Beruflich Dokumente
Kultur Dokumente
March 4, 2009
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Table of Contents
Page
4 Legislative Requirements
9 Introduction
17 Background
20 Discussion
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130 Certifications
173 Appendix H – U.S. Customs and Border Protection Report to Congress on SBInet and
Tactical Infrastructure Environmental Plan and Report on Mitigation Efforts
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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, (b) (4) 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;
(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;
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(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
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(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) 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 (b) (4) 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.
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The chart below summarizes the location in the plan where each specific legislative requirement
is addressed.
Figure 1 – Legislative Requirements Cross-Reference Chart
Includes an explicit plan of action for meeting current and future program
commitments, specifically showing the current year investment and estimated
3 64 – 91
maximum investment (including life-cycle costs) for funding and under the plan;
Identifies funding and staffing requirements by office and functions within the SBI
4 program; 92 – 97
Describes in detail how the plan addresses Northern Border and Ports of Entry
security needs (including infrastructure, technology, and design and operations
5 requirements); how plan components rely on BSFIT funding; and how SBI has 98 – 103
prioritized its Northern Border activities;
Lists all open GAO and OIG recommendations, status of efforts to address them, and
133-136
7 a timetable for doing so;
(Appendix B)
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 137-144
8
integrator and subcontractors. This certification should append all relevant (Appendix C)
documents and memoranda, including documentation and definitions related to the
investment review processes used to obtain said certification;
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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 150-151
10
priorities. This certification should include all relevant documents of memoranda, (Appendix E)
including a description of processes used to obtain said certification;
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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.
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.
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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
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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. (b) (7)(E)
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
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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.
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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
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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. (b) (7)(E)
(b) (7)(E)
(b) (7)(E)
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CBP’s FY 2009 budget of nearly(b) (4) 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(b) (4) for high priority investments in technology and tactical
infrastructure. In FY 2009, Congress also directed (b) (4) of the BSFIT appropriation to
DHS Office of Emergency Communications for the Border Interoperability Demonstration
Project.
During the past 2 years, over (b) (4) 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.
(b) (4)
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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) –
(b) (4)
o SBInet Technology – (b) (4)
o TI – (b) (4)
• Operations and Support (O&S), including O&M for SBInet and TI – (b) (4)
• Program Management (PM), including personnel and regulatory/environmental requirements
– (b) (4)
Program Management,
(b)
(4)
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.
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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.
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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.
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
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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.
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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.
SBI TI
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
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future budgets and program baselines. In the near term, the FY 2009 President’s budget requests
(b) (4) 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
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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 (b) (7)(E)
(b) (7)(E)
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(b) (7)(E)
(b) (7)(E)
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(b) (7)(E)
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. (b) (7)(E)
CBP
completed the review and approval of the TUS-1 design in June 2008; the AJO-1 design was
completed in November 2008.
(b) (5)
1
GAO Report, “DHS Needs to Address Significant Risks in Delivering Key Technology Investment” GAO-08-1086.
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(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:
• (b) (7)(E)
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.
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
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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
(b) (7)(E)
(b) (7)(E)
For additional detail on the NBP, please refer to Section 5 of this report.
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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.
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:
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
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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.
(b) (7)(E)
(b) (7)(E)
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:
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(b) (7)(E)
(b) (7)(E)
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• (b) (7)(E)
(b) (7)(E)
(b) (7)(E)
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o (b) (7)(E)
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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.
• (b) (7)(E)
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.
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(b) (7)(E)
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(b) (7)(E)
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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 (b) (7) illegal aliens and seizing (b) (7)(E) pounds of
(E)
marijuana during FY 2008.
(b) (7)(E)
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:
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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 (b) percent in FY 2007 from FY 2006 in part because of the
(7)
concurrent “standing up” of TI and
(E)
manpower during FY 2007. Total
Yuma apprehensions were down (b)
(7)
percent in FY 2008 when compared
(E)
to the same period in FY 2007
((b) (7) FY 2008 vs. (b) (7) FY 2007)
(E) (E)
due in part to continued
infrastructure and staffing
enhancements during the fiscal year.
