Border Patrol Strategic Plan 1994 and Beyond. National Strategy

Transcription

1 Brder Patrl Strategic Plan 1994 and Beynd Natinal Strategy Prepared by the U.S. Brder Patrl. July, 1994 ' ''

2 . Brder Patrl Strategic Plan 1994 and Beynd Preface Why the StraJegy? The immigratin' initiatives included a Brder Patrl enhancement as an integral part f the Administratin's cmmitment t refrm the immigratin system. The Cmmissiner, Immigratin and Naturalizatin Service, recgnized the need t address the immigratin challenges f asylum, technlgy, criminal aliens, naturalizatin, and cntrl f the brder in an efficient, cmprehensive, crdinated manner. In that cntext, the Brder Patrl has develped a systematic apprach t strengthen cntrl f the brder with gals and.measures f success based n the Administratin's and INS' immigratin initiatives. ~ The Brder Patrl adpted a strategic planning system that permits planners t priritize (_Cft.eir effrts ver tinfui? The strategic planning.ptcess challenges the rganizatin t fcus n the task at hand, t priritize its effrts by gegraphic area, t incrprate lng term gals, and, mst imprtantly, t define and meaiure success. In its strategic planning prcess, the Brder Patrl accepted that abslute sealing f the brder is unrealistic. Thrugh the strategic planning prcess, hwever, the planners fund legitimate reasn t believe that the brder can be brught under cntrl. Where des the Stralegy Take Us? A planned strategic apprach t enfrcing immigratin laws a'!ng ur natin's brders integrates the Brder Patrl's visin fr the future with a systematic means t achieve that visin. The prcess priritizes the use f the rganizatin's resurces as it travels alng a well defined path leading t effective brder cntrl. The strategic planning prcess sets the entire rganizatin in mtin cncentrating n the task at hand. The prcess establishes lng-term gals and instills a strnger sense f pride and prfessinalism. It sharpens the Brder Patrl fcus, imprves public image, emplyee mrale, and facilitates justificatin fr allcatin f resurces. Our strategic apprach strengthen~ cntrl f the brder, restricting the passage f illegal traffic and encuraging legal entry as the preferred methd t enter the United States. Visin 1 The planners cnsisted f planning experts frm the Department f Defense Center fr Lw Intensity Cnflict (CLIC) and Chief Patrl Agents frm all regins and selected eadquarters staff. 1

3 The keystne fr strategic planning is a visin ffering a clear sense f directin fr the future. The strategic planning prcess prvided Brder Patrl leadership the pprtunity t define their visin fr the future. Once established, planners cncentrated n what directin shuld be taken t arrive at that visin. Planners fund that the rganizatin's traditinal gal f cntrlling the brder between the prts f entry remained valid. The imprtl,nce f this traditinal task in the face f massive illegal entry f persns and cntraband int the United States has increas-ed. In prtecting ur brders against unlawful activities, we imprve natinal security and prtect the immigratin heritage that helped t frm the natin's institutins. The Brder Patrl's success in achieving cntrl f the brder will restre cnfidence in the integrity f the brder and the rganizatins ~_Iltrusted with its management. The Visin: The U.S. Brder Patrl will cntrl the brders f the United States between the prts f entry, restril!g ur Natin's cnfidence in the integrity f the brder. A well-managed brder will enhance natinal security ;nd safeguard ur immigratin heritage. Envirnment The brder envirnment is diverse. Muntains, deserts, lakes, rivers and valleys frm natural barriers t passage. Temperatures ranging frm sub-zer alng the nrthern brder t the searing heat f the suthern brder effect illegal entry traffic as well as enfrcement effrts. Illegal entrants crssing thrugh remte, uninhabited expanses f land and sea alng the brder can find themselves in mrtal danger. The demgraphic prfile f the brder area has a significant influence n the brder envirnment. Ppulatin centers straddling the internatinal bundary have develped all alng the suthwest land brder. These "twin cities," smetimes separated by little mre than a line in the dirt, are the areas f greatest risk fr illegal entry. These urban areas ffer accessibility t i:ads, rail lines, airprts and bus rutes t the interir f the cuntry. Enfrcement Challenge 2 In FY 93, the Brder Patrl apprehended 1,263,490 aliens natinwide f which 97 percent were Mexican natinals, mstly frm the interir f Mexic. Typically, an alien arrested by the Brder Patrl is under the age f 25. Twenty percent are wmen and children wh are attempting t reach thdr husbands and\r fathers wh are already in the United States. Mst f the aliens encuntered are pr, are lking fr wrk and have incurred transprt and smugglers fees. Thse wh are nt Mexicans are frm Central America and numerus ther cuntries frm arund the wrld. In FY -93, 40,754 Other Than Mexicans (OTM'S) aliens were 2 Infrmatin prvided by the INS Intelligence Prgram cntributed t this sectin. 2

