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OIG-11-116 ICE's Release of Immigration Detainees

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OIG-11-116 ICE's Release of Immigration Detainees Department of Homeland Security 2IÀFHRI,QVSHFWRU*HQHUDO ICE's Release of Immigration Detainees OIG-14-116 (Revised) August 2014 ,,.o~eA~1FN r OFFICE OF INSPECTOR GENERAL ~~~9ND SE~J~ Department of Homeland Security Washington, DC 20528 / www.oig.dhs.gov MEMORANDUM FOR: The Honorable Thomas S. Winkowski Principal Deputy Assistant Secretary U.S. Immigration and Customs Enforcement FROM: John Roth (~'UU\^'~~~~. Inspector General SUBJECT: ICE's Release of Immigration Detainees To provide further clarity to our report, ICE's Release of Immigration Detainees(OIG -14- 116), we made technical modifications as detailed on the attached spreadsheet. We will post the revised report on our public website, including your formal written response as an appendix to the report. Call me with any questions, or your staff may contact Deborah Outten-Mills, Acting Assistant Inspector General for Inspections, at (202) 254-4015. Attachment OFFICE OF INSPECTOR GENERAL Department of Homeland Security Technical Modifications To Final Report: ICE’s Release of Immigration Detainees OIG Project No. 13‐147‐ISP‐ICE OIG Actions Taken August 5, 2014 Technical Modifications Item # Page Paragraph Line Draft Language OIG Final Report Language 1 1 B1 L1-5 Congress requires ICE to The Consolidated and Further maintain an average daily Continuing Appropriations Act population of 34,000 detainees (P.L. 113‐6) requires ICE to and expects ICE to fund maintain an average daily detention at this level. population of 34,000 detainees However, congressional and expects ICE to fund appropriations only cover detention at this level. approximately 31,300 of those Congressional appropriations beds. As a result, ICE must cover approximately 31,300 of secure the remaining funding those beds. ICE secures the from fluctuating revenue remaining funding from sources or by transferring fluctuating revenue sources or funding from other programs. by transferring funding from This funding structure leaves other programs. This funding ICE with inadequate resources structure leaves ICE with when there is an increase in inadequate resources when detainees. there is an increase in detainees. 2 1 B5 L2-3 Only after House Only after House appropriations staff told the ICE appropriations staff informed Chief Financial Officer on ICE’s Chief Financial Officer on January 31, 2013, to keep the January 31, 2013, that average daily population at maintaining 34,000 average 34,000 did ICE executive daily population is a statutory leadership realize ICE would requirement did ICE executive need to obtain additional leadership realize ICE would funding to cover the detention need to obtain additional budget shortfall. funding to cover the detention budget shortfall. 3 7 P1 L1 In fiscal year (FY) 2013, In fiscal year (FY) 2013, ICE Congress appropriated funding requested funding for for approximately 31,300 of approximately 31,300 of ICE’s ICE’s detention beds. detention beds. 2 OFFICE OF INSPECTOR GENERAL Department of Homeland Security Technical Modifications Item # Page Paragraph Line Draft Language OIG Final Report Language 4 17 P3 L1-3 Detention management Detention management funding sources are not funding sources are not reliable. Congress requires ICE reliable. The statute requires to maintain an ADP of 34,000 ICE to maintain an ADP of detention beds; however, 34,000 detention beds; Congress only funds however, ICE requested funds approximately 31,300 for approximately 31,300 detention beds. detention beds. 5 18 P4 L1 Congress should provide ICE ICE needs reliable funding for reliable funding for detention detention management and the management and the authority authority to determine which to determine which aliens are aliens are best suited for best suited for detention. detention. 3 OFFICE OF INSPECTOR GENERAL Department of Homeland Security Table of Contents Executive Summary ............................................................................................................. 1 Background ......................................................................................................................... 3 Results of Review ................................................................................................................ 7 Circumstances of and Reasons for the Release of ICE Detainees ........................... 8 Recommendations ................................................................................................ 15 Management Comments and OIG Analysis .......................................................... 15 Statutory Requirements for Detention Funding and Management ..................... 17 Recommendations ................................................................................................ 