• Vehicle Drive through traffic in
Border Zones (b) has decreased
significantly. (7)
(E)
o FY 2008 – (b) incursions
(7)
o FY 2007 – (b) incursions
(E)
(7)
(b)
o FY 2006 – incursions
(E)
(7)
• Of particular significance
(E)
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
b
o FY 2007 – (b) incursions
)
(7)
(b)
o FY 2006 – ( incursions
(E)
(7)
7
(E)
) Yuma Sector FY 2007 FY 2008
Effective Control ( miles (b) miles
(
Initial Control Capabilities (b)
b miles (7)( miles
E Established
Less Monitored )( miles
(7) (b miles
(E)
)
Remote / Low Activity (b( miles
(E) b)( miles
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()) (7)
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)E personnel who
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) )
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Another example of the value of persistent impedance exists in the El Paso Sector, Zones (b) (b)
(7) (7)
and (b) The enforcement zones have gained TI in the form of fencing and have since realized a
(7) (b) (E) (E)
reduction in apprehensions by percent from FY 2007 to FY 2008. Additionally, border
(E) (7)
incursions by vehicles have reduced by (b) percent from FY 2007 to FY 2008 in the same zones.
(E)
This is in part because of the concurrent(7)
deployment of TI and manpower during FY 2007.
(E)
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
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. (b) (5)
The following table reflects the progress made against the key milestones specified in the
FY 2008 SBInet Expenditure Plan.
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Milestone Status
FY 2008 Actual/
Expenditure
Milestone Projected Comments
Plan
P-28
P-28 Proof-of-Concept February 2008 February 15, Final Acceptance by the Government
Technology Demonstration 2008 occurred on February 15, 2008. The
Complete 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.
COP Release 0.5 Fall 2008 December COP Release 0.5 has been developed and is
2008 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 Winter 2010 Summer 2011 Revised as part of the overall re-plan.
Deployment Complete
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.
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Supply &
Supply
Provide steel and fence panels for (b) (4)
Chain 12/2008
construction projects
Manage-
ment
Hidalgo
Cooper- Complete, under construction, or (b)
12/31/2008
ative under contract (4)
Agreement
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SSCM Accomplishments
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:
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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:
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.
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.
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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
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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.
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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.
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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.
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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
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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
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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.
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.
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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.
(b) (4)
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,
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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.
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.
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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.
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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.
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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.
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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.
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
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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
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
(b
)
(7
)
(
E)
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.
(b) (7)(E)
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.
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000500 FOR OFFICIAL USE ONLY
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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.
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; • narcotic seizures;
• known entries; • border rescues / deaths; and
• agent observations; • assaults on agents, etc.
• apprehensions;
The data are examined in-depth. When reviewing apprehensions, considerations include:
• the country of citizenship of the illegal • the location of activity;
aliens;
• smuggling fees; and
• method of entry (foot or vehicle);
• violence associated with the apprehensions.
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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.
(b) (7)(E)
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000502 FOR OFFICIAL USE ONLY
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(
b
)
(
7
)
(Experience and Professional Expertise of Sector Chiefs. The compilation of all that is known
Eabout 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:
Effective Control
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.
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000503 FOR OFFICIAL USE ONLY
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Deployed Resources
Control of the Border FY FY FY FY (National)
(b) (7)(E)
SW Border Miles
Effective Control
Initial Control Capabilities
Established
Less Monitored
Remote/Low activity
Northern Border Miles
Effective Control
Initial Control Capabilities
Established
Less Monitored
Remote/Low activity
Coastal Miles
Effective Control
Initial Control Capabilities
Established
Less Monitored
Remote/Low activity
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. (b) (7)(E)
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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,
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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.
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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 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.