4 smugglers fees. Thse wh are nt Mexicans are frm Central America and numerus ther cuntries frm arund the wrld. In FY-93, 40,754 Other Than Mexicans (OTM'S) aliens were apprehended attempting t enter the United States. A majrity f apprehended aliens are destined fr the States f Califrnia, New Yrk, Flrida, Texas, and Illinis. Mexic's gvernment institutins and ecnmy are under significant stress frm its lwer sci-ecnmic sfrata. Sme f the majr causes fr increasing instances f scial unrest and illegal immigratin include: Rapid ppulatin grw_\ll in Mexic's lwer sci-ecnmic grups Great disparity in the standard f living and chances fr upward mbility in Mexic versus the United States Significant ppulatin f unemplyed and underemplyed in Mexic The passage f The Nrth American Free Trade Agreement (NAFTA) shuld reduce illegal immigratin as the Mexican ecnmy imprves. The NAFT A agreement lifts cmmercial barriers amng its members: the United States, Mexic and Canada. In the spirit f NAFTA, the United States and Mexic are cperating in effrts t reslve the issues f illegal migratin f Mexican wrkers int the United States, brder envirnmental issues, narctics and dangerus drug traffic int the United States. The Gvernments f Mexic and the United States have been intensifying cperative effrts t jintly reslve enfrcement cncerns alng bth sides f the brder. In additin t the passage f NAFT A, ther initiatives include jintly naming areas n bth sides t reduce respnse times fr law enfrcement fficials and fcusing n reductin f brder vilence. INS will cntinue t seek strnger cperative ties between the tw gvernments t facilitate legal im"migratin while strengthening cntrl f the U.S. brder. INS' immigratin enfrcement rle is mre cmplex and challenging than at any time in its histry. INS fficers at the brder, at the prts-f-entry, and in the interir are uncvering increasingly sphisticated methds used by aliens and smugglers f aliens t enter the United States and t avid detectin and apprehensin.. Dcument fraud is widespread. One f the mst recent cncerns is a new trend in which a rising number f Mexican citizens attempt t enter illegally and secure wrk authrizatin in the United States by requesting asylum. Als, a pattern f Mexicans psing as Guatemalans claiming plitical asylum has develped. This methd f btaining Guatemalan birth certificates is ccurring alng the Suthern Brder and Gulf cast states. Illegal entrants frm Mexic claim Guatemalan citizenship in the belief that the asylum claims f Guatemalans are prcessed faster and are mre like! y t be apprved than claims frm citizens f Mexic. Anther area f cncern invlves the Natinals frm the Peples Republic f China (PRC) wh have becme the third largest grup f Other Than Mexicans (OTMsfapprehended 3

