A&M CBP Office of Air and Marine ADM Acquisition Decision

Memorandum ADTO Arizona Deployment Task OrderAIT Automated Identification

Technology AJO-1 Ajo Station, one of the first two

SBInet Block 1 operational deployments to BP Stations

AOR Area of Responsibility APL Applied Physics Laboratory BMPs Best Management Practices BP Border Patrol BRP Biological Resources Plan BSFIT Border Security, Fencing,

Infrastructure and Technology C2 Command and Control C2I Command, Control, and

Intelligence C3I Command, Control,

Communications, and Intelligence

C3ISR Command, Control, Communications, Intelligence, Surveillance, Reconnaissance

CBP U.S. Customs and Border Protection

CBRA Capability Based Requirements Allocation

CDR Critical Design Review CIO Chief Information Officer COP Common Operating Picture CPO Chief Procurement Officer CY Calendar Year DAU Defense Acquisition University DDR Deployment Design Review DHS Department of Homeland

Security

DOI U.S. Department of Interior DOJ Department of Justice DRR Deployment Readiness Review DPR Deployment Planning Review EA Environmental Assessment EIS Environmental Impact

Statement ESC Executive Steering Committee ESP Environmental Stewardship Plan EVM Earned Value Management FAA Federal Aviation Administration FTE Full-Time Equivalent FQT Functional Qualification Testing FY Fiscal Year GAO Government Accountability

Office GPS Global Positioning System HQ Headquarters IAA Interagency Agreement IBWC International Boundary and

Water Commission ICAD Intelligent Computer Assisted

Detection ICE U.S. Immigration and Customs

Enforcement IIRIRA Illegal Immigration Reform and

Immigrant Responsibility Act of 1996

ILS Integrated Logistics Support IMS Integrated Master Schedule IOI Item of Interest IPaC Information, Planning and

Consultation IRB Investment Review Board IT&E Independent Test and EvaluationIWPF Integrated Weekly Performance

and Forecasting

000573




IV&V Independent Verification and Validation

JHU Johns Hopkins University M&R Maintenance and Repair MSS Mobile Surveillance System NAVAIR Naval Air Systems Command NBP Northern Border Project NEPA National Environmental Policy

Act NOC Network Operations Center NTP Notice to Proceed OBP CBP Office of Border Patrol O&M Operations and Maintenance O&S Operations and Support OCD Operational Capabilities

Document OFO CBP Office of Field Operations OIG DHS Office of Inspector

General OIT CBP Office of Information and

Technology ORBBP Operational Requirements

Based Budget Program ORD Operational Requirements

Document OT&E Operational Test and Evaluation P-28 Project 28 PF Pedestrian Fence PM Program Management PMTO Program Management Task

Order POE Port of Entry

PoP Period of Performance RAP Resource Allocation Plan RFP Request for Proposal RVSS Remote Video Surveillance

System S&T DHS Science and Technology

Directorate SBI Secure Border Initiative SBI TI PMO

SBI Tactical Infrastructure Program Management Office

SBIR Small Business Innovative Research

SME Subject Matter Expert SOC Security Operations Center STO Systems Task Order SQT System Qualification Testing SWFO Southwest Field Office

Operations TI Tactical Infrastructure TUS-1 Tucson Station, one of the first

two SBInet Block 1 operational deployments to BP Stations

USCG U.S. Coast Guard UGS Unattended Ground Sensors USACE U.S. Army Corps of Engineers USFWS U.S. Fish and Wildlife Service USIBWC U.S. Section, International

Boundary Water Commission VF Vehicle Fence WBS Work Breakdown Structure WUS Waters of the United States

000574




Appendix B – Status of GAO/OIG Report Recommendations

This section provides the requested input requested in legislative requirement (7), a listing of all open GAO and the OIG recommendations related to the program and the status of DHS actions to address the recommendations, including milestones to fully address such recommendations. FY 2008 STATUS OF GAO/OIG REPORT RECOMMENDATIONS Report: OIG-07-07 - Risk Management Advisory for the SBInet Program Initiation, Issued November 2006 Open Recommendations Recommendation 1: The CBP Commissioner, in coordination with the DHS Chief Procurement Officer (CPO), prepare a plan of action with performance milestones for developing its capacity to manage the program, administer its contracts and agreements, and ensure effective oversight and implementation. Each should specify the actions they will take to assist the program office in accomplishing the objectives of the plan, especially with regard to resource capacity building. Recommendation 2: The SBInet program office provide regular implementation status reports to the Commissioner and CPO on its plans for building PM and oversight capacity. Recommendation 3: The Commissioner and CPO develop a plan of action and milestones for defining, validating, and stabilizing the program's operational requirements, translating them into contract requirements, and establishing a system of performance metrics and controls to gauge progress in meeting contract requirements and mission needs. Each should specify actions they will take in accomplishing the objectives of the plan, especially regarding resources needed to implement the plan and address ensuing contract and program cost estimate changes. Recommendation 4: The SBInet program offices provide regular implementation status reports to the Commissioner and CPO on its plan of action and milestones to stabilize requirements and establish performance metrics and controls. Status Since the report was issued the SBInet program has undergone significant changes through strategic planning and other initiatives. In October 2007, the SBI Executive Program Office was reorganized into four components: technology, tactical infrastructure, budget and finance, and program support. SBInet maintained oversight the technology component while the infrastructure component became the TI Program Office. SBI has been working expeditiously to resolve the management and operational challenges identified by DHS’s OIG.

000575




By December 31, 2008, SBI is required to provide programmatic documentation to DHS that ensures the risks associated with planned SBInet acquisition, development, testing, and deployment activities are immediately assessed, and the results, including proposed alternative courses of action for mitigating the risk. Report: GAO-07-309 - Secure Border Initiative: SBInet Expenditure Plan Needs to Better Support Oversight and Accountability, Issued February 2007 Open Recommendation Recommendation 1: GAO recommends that the Secretary of Homeland Security direct the CBP SBI PMO to ensure that future expenditure plans include explicit and measurable commitments relative to the capabilities, schedule, costs, and benefits associated with individual SBInet program activities. Status The recommendation was carried over to the GAO Report: GAO-08-739R - Secure Border Initiative: SBInet FY 2008 Expenditure Plan Shows Improvement, But Deficiencies Limit Congressional Oversight and DHS Accountability. Potential closure of the open recommendation is dependent upon the GAO review and acceptance of the FY 2009 SBI Expenditure Plan. CBP continues to work closely with the GAO to address and resolve the open recommendation related to program oversight and accountability. Report: GAO-08-739R - Secure Border Initiative: SBInet FY 2008 Expenditure Plan Shows Improvement, But Deficiencies Limit Congressional Oversight and DHS Accountability, Issued June 26, 2008 Open Recommendation Recommendation 1: GAO recommended that CBP’s SBI Executive Director ensure that future expenditure plans include an explicit description of how activities will further the objectives of SBI, as defined in the DHS Secure Border Strategic Plan, and how the plan allocates funding to the highest priority border security needs to provide Congress with information it needs to oversee the program. Status Potential closure of the open recommendations is dependent upon the GAO review and acceptance of the FY 2009 SBI Expenditure Plan. The SBI FY 2009 Expenditure Plan also addresses unresolved issues of concern from last year’s review. CBP continues to work closely with the GAO to address and resolve the open recommendations related to program oversight and accountability.

000576




Report: GAO-08-1086 - SECURE BORDER INITIATIVE: DHS Needs to Address Significant Risks in Delivering Key Technology Investment, Issued September 22, 2008 Open Recommendations

000577

(b) (5)




Status By December 31, 2008, SBI is required to provide programmatic documentation to DHS that ensures the risks associated with planned SBInet acquisition, development, testing, and deployment activities are immediately assessed, and the results, including proposed alternative courses of action for mitigating the risk. This comprehensive programmatic documentation will include: • Acquisition Program Baseline including:

o A clear articulation of the overall program scope. o Out-year Future Years Homeland Security Program profile. o A description of the program’s evolutionary approach, including key performance

parameters by Block 1 release. o A definition of Block 1, including COP Release 0.5 usable segment. o A Block deployment approach. o The Block 1 phased deployment approach. o Realistic cost and schedule thresholds for Block 1 including individual phases of

deployment within the Block. o Establishment of a Key Decision Point (KDP) 2 date.