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(b) (4)
* Detailed funding descriptions for FY2009 are provided on the subsequent pages
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000508 FOR OFFICIAL USE ONLY
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FY 2009 SBI
Status of Funds
As of 11/18/08
($ in thousands)
Gross
Appropriation/Fiscal Year Financial Plan Obligations Expenditures
FY 2007 BSFIT
TI (b) (4)
FY 2008 BSFIT
TI (b) (4)
FY 2009 BSFIT
TI (b) (4)
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000509 FOR OFFICIAL USE ONLY
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Other appropriations
FY 2008 BSFIT TI
Reprogramming (b) (4)
FY 2007 BSFIT
(
b
(b) (4) )
Subtotal FY 2007 BSFIT (
4
FY 2008 BSFIT )
FY 2008 BSFIT TI
Reprogramming (b) (4)
FY 2009 BSFIT
(b) (4)
Program Mgmt &
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Environmental
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(b) (4) FY 2009 appropriation for BSFIT, the
SBI TI program will include (b) (4) for Development and Deployment and O&M. The
following section describes the major elements of the SBI TI expenditure plan for FY 2009.
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).
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000511 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
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.
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SBI BSFIT EXPENDITURE PLAN
Southwest Border
Close-out all FY 2008 Award Final
systematic/integrated approach to
Contracts administrative
border security
close-outs of all
FY 2008 projects
during 3rd Qtr
2009
Construct New Border Fence Continuing effort • PF225 Marfa segments (L1-A &
L1-B) constructed to extend
secure border
Manage TI Strategic Roll-out Continuing effort
Provide USACE Program
Oversight, Construction Mgmt, &
Design (FY 2010 TI Projects)
Conduct Real Estate Planning & Continuing effort • Critical land acquisition activities
Acquisition for FY 2010 TI completed to reduce FY 2010
cost risk exposure for the
strategic rollout of Southwest
Border TI
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SBI BSFIT EXPENDITURE PLAN
• Operational effectiveness
reviewed for impact to CBP
operational
requirements/priorities
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. (b) (4)
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SBI BSFIT EXPENDITURE PLAN
Phase II: From December 31, 2008, until the completion of FY 2008 projects (Rio Grande
Valley severe real estate delay risk): (b) (5)
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.
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SBI BSFIT EXPENDITURE PLAN
(b) 700
31 D E C 08
(4)
(b)
(4)
P ro je c te d C o s t E x p o s u re ($ M )
F e n c e C o m p le te (m ile s )
(b) (4)
(b)
(4) 500
(b)
(4)
400
300
1 0 /7 /0 8
1 1 /4 /0 8
1 2 /2 /0 8
1 /1 3 /0 9
1 /2 7 /0 9
2 /1 0 /0 9
2 /2 4 /0 9
3 /1 0 /0 9
3 /2 4 /0 9
4 /7 /0 9
4 /2 1 /0 9
5 /5 /0 9
5 /1 9 /0 9
6 /2 /0 9
6 /1 6 /0 9
6 /3 0 /0 9
7 /1 4 /0 9
1 0 /2 1 /0 8
1 1 /1 8 /0 8
1 2 /1 6 /0 8
1 2 /3 0 /0 8
Schedule (weeks)
Remaining Construction Contingency Delayed NTP Cost Exposure Severe RE Impact Cost Exposure
Severe RE Impact Fence Complete Adjusted Projected Fence Complete Actual Fence Complete
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SBI BSFIT EXPENDITURE PLAN
SBInet will follow a deliberate, event-based plan of action to accomplish the following major
objectives in FY 2009:
1. (b) (5)
The table below summarizes this plan of action, linking significant milestones (as appropriate) to
planned obligations and associated program outputs/outcomes.