5 alng the Suthern Brder. Once PRC aliens arrive in Latin America, ften by bat, smugglers easily lead them by land thrugh Mexic int the United States. Similarly, citizens f Cuba are entering Mexic t take advantage f Mexic's diplmatic mechanisms t gain entry int the United States. Many Cubans are als being s~uggled t Mna Island, an uninhabited island between the Dminican Republic and Puert Ric. The Cuban immigrants are drpped ff by the smugglers wh knw that the Brder Patrl will rescue them. Once prcessed they are released t cntinue their exdus frm Cuba t the Miami, Flrida area. Many illegal Haitians are ding the same as the Cubans and requesting plitical asylum. The frces that cause legal and illegal migratin are pwerful. Withut psitive, lng term changes in the rt causes that prmpt illegal migratin such as imprvements in the Mexican ecnmy, NAFTA, effective emplyer sanctins restrictins, r clsing the lphles that allw illegal aliens t gain equities in the United States, the "push" and "pull" factrs will remain strng. ~ 'CQ_se attempting t illegally enter the United Stat~ in large numbers d s in part ~ ecause f the weak cntrls we have exercised.ver the suthwest land brder in the recent ast. Strengthening brder cntrl is a critical cmpnent f imprved border management and will prvide the U.S. Gvernment the pprtunity t deal with pwerful glbal immigratin pressures in a reasned, systematic manner. INS can meet the challenge f cntrlling illegal immigratin t the United States thrugh a crdinated enfrcement effrt. Cntrlling the brder must be supprted with such effrts as effective emplyer sanctins, back-up enfrcement in the interir f the United States, reducing dcument fraud, prviding detentin and deprtatin fr eligible illegal aliens and expeditius remval f criminal aliens. Assumptins In develping the 1994 Brder Patrl Strategic Plan, Brder Patrl planners relied n a number f key assumptins: Alien apprehensins will decrease as Brder Patrl mcreases cntrl f the brder. Influx will adjust t U.S. Brder Patrl changing tactics. Vilence will increase as effects f strategy are felt. Rapid increase in persnnel/equipment (resurces) will reduce time reqnired t achieve cntrl f the brder 4

6 0 0 0 V~id measures f effectiveness f brder cntrl mechanisms/systems are needed t adjust enfrcement effrts and reach the strategy bjectives. A strng interir enfrcement psture wrks well fr brder cntrl. The INS must maintain a multi-prgram perspective that includes but is nt limited t strengthening cntrl f the suthwest brder. Imprvements in technlgy will make brder cntrl strategies mre effective and less resurce inte.i}_sive. Cntrl f the brder will reduce INS cst and prduce mre efficiency. [j ~uccess _f the strategy depends n cntinued Cngressinal supprt thrughut Its duration. Missin As part f the strategy building prcess, Brder Patrl leadership reviewed their traditinal missin statement in the cntext f the Administratin's immigratin initiatives, the INS gals, and the "visin" fr the future. The duties perfrmed by Brder Patrl agents have expanded and evlved ver the past 70 years. It became clear, hwever, that the basic cncepts f deterring, detecting and app{ehending illegal entrants int the United States specified in the immigratin statutes cntinued t be the basis f the Brder Patrl's missin. Many f the tasks are spe ified by statutes. Many mre are implied tasks inherent in the accmplishment f the missin. Implied tasks include, but are nt limited t: prcessing and remving illegal entrants, pursuing emplyer sanctins cases, seizing vehicles, facilitating prsecutins, gathering intelligence, maintaining public image, cnducting liaisn, being prepared fr emergency respnses, btaining and prviding training, and managing resurces. With the abve in mind, the current missin f the Brder Patrl is best described as: The missin f the United States Brder Patrl is t secure and prtect the external bundaries f the United States, preventing illegal entry and detecting, interdicting and apprehending undcumented entrants, smugglers, cntraband, and vilatrs f ther laws. The Brder Patrl has significant strengths inherent in its rganizatinal structure. Brder Patrl planners have capitalized n thse strengths in pltting the curse f the strategy. The Brder Patrl has maintained a cntinuus unifrmed presence n the brder since Even tday, the Brder Patrl is the nly unifrmed Federal bdy with_ a significant patrl functin between the prts-f-entry. N ther institutin has amassed a mre 5