• Test and Evaluation Master Plan (TEMP) • Life-Cycle Cost Estimate (LCCE) • Integrated Logistics Sustainment Plan (ILSP) • Systems Engineering Plan (SEP) • Revised ORD—allocated Block 1 requirements • SBInet IMS • SBInet OCD

000578

(b) (5)




Appendix C – CPO Certification Letter – Final 2008 Letter

This section provides the requested input requested in legislative requirement (8), a certification by the CPO of the Department that the program: (a) has been reviewed and approved in accordance with the investment management process of the Department, and that the process fulfills all capital planning and investment control requirements and reviews established by the Office of Management and Budget, including as provided in Circular A-11, part 7; (b) that the plans for the program comply with the Federal acquisition rules, requirements, guidelines, and practices, and a description of the actions being taken to address areas of non-compliance, the risk associated with such actions, together with any plans for addressing these risks, and the status of the implementation of such actions; (c) that procedures to prevent conflicts of interest between the prime integrator and major subcontractors are established and that the SBI Program Office has adequate staff and resources to effectively manage the SBI program, all contracts, including the exercise of technical oversight; and (d) the certifications required under this paragraph should be accompanied by all documents or memoranda, as well as documentation and a description of the investment review processes used to obtain such certifications.

000579




000580

(b) (6)




000581




000582




000583




000584




000585




The supporting documents for certification listed in the above Table of Contents are enclosed on a compact disk (CD).

000586




Appendix D – CIO Certification Letter – Final 2008 Letters This section provides the requested input requested in legislative requirement (9), a certification by the CIO of the Department that: (a) the system architecture of the program is sufficiently aligned with the information systems enterprise architecture of the Department to minimize future rework, including a description of all aspects of the architecture that were or were not assessed in making the alignment determination, the date of the alignment determination, and any known areas of misalignment together with the associated risks and corrective actions to address any such areas; (b) the program has a risk management process that regularly and proactively identifies, evaluates, mitigates, and monitors risks throughout the system life cycle and communicates high-risk conditions to CBP and DHS investment decision-makers, as well as a listing of all the program’s high risks and the status of efforts to address such risks; (c) an independent verification and validation agent is currently under contract for the projects funded under this heading; and (d) the certification required under this paragraph should be accompanied by all documents or memoranda, as well as documentation and a description of the investment review processes used to obtain such certifications.

000587




000588

(b) (6)




000589

(b) (6)




000590

(b) (6)




000591

(b) (6)(b) (6)




Appendix E – Chief Human Capital Officer Certification – Final 2008 Letter This section provides the requested input requested in legislative requirement (10), a certification by the Chief Human Capital Officer of the Department that the human capital needs of the SBI program are being addressed so as to ensure adequate staff and resources to effectively manage the SBI, together with a description of SBI staffing priorities.

000592




000593

(b) (6)

(b) (6)(b) (6)




Appendix F – TI Segment Analysis The contents of this Appendix, and any other fencing and infrastructure approach, plans, and analysis described in this report, have been prepared and are furnished to Congress pursuant to subparagraph 11 of the heading entitled “Border Security Fencing , Infrastructure, and Technology” of FY 2009 DHS Appropriations Act (P.L. 110-329), calling for an analysis for each segment, defined as not more than 15 miles, of fencing or tactical infrastructure, of the selected approach compared to other, alternative means of achieving operational control, and such analysis should include cost, level of operational control, possible unintended effects on communities, and other factors critical to the decision making process. A Compact Disc (CD) containing the analyses of alternatives accompanies this report. The goal of the National Border Patrol Strategy is to gain effective control of the Nation’s borders. Below is a brief explanation of the principles employed by BP Sector Chief Patrol Agents in determining their resource requirements including TI and deployments in support of the National Strategy. This discussion is provided as background for methodology used for developing the Analyses of Alternatives. NATIONAL STRATEGY The primary goal of the National Border Patrol Strategy is Effective Control. Effective Control is achieved when a Chief Patrol Agent determines that agents deployed in any given area are able to: • Detect an illegal entry into the United States between the POEs; • Identify and classify the threat level associated with that illegal entry; • Respond to the area of the illegal entry; and • Bring the situation to a law enforcement resolution (i.e. arrest). The Strategy is to Gain, Maintain, and Expand Effective Control • Gain: Deploy resources based on known threats, vulnerability, and risk. • Maintain: Sustain effective control once gained and seek efficiencies to allow us to hold the

area with fewer resources. • Expand: As we gain control of any given area, smuggling activity will be displaced to other

areas of operations. We will adjust deployment of resources to expand effective control to areas where smuggling activity shifts in reaction to our enforcement efforts.

Enforcement Environment BP operates in three basic environments:

000594




• Urban – A typical urban environment provides the smuggler with the tactical advantage against law enforcement. Urban infrastructure (homes, businesses, population, transit hubs, etc.) within a short distance from the border permit the smuggler to be in the United States and out of enforcement reach within seconds to minutes after their entry.

• Rural – A typical rural environment requires the smuggler to remain exposed to enforcement action for a longer period of time. The time it takes to cross the border and make it to where the smuggler can blend in with the community can be minutes to hours. Smugglers will seek alternate entry methods (vehicles, etc) in rural areas to shorten the time they are at risk of being encountered by law enforcement.

• Remote – A typical remote environment provides law enforcement with a significant tactical advantage, in that, it may take hours to days to make it to a community or viable egress route. Smugglers will also seek use of vehicles for entry in remote areas.

Tactical Considerations

000595

(b) (7)(E)




Summary Effective Control is established through the proper mix of Technology, Personnel, and Infrastructure (to include pedestrian and vehicle fencing). The mix of these three components will vary depending on the challenges of the focus area. • Technology is the baseline requirement for any area of operations. It allows us to detect the

entries and to identify and classify the threat. • Personnel provide the response to confront smugglers or other violators. • Infrastructure supports the response by providing access, and also extends response time by

deterring or slowing the violator’s ability to easily cross the border and escape. Time/Distance Challenge – the bottom line as it relates to border security enforcement in any area of operation is that we must deploy the appropriate mix of technology, personnel, and infrastructure that will allow us to confront the criminal element before they can get away. Between the POEs, CBP operates in three primary environments: urban, rural, and remote. In an urban environment, the illegal entrant can be across the border and into the community in a matter of minutes or seconds; in rural environments it may take minutes or hours; and in remote environments it may take hours or days. Interdiction efforts are achieved by multi-tiered enforcement operations to include pedestrian and vehicle fencing where it is deemed an operational advantage to deter illegal cross border activity. Urban areas require an inordinate number of enforcement personnel to effectively confront the illegal activity. In this environment, PF provides persistent impedance. As described elsewhere in this report, decisions about the location of physical fencing depend on the requirements for persistent impedance in a given area. Where persistent impedance is a necessary condition, CBP analyses have shown that physical fencing is the most appropriate means to achieve persistent impedance. In other locations, where persistent impedance may be highly effective even though it is not absolutely required to achieve operational control, CBP will continue to evaluate all options to ensure physical fencing is most appropriate. Locations that do not currently have plans for TI deployment are areas where the border environment acts as a natural impediment or other options have been deemed more appropriate than fencing. CBP is deploying a comprehensive approach to secure the border and TI including fencing is one element of the layered defense plan. Our comprehensive plan includes additional, substantial investments in technology, infrastructure, and enforcement personnel. Fencing and technology are complementary tools. Technology allows the BP agents to identify and track illegal activity. Fencing provides persistent impedance to illegal cross-border activity, giving agents and officers the time they need to respond. A combination of technology and TI best allows the agents and officers to do their job safely and effectively. CBP will continue to work to deploy the right mix of technology, TI, and personnel to secure the border as effectively and efficiently as possible.