Complete Block 1.0 System Design, Continuing effort (b) (4) • Demonstrate Block 1 System
Integration and Qualification performance at Playas in JAN
2009; initiate Southwest Border
construction
Develop and Qualify Block 1.x Complete C3I (Executing • For both NBP and for Southwest
Enhancements, leveraging NBP and COP Software (b) (4) of Border Deployments, complete:
Southwest Border Needs FQT in DEC FY 2007
2008; and, Funds for o RVSS, MSS Integrated with
NBP) the COP
NBP Task Order o CBP A&M Blue Force
Award MAR 2009 Tracker
Integrated with COP
o Demonstrate Mobile COP in
NBP
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2. Deploy Block I
Construct, Integrate, and Accept SQT JAN 2009 (b) (4) • 2 Stations deployed for 53 miles
TUS-1 and AJO-1 of Arizona border surveillance
Prepare Remaining Tucson West, Continuing effort (b) (4) • Long-lead purchases, complete
East Deployments designs for subsequent FY 2010
Station deployments
Procure Field Office, Property, Continuing effort (b) (4) • Direct support to deployment and
Permitting Services Government acceptance efforts
Increase Boeing ILS for P28, MSSs, TUS-1 (b) (4) • Maintain fielded SBInet
Playas, TUS-1, and AJO-1 Construction equipment at operational
Start MAR 2009 readiness levels; maintain CBP
operators’ and technicians’
proficiency
Subsidize CBP OIT ILS for “Legacy” Continuing effort (b) (4) • Maintain non-SBInet equipment
systems fielded at operational readiness levels
Subsidize CBP OIT ILS for P-25 Continuing effort (b) (4) • Maintain Land Mobile Radio
tactical comms on Southwest Border infrastructure
Invest in transition to CBP organic Continuing effort (b) (4) • Enable cost-effective alternative
ILS capabilities (organic) ILS workforce for
SBInet deployments
4. Invest in Communications
Subsidize OIT P-25 tactical comms Continuing effort (b) (4) • Expanded, secure radio
modernization on Southwest Border communications deployed
throughout Arizona
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Procure OneNet circuits for SBInet Continuing effort (b) (4) • Expanded, high throughput
Arizona connectivity for SBInet HQs over
DHS-approved backbone
Implement Phase II Microwave Space and Naval (Executing • Fulfill Government mandate to
Frequency Rebanding Warfare Systems (b) (4) of complete vacating auctioned
Center Task Order non-BSFIT spectrum for commercial entities
Award NOV 2008 Spectrum
Relocation
funds
5. Procure Technical Support to Continuing effort (b) (4) • Specialized systems engineering,
assist Program Office personnel 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.
(b) (7)(E)
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(
b
)
(
7
)
(
E
)
As indicated in the table on the previous page, SBInet is budgeting approximately (b) (4)
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 (b) (4) 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.
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(b) (4)
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• 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.
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The following section describes the funding requirements for each significant milestone in the
above table.
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.
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
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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 (b) (4)
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.
• (b) (7)(E)
• (b) (7)(E)
• 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 (b) (4)
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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.
FY 2009, (b) (4) 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.
(b)(4);
(b)(7) (b) (4)
(E)
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(b) (7)(E)
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.
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.
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•(b) (7)(E)
Army Testing
Planned Obligation (b) (4)
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, (b) (4) 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.
Operations and sustainment of Block 1 requires contractor and Government maintenance and
logistics support. Funds will support the following operation and support activities.
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the Freedom of Information Act (5 U.S.C. 552). It is to be controlled, stored, handled, transmitted, distributed, and disposed of in accordance
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do not have a valid “need-to-know” without prior approval of an authorized DHS official.
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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 (b) (4) to provide the following:
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.
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(b) (4) will be transferred to CBP’s OIT to sustain legacy hardware and software
deployed prior to SBInet.
• (b) (7)(E)
• Sensor O&M Forward Supply Center and Forward Supply Points – O&M in the field; parts,
consumables, and battery support for over (b) deployed sensors; and infrastructure
(7)
replacement to complete the remaining southern border (Southwest and Southern California).
(E)
• 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.
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Invest in Communications
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FY 2009, with the planned obligation of (b) (4) for modernization plus (b) (4) for
O&M in the previous section, the total P-25 investment is (b) (4) in accordance with
approval letter from Congress on the FY 2009 BSFIT reprogramming request.