7 cmprehensive knwledge f the brder envirnment. Strategic planners relied n this knwledge in generating the assumptins and predictins incrprated int the strategy. Virtually all State, lcal and Federal agencies with a missin that interacts with the immediate brder envirnment have at least a lcal liaisn mechanism with the Brc!er Patrl. The curses f actin develped at the natinal and Sectr levels rely n the Brder Patrl's liaisn netwrk t garner the supprt the rganizatin needs t cmmunicate and crdinate strategic actins. Individually and cllectivelyj_ Brder Patrl agents identify very strngly with their rganizatin. The Brder Patrl's chain f cmmand is ne f the strngest and mst direct in unifrmed Federal law enfrcement. T~e rganizatin views itself internally as the best in the wrld at their business. The Brder Patrl emplys specialized recruitment and stringent training standards, including Spanish language cmpetency. All agents are riginally assigned t the suthern brder, and, as a cnsequence, build strng ties based n cmmnality f experience and training. The Brder Patrl's strategy relies heavily n the rganizatin's "esprit-de-cws" t implement the curse f actins described in the strategy, many f which are significant and challenging changes in the way Sectr peratins have been cnducted. The Brder Patrl is aware that there are significant challenges t be met in the strategic curse they have set. The vlume f attempted illegal entries is very large by any estimate. Illegal entry trends r!!<lct quickly t brder cntrl initiatives. The public and private sectr at the lcal level expect the Brder Patrl t take immediate and decisive actin t cunter il}!"eases in illegal entry traffic. Lcal expectatins can run cntrary t the milestnes set ut in the natinal strategy. The Brder Patrl has limitatins n its ability t quickly shift resurces. INS' detentin and remval capabilities are already heavily cmmitted t the criminal <!lien and Chinese smuggling initiatives. Fluctuating single-year funding restricts the ability f planners t design effective multi-year strategies. Cncept The Brder Patrl will imprve cntrl f the brder by implementing a strategy f "preventin thrugh deterrence." The Brder Patrl will achieve the gals f its strategy by bringing a decisive number f enfrcement resurces t bear in each majr entry crridr. The Brder Patrl will increase the number f agents n the line and make effective use f technlgy, raising the risk f apprehensin high enugh t be an effective deterrent. Because the deterrent effect f apprehensins des nt becme effective in stpping the flw until a prehensins apprach 100 percent f thse attempting entry, the strategic bjective is t maximize e apprehensin rate. 1-lthugh a 100 percent apprehensin rate is an unrealistic ~we believe we can ach1eve a rate f apprehensins sufficiently high the risk f apprehensin t the pint that many will cnsider it futile t cntinue t attempt jllegai entry. 6

8 El Pas's enfrcement strategy has been successful in El Pas Statin's dwntwn area. The natinal strategy builds n El Pas's success thrugh an infusin f permanent resurces designed t stabilize their enfrcement initiative and extend it thrughut the Sectr. Likewise, in the San Dieg Sectr, an infusin f resurces is underway, and preliminary indicatins are that the Sectr has begun t achieve a similar level f cntrl. In FY 1994 and 1995, the Patrl will add up t 1,010 additinal agents n the line alng the Suthwest brder. This will be accmplished thrugh a cmbinatin f new agent hires, and redirecting agents freed up as a result f increased autmatin and supprt. The predictin is that with traditinal entry and smuggling rutes disrupted, illegal traffic will be deterred, r frced ver mre hstile terrain, l~s suited fr crssing and mre suited fr enfrcement. Mbility f enfrcement resurces will be essential in tracking illegal traffic t prevent lcal "ht spts" frm becming lng-term prblem areas. In rder t identify the precise quantity and mix f agents, supprt persnnel and technlgy needed t "cntrl" the brder, ur current measures f effectiveness must be made mre reliable. The flw f illegal traffic must be measured and relayed t the implementrs f the strategy. Currently, we knw hw many arrests we are making, but we d nt have a reliable as~essment f hw many are eluding us and hw many attempts they must make befre succ:eedrng in entenng Despite this weakness, based n ur years f experience and knwledge f brder dynamics, we have develped a strategy we believe will wrk t greatly reduce the flw f illegal traffic. Previusly, resurce allcatin strategies have "sprinkled" resurces t all Suthwest brder lcatins. Hwever, the magnitude f the increase in any given sectr has nt prvided the decisive cncentratin f resurces necessary t increase the "cst" t illegal entrants t the pint f deterring repeated attempts. As we reduce the rate f recidivism in the j) :)/; ipegai entering ppulatin, the number f aliens attempting illegal entry will decreast;. Marginal increases in resurces will nt necessarily ach1eve a prprtinate reductin in illegally entering traffic. These facts cmpelled Brder Patrl planners t implement a new strategic apprach t allcating brder enfrcement resurces. We will establish baseline staffing levels fr each Sectr and ensure n Sectr falls belw critical perating levels as new resurces are directed t each phase. Baseline staffing levels will be maintained by assigning attritin resurces r by using a prtin f new resurces, if available, in rder t maintain the baseline level fr all sectrs. Sectrs need t be prtected frm becming new "ht spts" that are ut f cntrl. We must maintain -minimal staffing levels as established and mnitr them thrughut the strategy implementatin. Curses f Actin T create a deterrent and reduce the illegal entry recidivism rate, we have develped a curse f actin cncentrating a decisive level f resurces, in phases (see attached ch<ljt, Brder Patrl Strategic Plan 1994 and Beynd), t the areas f greatest illegal activity. The main effrt 7 '.;