000596




-------------------- The BSFIT Appropriation for FY 2009 calls for an analysis for each segment where operational priorities require the expenditure of FY 2009 funds for the construction of fencing or TI. The information on the enclosed compact disc is submitted to provide the segment analyses. All of the analyses address fence segments and include estimated for costs for equitable adjustments, risk, material, maintenance, and gates and drainage ditch cross-overs where applicable. Analysis Methodology Rating: The below alternatives will be rated differently in each area along the southwest border. As a general rule, these alternatives have been rated on their ability to provide persistent impedance. • PF = pedestrian impedance; • VF = vehicle impedance; • Additional agents = response; • Sensors = detection; • Cameras = identification and classification; • Radars = detection, identification/classification, and tracking; • Baseline = current capability at the specific segment being analyzed. Baseline cost is set at

zero to allow straightforward comparison of all alternatives, which are additive to the baseline; and

• Best of Combinations = The most cost-effective combination or combinations of alternatives other than fence. In general, the additional agent alternative is not included because of the cost-ineffectiveness of this option.

Throughout this process, field commanders and operators assigned scores to the measures of effectiveness based on their extensive knowledge of operations, the terrain in which they operate, and their wide-ranging experience with the outlined alternatives. Each segment AoA underwent peer review and several levels of examination by senior management to ensure that the ratings were accurate and consistently applied from segment to segment. Weighting (Multiplier): Multiplier weightings were established by senior commanders based on their experience and judgment regarding the relative operational importance of each evaluation factor. The following graphics further describe the methodology followed in generating the segment AoAs.

000597




Analysis of Alternatives (AoA)(Fence Solutions and Alternatives)

• Evaluation of options to meet localized requirements for “persistent impedance”– Typically requires a physical barrier to provide effective “time-distance”– Highly dependent on specific location, terrain, environment

• Establishes likelihood of adequate time to respond• Options that score highly here might not score highly in other

environments or operational scenarios– Conversely, options that score low here might score high elsewhere

• Effective control requires balance (personnel, technology, infrastructure)– This AoA covers one part of the total picture in specific border areas

Measures of Effectiveness (MOE)

• Deterrence– The effectiveness of the alternative in deterring attempted

incursions

• Time-Distance– The ability of the alternative to ensure enough time to perform

appropriate law enforcement response and interdict incursions

• Environment– The extent to which the alternative can minimize adverse

impacts to the environment

• Foundational Requirement: Persistent Impedance– Enable appropriate law enforcement response--ensure adequate time to respond– Necessary--not sufficient without other resources and capabilities in these areas

Rating Factors:

000598




Measures of Effectiveness (MOE)• Social

– The extent to which the alternative can minimize adverse impact on the social structure considering items such as excessive presence, demand on housing, demand on local resources

• Sustainability– The ease with which the alternative can be sustained and effective over

long periods of time

• Persistence– The tactical effectiveness of the alternative in adapting to the ebbs and

flow of the threat, environment (like weather), and other demands, and to maintain its effectiveness and presence—to persist

• Executability– The extent to which the alternative can be executed and available within

available budgets and required schedules

Scoring Measures of Effectiveness• Scale of 1 through 5• 5 is always good and 1 is always bad

– 5: Highly effective or insignificant adverse impact– 4: Very effective or minimal adverse impact– 3: Somewhat effective or manageable adverse impact– 2: Limited effectiveness or significant adverse impact– 1: No measurable effectiveness or major adverse

impact• Most significant MOEs multiplied by 6; least significant by 1• Total score is sum of weighted MOE scores• High scores are better than low scores

000599




Alt 1

Alt 3

Alt 4

Alt 5

Alt 6

40

45

50

55

60

65

70

0 50 100 150 200 250

Alt 1Alt 2Alt 3Alt 4Alt 5Alt 6

Notional Presentation of Results

Cost

Wei

ghte

d M

OE

Scor

e

Increasing Cost Effectiveness

• Relative comparison of cost-effectiveness among alternatives W ITHIN a segment

• Not valid for comparing cost-effectiveness of alternatives between segments!• Selection of “best” option dependent on many factors, e.g.:

– Cost-effectiveness– Ability to meet basic requirements– Least cost for acceptable performance

000600




cket Fence

000601

(b) (7)(E)




Bollard Fence

000602

(b) (7)(E)




000603

(b) (7)(E)

(b) (7)(E)


f 192 FOR OFFICIAL USE ONLY


Pedestrian-Vehicle Fence Type PV-1

Grout-filled Steel Bollard Fence

Steel Sheet Panel @ Top 5 feet

000604

(b) (7)(E)




000605

(b) (7)(E)




000606

(b) (7)(E)




Special Design Desert Fence (Floating Fence)

000607

(b) (7)(E)




000608

(b) (7)(E)




Normandy VF

000609

(b) (7)(E)




Appendix G – Supporting Cost Target Information

Information in the table below reflects the current obligations and estimates at completion for TI task orders.

USACE Task Order Awards for SBI TI

* Does not use BSFIT funds.

USACE Task Order Awards for SBI TI O&M

Task Order Task

Order Title

Performance Period

Obligated Amount *

Current Estimate at Completion

Base/

Mod Type of Action Date

W912BV-07-D-2045 El Centro 60 Days Base FFP 1-Feb-08

W912BV-07-D-2045 El Centro 25 Days Mod (1) Time Extension 5-May-08

W912BV-07-D-2045 El Centro 30 Days Mod (2) Time Extension 28-May-08

W912BV-07-D-2045 El Centro 92 Days Mod (3) Time Extension 25-Jun-08

W912BV-07-D-2045 El Centro Mod (4)

Interim Variation in Estimated Quantities

13-Sep-08

Total

Task Order Number Task Order Title Performance Period Obligated Amount *

Current Estimate at Completion

Type of Contract

W912BV-07-D-2018 BIS Smugglers Gulch 03/11/08 - 05/01/09 Firm Fixed Price

W912BV-08-D-2018 TO DZ01

Vegetation Removal and Bank Erosion Control Pilot Project

120 days for initial removal (now to start about 1 FEB 09) plus one year maintenance

Firm Fixed Price

000610

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




W912BV-08-D-2016 Yuma 60 Days Base FFP 21-Mar-08

W912BV-08-D-2016 Yuma Mod (1) X-Fer Contract

from SPA to SPL 10-Apr-08

W912BV-08-D-2016 Yuma 96 Mod (2) Time Extension 25-Jun-08

W912BV-08-D-2016 Yuma Mod (3)