In FY 2009, the planned obligation is (b) (4) 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.
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.
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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 (b) (4) 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.
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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.
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.
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
Program Budget
Tactical
SBInet Control and
Infrastructure
Division Finance
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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,
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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.
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.
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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
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review the organizational structure and staffing again this fiscal year to ensure the levels, skill
mix, and construct remain adequate and effective.
Administration
5 FTE 4 Cont
Tactical Infrastructure
SBInet Program
50 FTE 15 Cont 10 FTE
Program 6 Cont
Business Management
Operational Integration System Engineering
15 FTE 5 Cont 55 FTE
Operations 15 Cont 40 FTE 10 Cont
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,
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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.
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.
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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.
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
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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:
• (b) (7)(E)
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(b) (7)(E)
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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.
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
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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 (b) (4) 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 (b) (4) 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
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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.
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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.
CBP’s FY 2009 budget of nearly(b) (4) 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 (b) (4) for high priority investments in technology and TI. In FY 2009,
Congress also directed(b) (4) of the BSFIT appropriation for the Border Interoperability
Demonstration Project.
During the past 2 years, over (b) (4) 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.
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(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 – (b)
(4)
o SBInet Technology –(b) (4)
o TI – (b) (4)
• O&S, including O&M for SBInet and TI – (b) (4)
• PM, including personnel and regulatory/environmental requirements – (b) (4) (includes
(b) (4) for environmental functions, (b) (4) for PM functions, and (b) (4) in
funds for the Border Interoperability Demonstration Project, as directed by Congress).
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Program Management,
(b)
(4)
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 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.
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Systems Engineering
2 SBInet Technology
TUCSON
Project 28
TUS-1, AJO-1, and Nogales
Land Acquisition
Southwest Field Office
FOLLOW-ON SECTOR DESIGNS (DTO)
TEXAS Mobile System
Northern Border
LETC
Mobile Surveillance Systems
UGS
Common Operating Picture
Independent Verification and Validation
Tactical Communications (P.25 Upgrades &ONENET)
Funds reprogrammed to TI
TUCSON
YUMA
TUCSON & YUMA TI
Tactical Infrastructure - Fence (PF 225)
Tactical Infrastructure - Vehicle Barriers (VF 300)
TI FY09 - fence, lights, roads
San Diego
Supply & Supply Chain Management for VF300/PF225
Independent OT&E
6 Program Management
* Detailed funding descriptions for FY2009 are provided on the subsequent pages
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FY 2009 SBI
Status of Funds
As of 11/18/08
(b) (4)
Financial Gross
Appropriation/Fiscal Year Plan Obligations Expenditures
FY 2007 BSFIT
TI
SBInet
Recoveries
FY 2008 BSFIT
TI
SBInet
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FY 2009 BSFIT
TI
SBInet
Other appropriations
FY 2007 BSFIT
O&M
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FY 2008 BSFIT
(b) (4)
Program Mgmt & Environmental
O&M
FY 2009 BSFIT
O&M
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 (b) (4) FY 2009 appropriation for BSFIT, the
SBI TI program will include (b) (4) The following section describes the major elements
of the SBI TI expenditure plan for FY 2009.
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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).
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.
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
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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): (b) (5)
Phase II: From December 31, 2008, until the completion of FY 2008 projects (Rio Grande
Valley severe real estate delay risk): (b) (5)
SBI TI program will keep DHS and OMB updated on the real estate acquisition.
SBInet will follow a deliberate, event-based plan of action to accomplish the following major
objectives in FY 2009:
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The table below summarizes this plan of action, linking significant milestones (as appropriate) to
planned obligations and associated program outputs/outcomes.