9 f all phases requires supprt by all sectrs, cncentratin f resurces n the line, maximum utilizatin f lighting, fencing, and ther barriers, redirectin f agents nt perfrming enfrcement duties back t line activities, and realignment f resurces as entries shift. Strategic planners identified and mapped ut the lcatins f heaviest illegal immigratin activity. The are<!s f heaviest illegal entry were identified as "avenues f apprach" (AA) {see attached map, TI!egal Entry Crridrs}. Planners listed the AA in rder beginning with the avenue f apprach with the highest illegal entry flw (AAl) thrugh the area with the least traffic (AA12). AA 1 - Suthern Califrnia AA2 - West Texas and New Mexic AA3 - Suth and Suth Central Texas AA4- Arizna AA5 - Suth Flrida AA6- Puert Ric AA 7 - Nrtheast United States AAS - Nrthwest United States AA9 - Great Lakes We speculated that as cntrl is gained in the main AAs, there are three areas that are currently nt cnsidered heavy avenues f apprach, that will likely becme the alternate rutes. These three areas are: AAlO- Gulf Cast AAll -Nrth Central U.S. AA12 - Suthwest Cast Brder Patrl planners recgnized that nly a decisive level f resurces wuld increase the "cst" t illegal entrants sufficiently t deter entry. Marginal increases in resurces wuld nt result in a prprtinate deterrent effect. A phased, multi-year apprach that cncentrated resurces in the areas f mst active illegal entry was develped incrprating areas f "Main Effrt" and f "Supprting Effrt." Areas f "Main Effrt" and f" Supprting Effrt" were identified in each f the planned phases. In the gegraphic areas f "Main Effrt," sufficient resurces are brught t bear t ensure that near 100% f illegal entries are apprehended. "Supprting Effrt" areas supprt the areas f main effrt either directly thrugh lan f resurces r indirectly by ther actins that supprt and sustain the main effrt, i.e. crdinating enfrcement initiatives with main effrt initiatives, gathering intelligence t validate the relative success f the main effrt, identifying shifts in illegal entry traffic, etc. 8

10 Phase I (FY -94 and 95 Immigratin Initiative) CONTROL SAN DIEGO AND EL PASO CORRIDORS (AAl & AA2) The majrity f illegal entries have histrically ccurred in San Dieg and El Pas. Achieving cntrl f the avenues f apprach in San Dieg and El Pas is the mst" effective first step in achieving cntrl f the brder. Cncentrating a decisive level f resurces in these areas is mre effective than making nly incremental changes in brder enfrcement acrss all sectrs. San Dieg (AAI) and El Pas (AA2) are the areas f main effrt in Phase I. As the strategy in San Dieg and El Pas (main effrt areas) becmes effective, much f the flw f illegal traffic will shift t ther avenues f apprach that transfrm frm supprting areas t main effrt areas. Sme part f the flw will turn t ther entry tactics, including legal entry, use f fraudulent dcuments, and requests fr asylum and immigratin hearings. Sme part f the flw will be deterred frm attempting illegal entry. The current enfrcement psture in AA 1 and AA2 is t first cntrl the entry f illegal entrants int and thrugh the large urban areas. When urban areas are uncntrlled, they prvide illegal entrants an pprtunity t assimilate with the ppulatin, making it difficult fr the Brder Patrl t quickly identify and arrest individual illegal entrants. When the Brder Patrl cntrls the urban areas, the illegal traffic is frced t use the rural rads which ffer less annymity and accessibility t public transprtatin. Supprt effrts required include: gather intelligence t validate success f cntrl in AA I and AA2, identify areas affected by shift in traffic patterns, redirect resurces, and increase allcatin f resurces. Befre mving t Phase II, we will use certain indicatrs t determine whether Phase I has been successful. These indicatrs.f success - which may als be measures f effectiveness - include: initial increase f arrests and entry attempts eventual reductin f arrests and recidivism in main effrt change in traditinal traffic pattern reductin f serius accidents invlving aliens n highways, trains, drwning, dehydratin (main effrt) increased instances f mre sphisticated methds f smuggling at checkpints increase in prts f entry activity including mre legal admissins and use f fraudulent dcuments pssible increase in cmplaints (Mexic, interest grups, etc.) 9