Variation in Estimated Quantities

26-Sep-08

W912BV-08-D-2014 Yuma 60 Days Base (2) FFP 24-Oct-08

Total

W912BV-07-D-2024 Tucson 60 Days Base (1) FFP 1-Feb-08

W912BV-07-D-2024 Tucson Mod(1) X-Fer Contract

from SPA to SPL 27-Feb-08

W912BV-07-D-2024 Tucson Mod(2) Time Extension 12-May-08

W912BV-07-D-2024 Tucson Mod(3) Time Extension 28-May-08

W912BV-07-D-2024 Tucson Mod(4) Time Extension 26-Jun-08

W912BV-07-D-2024 Tucson Mod(5) Add New Work 21-Jul-08

W912BV-07-D-2024 Tucson Mod(6) Interim Quantity

Adjustments 11-Sep-08

Total

000611

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




W912BV-08-D-2027 Tucson 30 Days Base (2) Exercise 30 Day

option 28-Sep-08

W912BV-08-D-2027 Tucson 90 days Mod (1) Exercise 90 Day

Option 31-Oct-08

W912BV-08-D-2027 Tucson Mod (2) Horizontal Flat

Bar Addition 11-Nov-08

Total

W912BV-08-D-2004 El Paso 60 Days Base FFP 1-Feb-08

W912BV-08-D-2004 El Paso Mod (1 ) Re Distribution of

Funds 14-Apr-08

W912BV-08-D-2004 El Paso Mod (2 ) Re Distribution of

Funds 23-Apr-08

W912BV-08-D-2004 El Paso 22 Days Mod (3 ) User Request

Time Extension 2-May-08

W912BV-08-D-2004 El Paso Mod (4 ) Increase Contract 6-May-08

W912BV-08-D-2004 El Paso Mod (5 ) Increase Contract 14-May-08

W912BV-08-D-2004 El Paso Mod (6 ) Change CLIN

0002 Description 20-May-08

W912BV-08-D-2004 El Paso 30 Days Mod (7 ) User Request

Time Extension 28-May-08

W912BV-08-D-2004 El Paso Mod (8) Increase Contract 2-Jun-08

W912BV-08-D-2004 El Paso 30 Days Mod (9) User Request

CLIN Changes 14-Aug-08

W912BV-08-D-2004 El Paso 31 Days Mod(10) User Request

Time Extension 27-Jun-08

000612

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




W912BV-08-D-2004 El Paso Mod(11) Quantity Changes

for Funding 1-Jul-08

W912BV-08-D-2004 El Paso Mod

(12) Increase

Quantities 2-Jul-08


(13) Increase

Quantities 14-Jul-08

W912BV-08-D-2004 El Paso Mod(14) Re Distribution of

Funds 28-Jul-08


Time Extension 29-Jul-08

W912BV-08-D-2004 El Paso Mod(16) Re Distribution of

Funds 14-Aug-08


Time Extension 19-Aug-08


for Funding 8-Sep-08


for Funding 15-Sep-08


for Funding 8-Oct-08

W912BV-08-D-2004 El Paso 30 Days Mod

(21) Time Extension 22-Oct-08


(22) Quantity Variation 22-Oct-08


(23) Quantity Variation 3-Nov-08

Total

Variance/Savings

* Obligations represent task order amounts from USACE Acquisitions, not actual obligations of CBP funds.

000613

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




Task Order Awards to the Boeing Company as of September 30, 2008

Task Order Task Order Title Performance Period Obligated

Amount Ceiling Price

Current Estimate

at Completion

Type of Contract

HSBP1006D01353 Master Contract (See Note 1) 09/18/06 - 09/17/09 IDIQ

HSBP1006J13313 PM (COMPLETED) 09/21/06 - 04/15/08 Cost, Award Fee

HSBP1006J13776 P-28 (COMPLETED) 10/26/06 - 02/15/08 Firm Fixed Price

HSBP1007J14218

Barry M. Goldwater Range Tactical Infrastructure (COMPLETED) 01/12/07 - 03/31/08

Cost, Award Fee

HSBP1007J15464 Fence Lab (COMPLETED) 03/16/07 – 09/30/07 Cost, Fixed Fee

HSBP1207J17845 Design Task Order (See Note 2) 08/01/07 -05/31/09

Cost, Fixed Fee

HSBP1208J19571 Integrated Logistics Support (P28 CLMS) (COMPLETED) 12/07/07 - 08/15/08

Cost, Fixed Fee

HSBP1208J19363 Common Operating Picture/C3I (See Note 3) 12/07/07 - TBD

Cost, Award Fee

HSBP1208J19751 Supply and Supply Chain for TI 01/07/08 - 12/31/08

Cost, Fixed Fee

HSBP1208J20016 STO (See note 4) 04/15/08 - 02/15/09 Cost, Award Fee

HSBP1208J21892 ADTO (See note 5) 06/25/08 - 03/31/09 Cost, Incentive Fee

HSBP1208J20165 Integrated Logistics Support 08/16/08 - 09/17/09 Cost, Incentive Fee

Total

Variance/Savings

000614

(b) (4)(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)

(b) (4)




Appendix H – U.S. Customs and Border Protection Report to Congress on SBInet and Tactical Infrastructure Environmental Plan and Report on Mitigation Efforts

U.S. Customs and Border Protection

Report to Congress on SBInet and Tactical Infrastructure Environmental Plan and Report on Mitigation Efforts

Contents

1. Preface

2. Executive Summary

3. Environmental Compliance and Stewardship for Tactical Infrastructure

4. FY 2009 Environmental Plan

5. Environmental Monitoring Plan

6. Environmental Mitigation Plan

7. Summary

000615




Section 1: Preface

Joint Explanatory Statement accompanying the FY 2009 Department of Homeland Security Appropriations Act (P.L. 110-329), page 590: REPORTING REQUIREMENTS TO THE COMMITTEES

U.S. Customs and Border Protection (CBP) is directed to include, as part of the quarterly Secure Border Initiative (SBI) reports, a report on technology investment on the northern border, as specified in the House report. CBP is directed to provide a monthly report on BSFIT obligations and expenditures, as specified in the House report. CBP is directed to include, within the FY 2009 expenditure plan and as specified in the House report, an environmental plan and a report on mitigation efforts.

House Report 110-862, page 44: ENVIRONMENTAL AND REGULATORY ASSESSMENTS

The Committee includes for regulatory and environmental assessments and mitigation, above the amount requested. In April 2008, when the Secretary waived the environmental and other laws affecting as much as 470 miles of southwestern border, the Department stated it would mitigate or avoid damaging impacts where possible. The Committee is concerned, therefore, that CBP has rejected proposals to use science-based approaches to develop and monitor mitigation efforts, for example by comparing the impact of new infrastructure with similar areas where such infrastructure is absent, or by using existing authority to establish ‘‘buffer areas’’ to accommodate both mitigation and security objectives.

The Committee includes to enable more meaningful efforts for environmental assessment and mitigation. The Committee directs CBP to include an environmental mitigation plan and report on mitigation efforts with its FY 2009 expenditure plan submission. The plan should be science-based; include an extensive monitoring protocol; incorporate best practices developed in consultation with relevant Federal, State, local and tribal authorities and; support land acquisition efforts for mitigation purposes, where applicable.

000616

(b) (4)(b) (4)

(b) (4)




Section 2: Executive Summary Congress directed BSFIT funding of for environmental assessments and mitigation for FY 2009. This is above the CBP request for FY 2009. We recognize the Congressional direction and have prepared a plan for the CBP/SBI FY 2009 environmental program efforts are focused on investing in tools for improved project planning; integrating the planning efforts for SBInet and TI projects for efficiency and improved consultation with stakeholders; pulling forward and expediting the environmental compliance and planning actions for FY 2009 and out years; and implementing the highest priority mitigation requirements for both SBInet and TI projects. As discussed in more detail in Section 3, in April 2008, the Secretary issued two waivers of environmental laws and other legal requirements pursuant to the authority granted to the Secretary in Section 102(c) of IIRIRA. Notwithstanding that fact, CBP has and will continue to plan and execute projects covered by the waivers along the southwest border and other TI projects not covered by the waivers while ensuring responsible environmental stewardship. CBP will comply with applicable laws and regulations for projects covered by waivers and those that are not covered by waivers. DHS/CBP and DOI are cooperating in the development and implementation of a monitoring plan to assess the environmental effects of actions taken to secure the international border between the United States and Mexico. The objective of the monitoring plan is to quantify both positive and negative effects of border infrastructure and operations on the natural and cultural resources along the border. This plan should be completed in early 2009 and would be implemented over the next several years. The primary purpose of monitoring is to provide scientifically credible information for adaptive management. The monitoring plan will address: (1) installation, maintenance and operation of border security infrastructure, including vehicle and PFs, barriers, access roads, buildings, and virtual fence components, such as communication and surveillance towers, lighting, and sensors; (2) border operations which include the impacts of law enforcement operations, patrols, and pursuits (air and ground, on and off road); and (3) applicable local, State, and Federal projects. This monitoring program will not address the effectiveness of border security operations in controlling illegal immigration or the political, social, or economic effects of border security operations. In the course of developing the ESPs for the various fence projects covered by the waivers, appropriate mitigations were identified by CBP. Mitigations were identified in three categories: cultural resources, endangered species and surface waters/wetlands. In addition, estimated costs for implementation of “environmental Best Management Practices (BMPs)” were also

000617

(b) (4)(b) (4)

(b) (4)




developed. The appropriate cultural resources mitigations were developed by USACE archeologists and consultants in close coordination with State Historic Preservation Officers and Tribes. CBP will continue to work closely with DOI in developing a comprehensive list of appropriate mitigations for the tactical infrastructure and SBInet programs. DOI will assist CBP and provide recommended projects in two groups: (1) threatened and endangered species for which DHS had already committed to fund reasonable mitigation measures to offset the effects of PF225 and VF300 construction; and (2) other natural and cultural resources identified by DOI beyond endangered species. The mitigation plan should be completed by June 1, 2009.

