DEPARTMENT OF HOMELAND SECURITY Office of Inspector General An Assessment of the Proposal to Merge Customs and Border Protection with Immigration and Customs Enforcement Office of Inspections and Special Reviews OIG-06-04 November 2005 Office of Inspector General U.S. Department of Homeland Security Washington, DC 20528 Preface The Department of Homeland Security (DHS) Office of Inspector General (OIG) was established by the Homeland Security Act of 2002 (Public Law 107-296) by amendment to the Inspector General Act of 1978. This is one of a series of audit, inspection, and special reports prepared as part of our DHS oversight responsibilities to promote economy, effectiveness, and efficiency within the department. Our review examined the operations and functions of Customs and Border Protection and Immigration and Customs Enforcement and the role of the Border and Transportation Security Directorate with regard to those entities. This review was conducted in response to a request from the Chairman, Senate Committee on Homeland Security and Governmental Affairs, to study the merits of merging the bureaus of Customs and Border Protection and Immigration and Customs Enforcement. It is based on interviews with employees and officials of relevant agencies and institutions, direct observations, and a review of applicable documents. We have made recommedations for improvement that we hope will result in more effective, efficient, and economical operations. To all who contributed to this report, we express our appreciation. Richard L. Skinner Inspector General Contents Executive Summary ..................................................................................................................... 1 Background................................................................................................................................... 10 Overview................................................................................................................................ 10 Organization of the Report..................................................................................................... 12 Establishment of Customs and Border Protection / Immigration and Customs Enforcement Structures ........................................................................................................... 14 Early Considerations for Structuring Border Security Operations ........................................ 14 Homeland Security Act of 2002 ............................................................................................ 16 Structural Recommendations Made by Transition Teams..................................................... 17 Opposition to a Single Border Security Agency.................................................................... 20 Announcement of Customs and Border Protection / Immigration and Customs Enforcement Structures............................................................... 20 Recent Discussions Concerning Customs and Border Protection / Immigration and Customs Enforcement Structures............................................................... 21 Customs and Immigration Enforcement Continuums.................................................. 22 The Continuums with Immigration and Naturalization Service / United States Customs Service .............................................................................................. 22 The Continuums with Customs and Border Protection / Immigration and Customs Enforcement ............................................................................... 23 Coordination of Apprehension and Detention and Removal Operations .............. 25 Operational Environment....................................................................................................... 26 Problems with National Coordination ................................................................................... 27 Problems with Field Coordination......................................................................................... 30 Consequences......................................................................................................................... 37 Coordination of Investigative Operations.......................................................................... 38 Operational Environment....................................................................................................... 38 Problems with Field Coordination......................................................................................... 40 Consequences......................................................................................................................... 46 An Assessment of the Proposal to Merge CBP and ICE Contents Coordination of Intelligence Activities................................................................................ 54 Operational Environment....................................................................................................... 55 Problems with National Coordination ................................................................................... 56 Problems with Field Coordination......................................................................................... 57 Overreliance on the Treasury Enforcement Communication System to Share Intelligence . 59 Lack of Collaboration to Produce Intelligence Reports......................................................... 60 Consequences......................................................................................................................... 61 Role of the Directorate of Border and Transportation Security ............................... 62 Inadequate Resources to Perform Mission ............................................................................ 62 Roles and Responsibilities Not Defined ................................................................................ 63 Consequences......................................................................................................................... 64 Other Organizational Structure Concerns........................................................................ 66 Federal Protective Service ..................................................................................................... 66 Federal Air Marshal Service .................................................................................................. 67 Forensic Documents Laboratory............................................................................................ 68 Organizational Options ............................................................................................................ 70 Option 1: Customs and Border Protection / Immigration and Customs Enforcement Report to the Deputy Secretary...................................................................... 72 Option 2: Create More Effective Coordination Mechanisms ............................................... 73 Option 3: Merge Customs and Border Protection / Immigration and Customs Enforcement ................................................................................ 74 Other Suggested Organizational Changes ............................................................................. 76 Recommendations for DHS Second Stage Review Implementation......................... 76 Management Comments and OIG Analysis...................................................................... 82 Overview of Management Comments ................................................................................... 82 Detailed Analysis of Management Comments ...................................................................... 85 An Assessment of the Proposal to Merge CBP and ICE Contents Appendices Appendix A Organizational Overview of the Immigration and Naturalization Service .. 100 Appendix B Organizational Overview of the United States Customs Service ................ 105 Appendix C Organizational Overview of the Border and Transportation Security Directorate.................................................................................................... 109 Appendix D Organizational Overview of Customs and Border Protection ..................... 114 Appendix E Organizational Overview of Immigration and Customs Enforcement ........ 119 Appendix F Operational Scenarios Illustrating the Interconnectedness of Customs and Border Protection / Immigration and Customs Enforcement ...................... 124 Appendix G Purpose, Scope, and Methodology............................................................... 134 Appendix H Management Response to the Draft Report................................................. 136 Appendix I Major Contributors to This Report .............................................................. 160 Appendix J Report Distribution ...................................................................................... 162 Abbreviations ABCI Arizona Border Control Initiative ACAP Alien Criminal Apprehension Program ACS Automated Case Support System ADIS Arrival Departure Information System AMO Air and Marine Operations APHIS Animal and Plant Health Inspection Service ASU Anti Smuggling Unit BORFIC Border Patrol Field Intelligence Center BTS Border and Transportation Security Directorate CAP Criminal Alien Program CBP Customs and Border Protection CCICC Command and Control Intelligence Coordination Center CD Controlled Delivery CFR Code of Federal Regulations CIA Central Intelligence Agency CIS Citizenship and Immigration Services CMC