11 shift in flw t ther areas in suthwest brder fee increase by smugglers reductin in criminal aliens entering the cuntry and criminal activity alng the brders fewer illegal immigrants in the interir f the U.S. reductin in use f scial services and benefits in the U.S. Likewise, there will be bservable changed cnditins in the main effrt areas that will lead us int the Phase II, such as: increased efficiency in main effrts allws fr maintenance f cntrl status fr AA 1 + AA2 clear brder stabilized and secured (cntrl) Phase IT (near-term) CONTROL SOUTH TEXAS AND TUCSON CORRIDORS (AA3 & AA4) We will clsely mnitr the prgress in cntrlling the brder in AA! and AA2. These tw lcatins will be tp pririty befre fcusing n anther crridr. It is believed that as cntrl is gained in AA! and AA2, the illegal flw will shift t ther lcatins. As a measure f cntrl is achieved in these crridrs, sme illegal traffic is expected t shift t AA4 and AA3. In these areas als, the initial fcus will be n attaining cntrl f the urban areas first and then the rural areas. AA3 and AA4 will initiate their curse f actin with existing resurces. Supprt effrts required include: maintain cntrl in crridrs AA 1 and AA2 gather intelligence t validate success f cntrl in AA 1 and AA2 identify areas affected by shift in traffic patterns redirect resurces Befre mving t Phase III, there will be certain indicatrs that Phase II has been successful. These indicatrs f success - which may als be measures f effectiveness - include: reductin f arrests in main effrt change in traditinal traffic pattern reductin f serius accidents invlving aliens n trains, drwning, dehydratin (main effrt) increased instances f mre sphisticated methds f smuggling at checkpints increase in cmplaints (Mexic, interest grups, etc.) - 10

12 increase in prts f entry activity including mre legal admissins and use f fraudulent dcuments shift in flw t ther areas in Suthwest brder fee increase by smugglers reductin in criminal aliens fewer illegal immigrants in the interir f the U.S. reductin in use f scial services and benefits in the U.S. The bservable changed cnditins in the main effrt areas that will lead us int the Phase III, include: increased efficiency in main effrts allws fr maintenance f cntrl status fr AA3 + AA4 clear brder stabilized and secured (cntrl) Phase ill (mid-term) CONTROL REMAINDER OF SOUTHWEST BORDER The Brder Patrl will mve int Phase III n! y after valid indicatrs f success and changed cnditins reflect brder cntrl has been attained in the Phase II main effrt. Phase III is designed t allw the Patrl t react t the expected shift and expected increase in all ther areas f the Suthwest. In fact, an expected utcme is a shift f thse attempting illegal entries t water bundaries (AA!O & AA!l). We anticipate that all alng the brder there will be shifts and attempted entries in previus main effrt areas, therefre, the entire Suthwest brder must be cntrlled and that cntrl must be maintained. The Phase III main effrt will be t gain cntrl f the remainder f Suthwest brder by applying adequate re5urces. Supprting effrts will include maintaining cntrl while mnitring and sustaining baseline staffing levels fr remainder f Brder PatrL The indicatrs f success fr Phase III include: fewer entry attempts n Suthwest brder cntrl increased seacast entries plitical pressure t lsen brder fewer returnees ptential fr mre prtests against immigratin plicy increased alien smngghngjees mre dcument fraud inquiries frm U.S. emplyers f undcumented wrkers further reductin fscial services further reductin in criminal aliens 11