Section 3: Environmental Compliance and Environmental Stewardship Congress called upon DHS to construct—in the most expeditious manner possible—the infrastructure necessary to deter and prevent illegal entry on our southwest border, including pedestrian and vehicle fencing, roads, and virtual detection technology. Section 102(b) of the IIRIRA requires installation of fencing, barriers, roads, lighting, cameras, and sensors on not less than 700 miles of the southwest border including certain priority miles of fencing that must be completed by the end of 2008. In accordance with applicable Federal environmental laws and policies, CBP, has continued to pursue a comprehensive effort to address potential environmental impacts associated with constructing, maintaining, and operating tactical infrastructure along the southwest border. CBP openly scoped projects in coordination with Federal and State agencies as well as the public to ensure potential environmental impacts were identified and thoroughly evaluated for each project. CBP conducted extensive consultations with resource agencies and local stakeholders which resulted in numerous changes to the tactical infrastructure alignment, location of access roads, placement of staging areas, and even fence design, in order to minimize potential environmental impacts. CBP also prepared and circulated for public comment and review 18 NEPA documents (EA/EISs) on originally planned PF projects. Although CBP had nearly completed the required NEPA documents for the PF225 TI program by early 2008, significant schedule risk remained to meet the Congressionally mandated deadline of December 2008 due to likely litigation and time required to complete negotiations with the U.S. Fish and Wildlife Service (USFWS) regarding Biological Opinions. In addition, existing laws for Wilderness Areas and Wildlife Refuges restricted land managers’ ability to approve tactical infrastructure on these lands. Therefore, on April 1, 2008, the Secretary of DHS, pursuant to his authority under Section 102(c) of IIRIRA, exercised his authority to waive certain environmental and other legal requirements associated with construction of TI along the southwest border. These laws included the NEPA, Endangered Species Act, the National Historic Preservation Act, the Clean

000618




Water Act, and others. Although the Secretary’s waiver means that CBP no longer has any specific legal obligations under these laws for projects covered by the waivers, the Secretary committed the Department to responsible stewardship of our valuable natural and cultural resources. CBP strongly supports this and remains committed to being a good steward of the environment. Although the Secretary has exercised the waiver authority vested in him by Congress through the IIRIRA, DHS and CBP remain committed to building TI in an environmentally responsible manner. In support of this commitment, CBP continued to work in a collaborative manner with local government, State, and Federal land managers, and the interested public to identify environmentally sensitive resources and develop appropriate BMPs to avoid or minimize adverse impacts resulting from the fencing projects. CBP will continue this close coordination with the USFWS, other DOI bureaus, and other Federal and State resource agencies. In fulfillment of the commitment by Secretary Chertoff, CBP is continuing with an “environmental review” of the fencing projects and is publishing the results of this analysis in ESPs on the BorderFencePlanning.com website, including mitigation and Best Management Practices developed to minimize adverse effects to the environment. These ESPs are being developed for each BP Sector scheduled for tactical infrastructure improvements and address each segment of pedestrian and vehicle fencing covered by the waivers. Although not required by virtue of the waivers, CBP continues to perform the same level of environmental analysis (in the ESPs) that would have been performed before the waivers (in the “normal” NEPA process) to evaluate potential impacts to sensitive resources in the areas where fence is being constructed. CBP is using the same standards and guidelines to evaluate potential environmental impacts and appropriate mitigations as would be used without the waivers. CBP completed 11 EAs under the National Environmental Policy Act for PF225 and VF300 projects prior to the waivers. Since the waivers were issued, as of September 30, 2008, CBP completed 10 of these ESPs for PF segments. Numerous additional ESPs for both pedestrian and vehicle fence were also under development as of the end of FY 2008 and were completed in November 2008.

000619




Construction corridor bounded by berm, Hidalgo, Texas

CBP is ensuring that our ESPs actually get implemented on the ground. The plans are part of the construction contracts. The contractors must implement the BMPs to protect resources that are part of these plans. CBP contracted with independent biological and cultural resource monitors to advise USACE construction managers and construction contractors and document our performance in meeting these plans. We are providing the construction contractors with training before construction, on sensitive natural and cultural resources in the project area, and procedures to follow if any endangered species or cultural site is encountered.

In FY 2007 and FY 2008, CBP spent for PM support and preparing 19 separate environmental planning documents (8 formal NEPA EAs and 13 ESPs under the April 2008 DHS Secretary waiver). The individual costs ranged from about for the El Paso Deming I-1A EA to about for the Rio Grande Valley EIS/ESP.

000620

(b) (4)

(b) (4)

(b) (4)




Bollard fence with temporary covers for migratory birds, Hidalgo, Texas

Concrete wash out pit, Hidalgo, Texas

To ensure the BMPs were implemented during construction, CBP spent for independent environmental monitors and environmental awareness training for construction contractors. These monitors were contracted by USACE and reported directly to the USACE

000621

(b) (4)




Construction Manager. The primary objective of the environmental monitors is two fold. First, these monitors are to ensure that the Construction Contractors are compliant with General and Environmental Best Management Practices delineated in the RFP. Second, the monitors would conduct surveys (biological and cultural) of the changes to the construction footprint to include fence alignment, access roads and staging areas to ensure that the impacts to these resources have been documented. CBP completed over 70 separate Phase I Environmental Site Assessments for the PF225 Program. These documents correlate directly to the construction segments and address CBP interest in Federal, State, and private properties. Assessments were prepared in accordance with ASTM 1527 – 05. In addition, CBP initiated efforts to prepare Phase I Environmental Site Assessments for VF300 projects. NATURAL RESOURCES AND ENDANGERED SPECIES The ESPs include Biological Resources Plans (BRPs) that are closely coordinated with the USFWS. In addition, construction plans and efforts to avoid and minimize any negative impacts are closely coordinated with the applicable Federal land managers and Tribes. The BRPs provide the detailed analysis of the potential impacts, planned BMPs, and potential appropriate mitigations for unavoidable impacts to endangered species for each fence project. Although emphasis is placed on potential endangered species impacts, these ESPs also evaluate potential impacts to other sensitive species and where possible, CBP incorporated means for species of animals not on the Endangered Species Act list and mitigation efforts to assist these species to pass through fencing. For example, CBP added small openings at the base of the PF in El Paso, Texas, to permit passage specifically for the Texas Horned Lizard. In addition, the bollard style of PF that is being used across many of the segments inherently includes 4-6 inch spacing that permits passage of small wildlife. In the BRPs, the potential presence of threatened and endangered species in or proximal to the project corridor was examined for every fence section. Data on species occurrences from both Federal and State data sources were analyzed in coordination with USFWS. This coordination included examining the movement and dispersal of species in the vicinity of the border. GIS-based interactive maps were developed which layered documented species occurrences over vegetation, infrastructure, and other informative layers to support analysis of potential impacts by fence section. In coordination with USFWS, the anticipated nature and intensity of impacts to listed species were completed for each fence segment. In summary, a total of about 60 threatened and endangered species of plants and animals associated with the fence corridors along the southwest border were identified and evaluated. Of this total, CBP determined that the fence construction would have “no effect” on or would be “not likely to adversely affect” 46