18 Management Comments and OIG Analysis .......................................................... 18 ICE Did Not Seek or Receive External Guidance or Directives on the Releases ... 19 Appendixes Appendix A: Objectives, Scope, and Methodology ........................................... 20 Appendix B: Recommendations ........................................................................ 22 Appendix C: Management Comments to the Draft Report .............................. 23 Appendix D: Mandatory Detention Categories ................................................. 26 Appendix E: Increased Apprehensions and Detentions in FY 2012 .................. 28 Appendix F: Timeline of ICE Budgetary Releases .............................................. 29 Appendix G: Target and Actual Budgetary Releases by Field Office ................. 32 Appendix H: Budgetary Releases by Date and Field Office ............................... 36 Appendix I: Budgetary Release Tallies ............................................................. 38 Appendix J: Major Contributors to This Report ............................................... 40 Appendix K: Report Distribution ....................................................................... 41 Abbreviations ADP average daily population CBP U.S. Customs and Border Protection CFO Office of the Chief Financial Officer DHS Department of Homeland Security ENFORCE Enforcement Case Tracking System ERO Enforcement and Removal Operations FOD Field Office Director OFFICE OF INSPECTOR GENERAL Department of Homeland Security FY fiscal year ICE U.S. Immigration and Customs Enforcement INA Immigration and Nationality Act OCFO Office of the Chief Financial Officer Office of Budget and Program Performance OIG Office of Inspector General OMB Office of Management and Budget OFFICE OF INSPECTOR GENERAL Department of Homeland Security Executive Summary In February and March 2013, media sources reported U.S. Immigration and Customs Enforcement (ICE) released hundreds of immigration detainees, including detainees with criminal convictions. The publicized releases occurred the weekend before sequestration went into effect on March 1, 2013, generating speculation that the releases were improperly motivated. We determined that the following factors influenced ICE’s decision to release 2,226 immigration detainees between February 9 and March 1, 2013: The Consolidated and Further Continuing Appropriations Act (P.L. 113‐6) requires ICE to maintain an average daily population of 34,000 detainees and expects ICE to fund detention at this level. Congressional appropriations cover approximately 31,300 of those beds. ICE secures the remaining funding from fluctuating revenue sources or by transferring funding from other programs. This funding structure leaves ICE with inadequate resources when there is an increase in detainees. From fiscal year 2011 to fiscal year 2012, total apprehensions in the Rio Grande Valley increased from approximately 59,000 to 98,000, or 66 percent. Accordingly, ICE started fiscal year 2013 with an average daily population of 35,610 in its immigration detention facilities. During fiscal year 2013, ICE faced reductions as a result of being funded through a continuing resolution based on prior years’ funding and the impending sequestration budget cuts. In addition, funding typically used to cover the shortfall—breached immigration bonds and user fees—collected in fiscal year 2013 were lower than ICE’s projection. However, ICE did not develop contingency plans to address the budget shortfall. When ICE’s budgetary shortfall became apparent in January 2013, ICE leadership assumed it would be able to manage the shortfall by reducing the number of detained aliens. ICE’s Chief Financial Officer decided to cover part of the shortfall through a sharp and immediate reduction in detention bed space. Only after House appropriations staff informed ICE’s Chief Financial Officer on January 31, 2013, that maintaining 34,000 average daily population is a statutory requirement did ICE executive leadership realize ICE would need to obtain additional funding to cover the detention budget shortfall. www.oig.dhs.gov 1 OIG‐14‐116 OFFICE OF INSPECTOR GENERAL Department of Homeland Security Of the 2,226 budgetary releases reported to Congress, ICE released approximately 1,450 immigration detainees over the weekend of February 23, 2013. The execution of the releases was problematic as well. Insufficient ICE executive leadership planning and limited engagement with its Enforcement and Removal Operations field offices contributed to the timing and number of alien releases. Prior to the detainee releases, ICE executive leadership did not communicate effectively with Enforcement and Removal Operations, and did not inform Department of Homeland Security
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