13 m,_qre vilence at attempted entries imprved public perceptin fewer aliens staging in Mexic The changed cnditins will be: cntrl f Suthwest brder air/ sea entry attempts increase increase in entries utside f Suthwest brder change in smugglers tactics increased prts f entry traffic MeXIc will enhance brder cntrl f their Suthern brder (OTM's wh until nw had entered their cuntry, traversed, and then crssed the U.S. brder will be frced t stay in Mexic) pressure fr anther "Bracer prgram" (temprary wrker prgram) ecnmic changes in U.S. Phase IV (mid t lng-term) CONTROL ALL THE UNITED STATES BORDERS/ ADJUST TO FLOW (All AAs) The Phase IV main effrt will be t gain cntrl f all ther areas utside the Suthwest brder, cntinually mnitr the flw f illegal entrants, and adjust by shifting resurces t new areas f activity. As this happens, we anticipate increased entries alng the Nrthern brder and in water avenues alng the Gulf Cast and Pacific Casts (AA5, AA6, AAlO, & AA12). As. ~ the mev1table increase f Illegal activity alng the Nrthern brder cmes t fruitin, resurce enhancements (i.e. persnnel, technlgy, and equipment) will be key t maintaining cntrl. Supprting effrts will include maintaining cntrl achieved in Phases,I, II and III. We will ensure adequate resurces remain in thse areas where we have gained cntrl. The indicatrs f success and changed cnditins will mirrr thse f the previus phases. As the brders becme mre and mre cntrlled, the tendency may be t revert back t traditinal ways f perating which may result in lsening cntrl. Sme changed cnditins such as reductin in the cheap labr frce rna create unrest and resistance. The mst desperate f thse aliens see ng entry will attempt illegal entry. Special Interest Grups may tighten pressure n Cngress t remve entry cntrls nce brder cntrl is achieved and mamtained

14 Crdinatin The Brder Patw!'s strategic apprach includes all sectrs, cncentrates n the brder, is easily understd and implemented, and takes advantage f current resurce initiatives. As cntrpl is gained and maintained in the immediate brder areas, the Service will adjust resurces at land brder prts f entry and in the interir enfrcement lcatins. The Brder Patrl will emphasize gaining cntrl f the transit pints, imprving crdinatin fr investigatins in the brder area, increasing sanctins, increasing pressure n fraudulent dcument vendrs, increasing jail checks, increasing D&D supprt and cntrlling emplyment centers. These activities are t be crdinated with ther Service prgrams. In rder t achieve the level f brder cntrl that we determine t be acceptable t the INS and the American public, we must maintain ur visin, fcus n ur strengths, be aware f ur vulnerabilities, and ensure that supprt and crdinatin with ther INS prgrams and utside agencies are maintained. Sme f these crdinated actins include: barriers including fencing, lighting, bllards (wrk with Department f Defense and INS's Infrmatin Resurce Management and Internatinal Affairs) increase visibility t prmte public awareness imprve technlgy t maximize persnnel and enhance mbility flexibility increase jint peratins (and share equipment) with Custms, Drug Enfrcement Administratin, Lcal Law Enfrcement Agencies back-up brder effrt and imprve cntrl by maintaining and establishing checkpints use shrt term details t test cntrl mnitr activity in Mexic - intelligence develp statistical! y valid measures f effectiveness de-emphasize nn-brder Patrl functins examine interir repatriatin cnsistent pressure n INS t maintain eff011 as Patrl demnstrates success thrugh valid measures Cnclusin The Brder Patrl's strategic plan is multi-phased and requires multi-year implementatin. The plan directs intense enfrcement effrts in the areas f greatest illegal activity t gain maximum cntrl f the brder. As cntrl is gained in these main effrt areas, it is anticipated the illegal traffic will shift t ther entry crridrs. ~ Traditinal measures f effectiveness in which cntrl f the brder was principally (measured by number f apprehensins will be examined. Innvative methds are being researched t measure the flw f entry and ways t mnitr thse we miss,.as well as recidivism rates. A cmmn cncern amng all law enfrcement is trying t measure deterrence 13