000622




species. At this time, CBP has determined that there would likely be “adverse affects” on 14 species and one species had “no determination” (Aplomado Falcon; Experimental Population). It must be noted, that for some of the fence sections, these evaluations, and coordination with the USFWS, are on-going. With the issuance of the waivers by the Secretary of DHS, DHS/CBP committed to provide programmatic mitigation funds over multiple years to be used to offset for unavoidable impacts to endangered species. DHS and DOI will develop a Memorandum of Agreement (MOA) regarding the details of administering this fund to ensure these mitigations are implemented properly. This is further addressed below. Through CBP’s environmental planning for each project, CBP was able to limit impacts to wetlands to about 30 acres for PF225 and about 30 acres for VF300 Projects. CBP coordinated closely with USACE for advice on appropriate techniques to minimize surface water and wetlands impacts and then on appropriate mitigations and potential options to implement mitigations. CBP will work closely with DOI and USACE to develop specific plans and actions for surface water and wetlands mitigations. CULTURAL RESOURCES CBP has completed cultural resources surveys in all construction corridors prior to installing tactical infrastructure along the southwest border with Mexico. Cultural resources studies have been completed in California, Arizona, New Mexico, and Texas. This effort is notable as the largest cultural resources undertaking ever completed along the southern international border. This portion of the American Southwest is on the archaeological frontier. Thus, CBP’s funding and cultural surveys across this vast landscape have provided archaeologists with the means to learn more about this culturally rich area. In Arizona, most of the 370-mile border has been surveyed for cultural resources. In addition, over 250 miles of access roads, and hundreds of acres of staging areas, have been surveyed. These efforts have documented over 200 sites. In New Mexico, most of the160 mile border has been surveyed and 70 miles of access roads have been examined. As a result, over 50 sites have been recorded. Over 200 miles have been surveyed in Texas. These surveys have investigated the border around El Paso, Del Rio, and Marfa as well as the Lower Rio Grande Valley. In excess of 50 archaeological sites and 300 historic structures have been documented along the Texas – Mexico border. CBP strives to avoid impacts to sites and historic structures. However, in some cases sites cannot be avoided. In these instances, CBP has funded additional archaeological work to

000623

Pick

Highlight




mitigate damage to the sites. As of July 2008, CBP has funded post-survey work at over 50 sites along the southwest border. In California, CBP funded the excavation of two sites: one in Border Field State Park and; one at Lichty Mesa, in San Diego, California, as part of a San Diego Border Infrastructure Project (BIS) Project. The excavation includes a combination of archaeological excavation, surface collection, monitoring and archival research. Data was collected to determine the age of the sites, the types of foods used by the site inhabitants, annual migration pattern, and cultural affiliation. In Arizona, two sites near Sasabe were excavated in the spring and summer of 2007 in advance of the construction of PF. One of these sites was a historic ranch occupied in the 19th century by a family. Prior to the study by CBP, little was known of this ranch or the cattle trade of the 19th century occurring in this area. The second site was a prehistoric campsite occupied by a small family unit sometime around AD 500. This site offered limited data but contained tools made of stone imported from as far north as Phoenix, possibly indicating the family’s migration route or trade relations. Another two sites were excavated on the San Pedro River south of Sierra Vista, Arizona, in the winter of 2007. The older site was a large prehistoric village. In total, 258 cultural features were revealed within the portion of the site investigated. Preliminary indications suggest that the site was occupied from about AD 700 to 1200, though an earlier component may also be present. Artifacts and samples recovered from the excavations have been processed and are currently being inventoried and sorted for analysis. The second site along the San Pedro River was a campsite used by the IBWC border surveyors who marked the international border with permanent monuments in 1892-94. The data from this site will expand our understanding of how the surveyors accomplished their daunting mission. Six additional sites were found in the area between Douglas, Arizona, and the New Mexico border. These include four prehistoric sites and two historic sites. The prehistoric sites appear to relate to the Early Agricultural period (circa AD 1). These sites will provide needed information about the transition from nomadic hunting and gathering to sedentary farming, a transition that marks a distinct change in the life ways of prehistoric peoples in the Southwest. Little archaeological work has been done in southeast Arizona and therefore this new information will be of great value to future researchers. In New Mexico, CBP performed archaeological investigations at 20 sites. A combination of historic, prehistoric, and multi-component sites were investigated. In Doña Ana County, archaeological testing has occurred on three archaeological sites eligible for the National

000624

Pick

Highlight

Pick

Highlight

Pick

Highlight

Pick

Highlight

Pick

Highlight




Register of Historic Places, to determine the nature and extent of subsurface remains and to recover information to increase the understanding of prehistory settlement and life ways of the area. In the Bootheel section of New Mexico in remote Hidalgo County, nine sites were selected for further research to increase the understanding of the Middle Archaic period at Carbondale Playa These sites were selected because they offer an opportunity to investigate a grouping of sites related in both space and time. In addition, historic research is being conducted to increase understanding of the border surveying and monument building effort of the 1850s. The historic sites are in remote Hidalgo County. One of the historic sites contains two structures, three extramural features, and perhaps a thousand artifacts within the VF corridor. The site will be mapped and more detailed documentation of the structures, features, and artifact assemblages completed. These efforts will provide a better understanding of how the site was used and the economic pursuits of the occupants. The second historic site is the original El Berrendo (Antelope Wells) POE into Mexico. Although all structures and features occur on the Mexican side of the boundary, an artifact scatter on the U.S. side provides data potential to address questions of economic, subsistence, and social activities. The U.S. side of the site was mapped and all artifacts within the area were plotted and analyzed In Texas, CBP funded a variety of cultural resources studies as part of environmental stewardship associated construction of tactical infrastructure in Marfa, Del Rio, and the Lower Rio Grande. At the survey level, CBP funded both archaeological and historic structures investigations. A geomorphic investigation to identify deeply buried sites along the Rio Grande River was also completed. As a result of the survey effort, sites were found and mitigation efforts have been developed. Data recovery was performed at three sites in Rio Grande Valley, and a historic structures mitigation program is currently being developed. The data recovery efforts were focused on two prehistoric sites and one historic site. The prehistoric sites appear to relate to the Archaic period (circa 2,000 BC). Excavation of these sites will provide much needed information on the diet, migration patterns, and life ways of these early Americans. The historic site is a peripheral part of the early 20th century town of Moodyville. Through archival research and archaeological excavations, archaeologists and historians are trying to determine the role the small hamlet of Moodyville played in the economic system of the Lower Rio Grande Valley.