Complete Block 1.0 System Design, Continuing effort (b) (4) • Demonstrate Block 1 System
Integration and Qualification performance at Playas in JAN 2009;
initiate Southwest Border
construction
Develop and Qualify Block 1.x Complete C3I COP (Executing • For both NBP and for Southwest
Enhancements, leveraging NBP and Software FQT in (b) (4) of FY Border Deployments, complete
Southwest Border Needs DEC 2008; and, 2007 Funds for
NBP) o RVSS, MSS Integrated with the
NBP Task Order COP
Award MAR 2009 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 SQT JAN 2009 (b) (4) • 2 Stations deployed for 53 miles of
and AJO-1 Arizona border surveillance
Prepare Remaining Tucson West, East Continuing effort (b) (4) • Long-lead purchases, complete
Deployments designs for subsequent FY 2010
Station deployments
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Procure Field Office, Property, Permitting Continuing effort (b) (4) • Direct support to deployment and
Services Government acceptance efforts
Increase Boeing ILS for P28, MSSs, TUS-1 (b) (4) • Maintain fielded SBInet equipment
Playas, TUS-1, and AJO-1 Construction Start at operational readiness levels;
MAR 2009 maintain CBP operators’ and
technicians’ proficiency
Subsidize CBP OIT ILS for “Legacy” Continuing effort (b) (4) • Maintain non-SBInet equipment at
systems fielded operational readiness levels
Subsidize CBP OIT ILS for P-25 tactical Continuing effort (b) (4) • Maintain Land Mobile Radio
comms on Southwest Border infrastructure
Invest in transition to CBP organic ILS Continuing effort (b) (4) • Enable cost-effective alternative
capabilities (organic) ILS workforce for SBInet
deployments
4. Invest in Communications
Subsidize OIT P-25 tactical comms Continuing effort (b) (4) • Expanded, secure radio
modernization on Southwest Border communications deployed
throughout Arizona
Procure OneNet circuits for SBInet Continuing effort (b) (4) • Expanded, high throughput
Arizona connectivity for SBInet HQs over
DHS-approved backbone
Implement Phase II Microwave Space and Naval (Executing (b) • Fulfill Government mandate to
Frequency Rebanding Warfare Systems (4)
of non- complete vacating auctioned
Center Task Order BSFIT spectrum for commercial entities
Award NOV 2008 Spectrum
Relocation
funds
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5. Procure Technical Support to assist Continuing effort (b) (4) • Specialized systems engineering,
Program Office personnel 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.
(b) (7)(E)
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. (b) (7)(E)
(b) (7)(E)
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As indicated in Table 2 above, SBInet is budgeting approximately (b) (4) 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 (b) (4) 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.
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(b) (4)
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WARNING: This document is FOR OFFICIAL USE ONLY (FOUO). It contains information that may be exempt from public release under
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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(b) (4)
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.
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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 (b) (4)
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 (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
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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(b) (4)
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, (b) (4) 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 (b) (4)
(b) (7)(E)
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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.
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(b) (4)
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(b) (7)(E)
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 (b) (7)(E) 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 (b) (7)(E) 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;
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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 (b) (7)(E) 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 (b) (4)
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, (b) (4) 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.
Operations and sustainment of Block 1 requires contractor and Government maintenance and
logistics support. Funds will support the following operation and support activities.
WARNING: This document is FOR OFFICIAL USE ONLY (FOUO). It contains information that may be exempt from public release under
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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 (b) (4) to provide the following:
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.
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• 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 (b) (7)(E) ; and infrastructure
replacement to complete the remaining southern border (Southwest and Southern California).
• 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.
NAVAIR AIT
Planned Obligation (b) (4)
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;
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• PM;
• Maintenance Management;
• Spare and Repair Parts Allocation;
• Support Equipment PM;
• Configuration Management;
• Document Management; and
• Training.
Invest in Communications
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FY 2009, with the planned obligation of (b) (4) for modernization plus (b) (4) for
O&M in the previous section, the total P-25 investment is (b) (4) in accordance with
approval letter from Congress on the FY 2009 BSFIT reprogramming request.
In FY 2009, the planned obligation is (b) (4) 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.
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
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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 (b) (4) 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.