15 as an indicatr f success. Sme measurement methdlgies may prve less valid than thers. We are cnfident that with experimentatin we will be able t identify valid measures. Valid statistical measurements in cmbinatin with subjective indicatrs will allw us t determine ur success in clsing the revlving dr f illegal immigratin n the brder while keeping the dr_; pen fr legal immigratin. Fr example, in San Dieg, an autmated fingerprinting identificatin system (AFIS) is peratinal. We will nw be able t track an apprehended illegal alien and establish an histrical recrd f attempted entries. In ther sectrs different systems are being develped and used t gauge thse wh are getting away allwing us t measure the flw and ur effectiyeness in cntrlling the brder. Incrprating external measurements by ther agencies and immigratin specialists will validate ur success. INS must be cmmitted t dedicating adequate resurces t fully equip, train, and supprt Brder Patrl agent persnnel as well as mnitr resurce requirements t adjust t shifts in illegal traffic. This strategy can be accmplished thrugh a cmbinatin f staffing efficiencies and targeting new resurces fr agents, supprt staff, and technlgy. The Brder Patrl must cntinually assess the apprpriate mix f technlgy and persnnel. Als, we must clsely mnitr established measures f effectiveness. T date, nine Suthwest Brder Patrl Sectrs have develped, with the assistance f cnsultants with planning expertise, their individual strategic plans cnsistent with the natinal plan. All sectr strategies fcus first n -the urban areas, cncentrate resurces n the line and checkpints and maintain a paseline staffing level. The sectr strategies address the unique enfrcement envirnment and challenges within their areas f respnsibility. Each sectr plan is flexible t allw fr adjustments and cntinual assessment f the resurce needs and the impact f new technlgy. As the sectrs refine and implement valid measures f effectiveness, utilize new and/r expanded technlgy, and bserve changing r shifting illegal migratin patterns, resurce adjustments will be necessary. This measured, flexible lng-term, phased methd f brder cntrl will prve t be efficient, cst effective, and mre resurce prductive than previus appraches t brder cntrl. The Brder Patrl strategy prvides a clear sense f directin and facilitates pprtunities fr emplyees t succeed as they achieve prgram gals and gain a brader perspective f the INS challenges. It prmtes a prfessinal wrk envirnment that encmpasses a sense f pride and accmplishment, the highest ethical standards, and uphlds public trust and internatinal respect fr the United States immigratin laws. 14

16 BORDER PATROL STRATEGIC PLAN 1994 AND BEYOND PHASE I JUNE PHASE II PHASE Ill PHASE IV SECTOR II 1994 ALL SECTORS '.. Deve_I_O:P' Determine Measure' s<::_:,,.= _,' Reassess Strategy Strategy f Effectiveness > (Reviewed by Na((S(l~)instituie ~I Justice) Reassess Strategy Reassess Strategy Maintain Baseline Leve Is II Maintain Baseline Levels SAN DIEGO ELPASO TUCSON DEL RIO LAREDO MCALLEN Flw- Cntrl EL CEN YUMA MARFA Shift in Flw - Increase in Apprehensins REST OF BORDER :~~~~~~m~m~~~~~~~ ~~0~~~~ ~~;~~~~TOhTt ' Shift in Frw

17 HVM,,.....,/ ~... ~I /~.-../ ILLEGAL ENTRY CORRIDORS AA11... AA9 0 AA7 '... AA12 sc.lly- 0 Sk--wging Neas In Me:6c (!] Stagng NM In U.S.,. Q)sta::les ::::::::> AvflrQs l Apprach (AA) '!:!:> Anlidpald Ave<>s l Aj>prach.A. Sc!r Haclq.Jal1rS ~ li1 AA4'/;:-::I 1 0 ~... > >. AA2 './/..,: :x:::,. \S)-~.... ~ -...'1'.n ' '.. ~-"'. "''1 ', ' "IX>.. ' 1,:1); ' :'1{:.. ' '., ;\'<"'. '-~~~,.t,;;... "U '., t:-l,.. 9<1f,',... ~.. "/.1::.... -:'fq..u< / '....,4,' ;" /'.,.,. ' (AA). < >~<-.~>:/. >> /.1' ---- ~ T DOMINICAN AA5 ~ Purn Rk (l-wt1 AND TI-lE f's'u<uc) AA6

18 .( / APPROVED: Dris Meissner Cmmissiner.,.._ DATE: AUG

19 ENFORCE (PHASE I) San Dieg Brder Patrl Pilt Status Reprt December 9, 1994 The Enfrce (Phase I) System Pilt at San Dieg was implemented at the Brder Patrl Sectr (4 sites) n June 1. As f December 9, 1994, 645 agents in the San Dieg Sectr have prcessed: 151,961 2,385 1,226 Vluntary Deprtatins t Mexic Administrative Imm. Vilatin Cases (Other Than Mexicans) Smuggling Cases (Aliens and/r Cntraband) Included in the 1,226 Smuggling cases were the fllwing types f individuals: 190 Deprtable Aliens 682 Nn-Deprtable Aliens (Legal Permanent Residents) 11 Parlees 160 U. S. Citizens