Section 4: FY 2009 Environmental Plan CBP/SBI FY 2009 environmental program efforts are focused on investing in tools for improved project planning; integrating the planning efforts for SBInet and tactical infrastructure projects

000625

Pick

Highlight

Pick

Highlight

Pick

Highlight




for efficiency and improved consultation with stakeholders; pulling forward and expediting the environmental compliance and planning actions for FY 2009 and out years; and implementing the highest priority mitigation requirements for both SBInet and TI projects. The CBP/SBI FY 2009 environmental spend plan is summarized in Table 6 below. CBP will continue to plan and execute projects covered by the waivers along the southwest border and other tactical infrastructure projects not covered by the waivers while ensuring responsible environmental stewardship. CBP will comply with applicable laws for both projects covered by the waivers and those that are not covered by waivers. Table 6. FY 2009 SBI Environmental Spend Plan IPaC Development DOI—Fence Mitigation Payment SBInet FY 2009-FY 2011 Projects – Environmental Planning SBInet FY 2009-FY 2010 Projects – Environmental Mitigation SBI FY 2010 TI Projects – Environmental Planning SBI FY 2010 TI Projects – Environmental Mitigation FY 2009 Total During FY 2009, CBP will continue to invest in the close partnership with DOI/USFWS in the development of the Information, Planning and Consultation (IPaC) tool. CBP initiated this partnership with DOI/USFWS in 2007 to foster improved and streamlined environmental planning for CBP projects. The IPaC is a web-based tool to assist CBP in evaluating potential impacts to endangered species. This tool holds tremendous promise to greatly improve the quality and consistency of endangered species planning and reduce time and costs. Over the course of the past year, CBP and DOI/USFWS have jointly developed Best Management Practices for projects designed to avoid or minimize potential impacts to endangered species. These BMPs were used in the development of the ESPs for the PF and VF projects and were included in the construction contracts. Results of the success of these BMPs will be used to continue to improve the IPaC tool for future projects. Over the past year, CBP worked closely with DOI to develop BMP to avoid or minimize impacts to natural and cultural resources. These BMPs were incorporated into the construction contracts, ESPs, and Biological Resources Plans posted on BorderFencePlanning.com for public information. CBP worked closely with DOI/USFWS to identify appropriate mitigations for unavoidable impacts. Examples include lost habitat (acres) due to construction of the fence corridor and access roads, or compensation for unavoidable loss of columnar cactus, or use of groundwater for construction from a protected watershed instead of trucking water for long distances. DOI and CBP are completing the specific mitigation plans and agreements at this

000626

(b) (4)




time. (The current mitigation plan is discussed in greater detail below). CBP and DOI agree that the mitigations would need to be implemented over some period of time to be most effective and efficient. The FY 2009 CBP environmental plan earmarks toward this fund. Additional funding will be provided in subsequent years once the details of the plan and agreements are finalized with DOI. CBP is rapidly moving to complete the necessary environmental compliance and planning actions for FY 2009 and FY 2010 SBInet projects. Completion of environmental planning documents and potential negotiations with USFWS regarding impacts to endangered species, and with Federal land managers, often requires a significant amount of time before commencing construction. CBP will initiate planning efforts in FY 2009 for both FY 2009 and FY 2010 SBInet projects. CBP will leverage off procedures and relationships developed with the USFWS and DOI regarding tactical infrastructure to expedite and streamline the process. Plans are currently being developed, but CBP estimates that 15 environmental planning documents will be required to support timely implementation for new FY 2009 and FY 2010 tactical infrastructure projects across all southwest sectors and another six environmental planning documents will be required to support FY 2009 and FY 2010 SBInet projects. Likewise, CBP plans to prepare additional environmental planning documents for tactical infrastructure projects for roads, lights, cameras, and sensors along the southwest border in areas covered by a waivers and in un-waived areas. CBP is planning to complete the necessary environmental compliance and planning actions (NEPA documents or ESPs; consultation with stakeholders; preparation of cultural and biological resources reports and biological assessments, and wetlands determinations and studies). In addition, CBP is planning

for mitigations for unavoidable impacts to these natural or cultural resources.

Section 5: Environmental Monitoring Plan

The DHS/CBP and the DOI are cooperators in the development and implementation of a monitoring plan to assess the environmental effects of actions taken to secure the international border between the United States and Mexico. The objective of the monitoring plan is to quantify both positive and negative effects of border infrastructure and operations on the natural and cultural resources along the border. Following, are the general principles and guidelines that will guide the development and implementation of the monitoring strategy. Actions include the categories of: (1) installation, maintenance and operation of border security infrastructure, including vehicle and PFs, barriers, access roads, buildings, virtual fence components, such as communication and surveillance towers, lighting, and sensors; (2) border

000627

(b) (4)

(b) (4)

(b) (4)




operations which include the impacts of law enforcement operations, patrols, and pursuits (air and ground, on and off road) and; (3) applicable local, State, and Federal projects. For purposes of this monitoring program, the environment includes all animals, plants, soil, water, air, wilderness, and pre-historic and historic cultural resources. The primary purpose of monitoring is to provide scientifically credible information for adaptive management (as opposed to solely basic research). Key questions and subsequently developed hypotheses will guide the monitoring efforts. As applicable, information from the monitoring program will be used to: (1) more closely integrate environmental stewardship into border security operations; (2) identify best management practices or mitigation measures for future border security operations; (3) develop monitoring protocol templates for additional border locations (including the northern U.S. border); (4) communicate to elected officials and the public, the positive and negative effects of border security operations on natural and cultural resources; and (5) identify effects of illegal traffic on habitat and resident wildlife species. To the extent practicable, the protocols and processes will be designed to be repeatable in different settings. This monitoring program will not address the effectiveness of border security operations in controlling illegal immigration or the political, social, or economic effects of border security operations.

Basic Elements of a Monitoring Project

• Identification of monitoring goals and objectives o What is the question and why; identify existing information; conceptual model

• Identification of targets to monitor - indicators o Selection based on above results and availability of resources (fiscal/human)

• Determine the sampling design o Number and location of sampling sites; frequency and timing of sampling

• Determine sampling methodology o Equipment needed, sampling procedures, lab analysis

• Quality assurance and quality control o How you assure and control quality; training and potential certification of users

• Data management and archiving o Scheme to ensure data are documented, maintained, archived, and accessible

• Data analysis and assessment o Anticipated analysis including estimates of confidence

• Reporting o Reporting formats and schedule (useable, understandable, responsive) to user

000628




• Periodic review and evaluation o Ensure project responsive to need and reflects best available science

• Protocol Documentation (peer reviewed) o All of the “Basic Elements” documented within the protocol (question; sampling design;

methodology; anticipated analysis/analytic tools; data management; reporting strategy; review schedule)

Safety and Security At no time will this monitoring program knowingly compromise the border security mission of DHS. DHS and DOI will work together to quickly resolve any issues relating to monitoring activities that are identified by DHS as potentially compromising border security operations. Each agency will be responsible for the safety of their field-going employees that may participate in the monitoring program. Safety information will be shared in the same forums that it is presently shared (Borderland Management Task Force meetings). Collaboration This monitoring program is a collaborative effort between DHS and DOI. Decisions regarding the development, implementation, and funding of this effort will be agreed upon by both parties. The appropriate decision makers for each phase of this effort will be identified in the charter or other instruments of agreement (i.e. Memorandum of Agreements, Memorandum of Understanding, Intergovernmental Agreements, contracts). Communication A communication plan, including key messages, will be developed for the monitoring program. Contacts with the media and public outreach by department and agency officials about this monitoring program will be consistent with the key messages. The plan will identify techniques to reach out to stakeholders. Funding Funding for this monitoring program will be the responsibility of DHS. Other projects that derive from DHS/DOI collaborative efforts (i.e. studies that extend beyond border security impacts) may be considered for cost-sharing. The terms of those arrangements will be negotiated in advance. Role of management Managers will establish goals and suggested guidance for the monitoring program and provide input in areas of their expertise – including logistical advice (local conditions, site selection, and identification of potential partners or cooperators). Managers will provide oversight of the program to ensure that their identified goals and objectives are met, established protocols are followed and funding is utilized efficiently and effectively.