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CERTIFICATIONS
Appendix E: A certification by the DHS Chief Human Capital Officer is in this Appendix
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A&M CBP Office of Air and Marine DOI U.S. Department of Interior
ADM Acquisition Decision DOJ Department of Justice
Memorandum DRR Deployment Readiness Review
ADTO Arizona Deployment Task Order DPR Deployment Planning Review
AIT Automated Identification EA Environmental Assessment
Technology EIS Environmental Impact
AJO-1 Ajo Station, one of the first two Statement
SBInet Block 1 operational ESC Executive Steering Committee
deployments to BP Stations ESP Environmental Stewardship Plan
AOR Area of Responsibility EVM Earned Value Management
APL Applied Physics Laboratory FAA Federal Aviation Administration
BMPs Best Management Practices FTE Full-Time Equivalent
BP Border Patrol FQT Functional Qualification Testing
BRP Biological Resources Plan FY Fiscal Year
BSFIT Border Security, Fencing, GAO Government Accountability
Infrastructure and Technology Office
C2 Command and Control GPS Global Positioning System
C2I Command, Control, and HQ Headquarters
Intelligence IAA Interagency Agreement
C3I Command, Control, IBWC International Boundary and
Communications, and Water Commission
Intelligence ICAD Intelligent Computer Assisted
C3ISR Command, Control, Detection
Communications, Intelligence, ICE U.S. Immigration and Customs
Surveillance, Reconnaissance Enforcement
CBP U.S. Customs and Border IIRIRA Illegal Immigration Reform and
Protection Immigrant Responsibility Act of
CBRA Capability Based Requirements 1996
Allocation ILS Integrated Logistics Support
CDR Critical Design Review IMS Integrated Master Schedule
CIO Chief Information Officer IOI Item of Interest
COP Common Operating Picture IPaC Information, Planning and
CPO Chief Procurement Officer Consultation
CY Calendar Year IRB Investment Review Board
DAU Defense Acquisition University IT&E Independent Test and Evaluation
DDR Deployment Design Review IWPF Integrated Weekly Performance
DHS Department of Homeland and Forecasting
Security
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000574 FOR OFFICIAL USE ONLY
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000575 FOR OFFICIAL USE ONLY
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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.
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.
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do not have a valid “need-to-know” without prior approval of an authorized DHS official.
000576 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
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.
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Open Recommendations
(b) (5)
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(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
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do not have a valid “need-to-know” without prior approval of an authorized DHS official.
000579 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
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.
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000580 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
(b) (6)
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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.
000581 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
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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.
000582 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
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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.
000583 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
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do not have a valid “need-to-know” without prior approval of an authorized DHS official.
000584 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
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do not have a valid “need-to-know” without prior approval of an authorized DHS official.
000585 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
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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.
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The supporting documents for certification listed in the above Table of Contents are
enclosed on a compact disk (CD).
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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.
000587 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
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.
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000588 FOR OFFICIAL USE ONLY
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(b) (6)
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000589 FOR OFFICIAL USE ONLY
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(b) (6)
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000590 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
(b) (6)
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do not have a valid “need-to-know” without prior approval of an authorized DHS official.
000591 FOR OFFICIAL USE ONLY
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(b) (6)
(b) (6)
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do not have a valid “need-to-know” without prior approval of an authorized DHS official.
000592 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
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.
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do not have a valid “need-to-know” without prior approval of an authorized DHS official.
000593 FOR OFFICIAL USE ONLY
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(b) (6)
(b) (6)
(b) (6)
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do not have a valid “need-to-know” without prior approval of an authorized DHS official.
000594 FOR OFFICIAL USE ONLY
SBI BSFIT EXPENDITURE PLAN
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).
Enforcement Environment
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• 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
(b) (7)(E)
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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.
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SBI BSFIT EXPENDITURE PLAN
--------------------
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.
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Rating Factors:
• 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
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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
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do not have a valid “need-to-know” without prior approval of an authorized DHS official.