000629




Science-based process Development of the monitoring program, including the design of studies, data collection and sampling protocols, and data analysis will be science-based and hypothesis driven. Peer review processes (both internal to DOI/DHS) and external will be agreed to in advance by the appropriate DHS and DOI officials. Involvement of Non-governmental organizations (NGOs) Public outreach and the involvement of NGOs will be beneficial for the long-term success of the monitoring program. In seeking this involvement, project participants will adhere to the requirements of the Federal Advisory Committee Act. Data storage and retention The protocols for data storage and retention will be developed and agreed to prior to initiating data collection. The sensitivity of certain information (specific locations of cultural sites or sensitive species) will be taken into account and not compromised. Whenever possible, the following coordination opportunities will be considered: • Existing monitoring and data management efforts, both internal and external to DOI, will be

utilized where practicable; • Monitoring efforts will be designed to link local and regional information and support

national assessments (i.e. integrate the data across scales); • Monitoring will be designed to integrate wildlife population monitoring with habitat

monitoring; • Monitoring that is underway by other agencies (e.g. Fish and Wildlife Service biological

opinions) will continue as a separate activity, will not be duplicated as part of this monitoring program and, when possible, be integrated with protocols developed for broad-based environmental monitoring;

• Support quantitative, scientifically defensible descriptions of the resource (assessment) and changes in the resource over time (monitoring) to establish trends;

• Strive to ensure all data and information derived from monitoring are well-documented, open and accessible, both internally and externally, unless otherwise stated;

• Provide for flexibility, but, strive for comparability among specific monitoring protocols; • Apply the Basic Elements in the review, evaluation, and use of 3rd party and historic

monitoring data; • Require internal and when appropriate external peer-review of all plans and products; and • Encourage partnerships, leveraging of resources, and cost-sharing.

000630




Section 6: Environmental Mitigation Plan A major aspect of the environmental planning for the PF225 and VF300 programs was the development of a comprehensive plan and summary of appropriate mitigations for unavoidable impacts to the environment associated with the construction of the tactical infrastructure. In addition, appropriate mitigations would be developed for SBInet projects. In the course of developing the ESPs for the various fence projects, appropriate mitigations were identified by CBP. Mitigations were identified in three categories: cultural resources, endangered species and surface waters/wetlands. In addition, estimated costs for implementation of “environmental Best Management Practices” were also developed. The BMPs were embedded within the construction contracts. Costs were estimated for each fence segment in PF225 and VF300, depending on the resources affected in each segment, as documented in the ESP and the associated Biological Resources Plan (BRP). Potential endangered species mitigation cost estimates were developed in the course of developing the various BRPs. These BRPs were coordinated with USFWS offices and DOI and U.S. Department of Agriculture land managers. Mitigation estimates are based on purchase of land to offset habitat lost through implementation of each fence project. Land prices were based on several methods including survey of advertised local land prices and input from local land resource agencies. In each case every effort was made to determine the value of land that best represented the type(s) of habitat requiring offset. These projects would be funded from the programmatic mitigation agreement being developed between CBP and DOI that will provide up to for endangered species. Mitigations for surface waters and wetlands that would meet the regulatory definition of Waters of the United States (WUS), were developed in the course of preparation of the ESPs. Standard USACE methods for delineating jurisdictional WUS were employed.34 Results were reviewed and coordinated, and in many cases field verified, with the appropriate USACE District Regulatory offices. The Districts provided advice on appropriate potential mitigations. Total acres of wetlands impacts were developed for each fence segment. CBP used a conservative three acres mitigated to one acre impacted (3:1), ratio for the cost estimates as a planning estimate, although it is understood that this ratio would vary depending on the functional characteristics of the wetland impacted; the type of wetland impacted (e.g., palustrine forested

3Environmental Laboratory. 1987. “Corps of Engineers Wetlands Delineation Manual,” Technical Report Y-87-l, U.S. Army Engineer Waterways Experiment Station, Vicksburg, Mississippi. 4 US Army Corps of Engineers. (2005). “Regional Supplement to the USACE Wetland Delineation Manual: Arid West Region,” J. S. Wakeley, R. W. Lichvar, and C. V. Noble, eds., US Army Engineer Research and Development Center, Vicksburg, MS.

000631

(b) (4)

Pick

Highlight




[PFO] vs. palustrine emergent [PEM]) and; the context of the impact (e.g., edge impact vs. bifurcation). The estimated costs for BMPs were developed to capture environmental stewardship costs imbedded within the construction cost. Estimated costs to implement the environmental BMPs for the PF225 and VF300 construction projects were about These were costs of actions performed during construction that were not normal construction practice. While these costs are not mitigation costs, they demonstrate the level of investments CBP made during construction to minimize any environmental impacts. For example, we estimated the cost to add temporary caps on bollard posts to be per bollard and we estimated the number of bollard posts for each segment. We also added costs for environmental clearance surveys for migratory birds and for environmental monitors onsite during construction and for training of construction crews prior to construction. The appropriate cultural resources mitigations were developed by USACE archeologists and consultants in coordination with State Historic Preservation Offices and Tribes. Cultural resources mitigation cost estimates were provided by the CBP consultants and Corps of Engineers archeologists that developed the plans for the mitigation efforts. Over time, as these mitigations were actually completed prior to construction, these costs have been refined and updated. Thus far, CBP has invested about in post-survey studies and mitigations for cultural resources prior to construction. The cultural resources costs are mitigation costs that were, for the most part, expended prior to construction to clear (mitigate) archeological sites for construction. It should be noted that in some segments, cultural resource monitors were the mitigation action beyond the "normal" environmental monitoring to ensure the BMPs were implemented properly. CBP will continue to work closely with DOI in developing a comprehensive list of appropriate mitigations for the PF225 and VF300 programs. DOI will assist CBP and provide recommended projects in the two groups outlined below: 1) threatened and endangered species for which DHS had already committed to pay up to to fund reasonable mitigation measures to offset the effects of PF225 and VF300 construction, and 2) other natural and cultural resources identified by DOI beyond endangered species. CBP has performed extensive environmental stewardship efforts including mitigation for cultural resources and has no further obligation to fund these additional mitigations. DOI and DHS would seek funding for these additional mitigations through normal appropriations processes. • Group 1 Mitigations - Endangered and threatened species whose habitats, distribution, or

population are adversely affected by the planning for, deployment and maintenance of border security infrastructure.

• Group 2 Mitigations

000632

(b) (4)

(b) (4)

(b) (4)

(b) (4)




(a) Other fish and wildlife including migratory birds, resident species, and other members of the animal kingdom whose populations or habitats may be adversely affected by the planning for, deployment and maintenance of border security infrastructure.

(b) Plant communities including wetlands and riparian areas that may be adversely affected by the planning for, deployment and maintenance of border security infrastructure.

(c) Adverse effects to other natural resources including soils and hydrology from the planning for, deployment and maintenance of border security infrastructure.

(d) Cultural resources including Native American human remains and cultural items that may be adversely affected by the planning for, deployment, and maintenance of border security infrastructure.

DOI-recommended mitigation measures will be based on the best science and natural and cultural resource conservation practices and will be designed to mitigate the adverse effects caused by the construction and maintenance of border security infrastructure. DOI-recommended mitigation measures will be subject to review and discussion before final acceptance by DHS. DHS and DOI will make these lists of mitigation measures available for public review and comment for a period of not less than 30 days. Public comments would be incorporated into the list of mitigation measures as appropriate and practicable. In addition, CBP and DOI will seek opportunities where possible, with other members of the conservation community in implementing mitigation measures through cost-sharing, partnerships, and related activities. Where DOI accepts responsibility for implementing mitigation measures, lump sum payments for mitigation measures will be provided to DOI by DHS and/or its constituent bureaus, and DOI and/or its constituent bureaus or contractors will implement the measures encompassed by such payments. Where DOI accepts responsibilities for implementing mitigation measures and where funds are transferred to DOI, DOI will administer such projects and funds in a transparent and professional manner. In particular, DOI will establish a Borderland Mitigation Advisory Team that will effectively and efficiently administer mitigation funding and oversee the implementation of mitigation measures.

Section 7: Summary

CBP continues a strong commitment to responsible environmental stewardship as evidenced by numerous achievements in the PF225 and VF300 programs. CBP/SBI FY 2009 environmental program efforts are focused on investing in tools for improved project planning; integrating the planning efforts for SBInet and tactical infrastructure projects for efficiency and improved consultation with stakeholders; pulling forward and expediting the environmental compliance

000633




and planning actions for FY 2009 and out years; and implementing the highest priority mitigation requirements for both SBInet and TI projects.

000634