000600 FOR OFFICIAL USE ONLY
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70
Weighted MOE Score
65 Alt 5
Inc Alt 1
60 rea Alt 2
sin
Alt 3 gC Alt 3
55 ost
Eff Alt 4
Alt 6 e ct Alt 5
50 ive
n ess Alt 1
Alt 6
Alt 4
45
40
0 50 100 150 200 250
Cost
• 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
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(b) (7)(E)
cket Fence
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(b) (7)(E)
Bollard Fence
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(b) (7)(E)
(b) (7)(E)
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(b) (7)(E)
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(b) (7)(E)
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(b) (7)(E)
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(b) (7)(E)
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(b) (7)(E)
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(b) (7)(E)
Normandy VF
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Information in the table below reflects the current obligations and estimates at completion for TI
task orders.
Task Order Number Task Order Title Performance Period Obligated Current Type of
Amount * Estimate at Contract
Completion
W912BV-07-D-2018 BIS Smugglers Gulch 03/11/08 - 05/01/09 (b) (4) Firm Fixed Price
W912BV-08-D-2018 Vegetation Removal and 120 days for initial Firm Fixed Price
TO DZ01 Bank Erosion Control Pilot removal (now to start
Project about 1 FEB 09) plus
one year maintenance
W912BV-07- (b)
El Centro 25 Days Mod (1) Time Extension 5-May-08
D-2045
(4)
W912BV-07- (b)
El Centro 30 Days Mod (2) Time Extension 28-May-08
D-2045
(4)
W912BV-07- (b)
El Centro 92 Days Mod (3) Time Extension 25-Jun-08
D-2045
(4)
Interim Variation
W912BV-07- (b)
El Centro Mod (4) in Estimated 13-Sep-08
D-2045
(4) Quantities
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(b) (4)
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Variance/Savings
* Obligations represent task order amounts from USACE Acquisitions, not actual obligations of CBP funds.
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Current
Estimate
Obligated Ceiling at Type of
Task Order Task Order Title Performance Period Amount Price Completion Contract
Cost, Fixed
HSBP1007J15464 Fence Lab (COMPLETED) 03/16/07 – 09/30/07 (b) (4) Fee
Cost, Award
HSBP1208J20016 STO (See note 4) 04/15/08 - 02/15/09 (b) (4) Fee
HSBP1208J21892 ADTO (See note 5) 06/25/08 - 03/31/09 (b) (4) Cost, Incentive
Fee
HSBP1208J20165 Integrated Logistics Support 08/16/08 - 09/17/09 (b) (4) Cost, Incentive
Fee
Variance/Savings (b)
(4)
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Appendix H – 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
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Section 1: Preface
The Committee includes(b) (4) 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.
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Congress directed BSFIT funding of(b) (4) for environmental assessments and mitigation
for FY 2009. This is (b) (4) above the CBP request for FY 2009. We recognize the
Congressional direction and have prepared a plan for the (b) (4) 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
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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
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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.
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.
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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 (b) (4) 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 (b) (4) for the El Paso Deming
I-1A EA to about (b) (4) for the Rio Grande Valley EIS/ESP.
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Bollard fence with temporary covers for migratory birds, Hidalgo, Texas
To ensure the BMPs were implemented during construction, CBP spent (b) (4) for
independent environmental monitors and environmental awareness training for construction
contractors. These monitors were contracted by USACE and reported directly to the USACE
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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.
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
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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
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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.
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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
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.
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
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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.
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
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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(b) (4) 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 (b) (4) 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
(b) (4) for mitigations for unavoidable impacts to these natural or cultural resources.
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
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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.
WARNING: This document is FOR OFFICIAL USE ONLY (FOUO). It contains information that may be exempt from public release under
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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.
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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.
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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 (b) (4) 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
3
Environmental 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.
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[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 (b) (4) 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(b) per bollard and we estimated the number of bollard
(4)
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 (b) (4) 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 (b) (4) 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.
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(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
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and planning actions for FY 2009 and out years; and implementing the highest priority
mitigation requirements for both SBInet and TI projects.
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