Border Security: Additional Efforts Needed to Address Persistent Challenges in Achieving Radio Interoperability
Highlights
What GAO Found
The Department of Homeland Security (DHS), U.S. Customs and Border Protection (CBP), and U.S. Immigration and Customs Enforcement (ICE) have taken steps to upgrade tactical communications equipment and infrastructure, but could benefit by developing performance and program plans. Specifically, CBP has completed modernization projects in four of the nine sectors that compose the southwest border. Since rolling out upgrades—which include replacing and updating equipment and expanding infrastructure—CBP has not established an ongoing performance monitoring plan to determine whether the systems are working as intended. Without such a plan, CBP is not well positioned to assess whether its radio systems are functioning as intended in each location and are meeting user needs. In addition, ICE has taken some actions to modernize its tactical communications radio systems. However, ICE does not have a program plan to manage its portfolio of projects. By developing a program plan to guide ICE's overall tactical communications modernization program, ICE could better manage its program and achieve its program goals.
Additional efforts are needed to ensure that CBP and ICE agents and officers receive necessary training. CBP provided training to its agents and officers on upgraded radio systems in each southwest border location that received upgrades; however, 8 of 14 CBP radio user groups GAO met with suggested that radio users be provided with additional radio training to enhance their proficiency in using radio systems. Further, CBP does not know how many radio users are in need of training. Developing and implementing a plan to address any skills gaps related to the upgraded radio systems would help ensure more CBP radio users are able to effectively use their radios to accomplish the agency's mission. Further, developing a mechanism to identify CBP radio users in need of training would help CBP improve its ability to monitor radio user training needs. ICE provided training on the upgraded radio systems in one location, but 3 of the 4 ICE radio user groups GAO met with in field locations stated that additional training would help address challenges experienced by radio users. Further, ICE officials stated that they did not track the training that the agency provided. Developing and implementing a plan to address any skills gaps for ICE radio users related to understanding the upgraded radio systems would help ensure more ICE radio users are able to effectively use their radios to accomplish the agency's mission. Further, developing a mechanism to track training provided to ICE radio users would help ensure that the agency can address ICE radio user training needs.
DHS is taking actions to improve tactical communications interoperability among DHS components and with other federal, state, and local agencies, but it is too soon to assess whether these actions will address the various challenges CBP and ICE face in achieving interoperability. Specifically, among other actions, DHS developed a draft DHS Communications Interoperability Plan to more fully understand and address the department's underlying interoperability challenges. This draft plan outlines goals and initiatives aimed at addressing various types of interoperability challenges faced by DHS components, but since the plan has not been implemented, it is too soon to assess the extent to which this guidance will effectively address the interoperability challenges faced by DHS components.
Why GAO Did This Study
The lack of communications interoperability—the capability of different electronic communications systems (e.g., radios) to readily connect with one another to enable timely communications—can affect mission operations and the overall effectiveness of agencies responsible for securing the border. DHS continues to face challenges in achieving interoperable radio communications within and among federal, state, and local agencies despite investment by these agencies to improve their radio systems. GAO was asked to evaluate DHS border security and immigration tactical communications (TACCOM) programs and operational impacts resulting from interoperability challenges. This report addresses the extent to which (1) CBP and ICE have upgraded tactical communications equipment and infrastructure along the U.S. southwest border, (2) CBP and ICE have provided tactical communications training to radio users, and (3) DHS has taken actions to improve the interoperability of tactical communications along the U.S. southwest border and what challenges, if any, remain. GAO analyzed DHS documentation; visited four locations, selected for DHS prioritization of technology upgrade projects; and interviewed DHS officials.
Recommendations
GAO recommends that CBP and ICE develop performance and program plans for their modernization programs, mechanisms to track training, and plans to address skills gaps in understanding radio systems. CBP and ICE concurred with the recommendations.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| United States Customs and Border Protection | To ensure that CBP's land mobile radio systems are functioning as intended in each location and are meeting user needs, the CBP Commissioner should develop a plan to monitor the performance of its deployed radio systems. |
In March 2015, we reported on DHS border security and immigration tactical communications (TACCOM) programs and operational impacts resulting from interoperability challenges (GAO-15-201). During the course of our review, we found that CBP had not developed an agency-wide plan to monitor the performance of its radio systems. In particular, we reported that CBP had not collected sufficient data to determine how well the systems were functioning within and across sectors, and had not obtained perspectives from radio users since the systems were deployed in each location. We noted that such information could help CBP better identify any challenges with use of the system and assess system performance. Thus, we recommended that CBP develop a plan to monitor the performance of its deployed radio systems to ensure that CBP?s land mobile radio systems are functioning as intended in each location and are meeting user needs. In December 2015, CBP finalized a performance monitoring plan for its land mobile radio network that describes CBP?s plans for capturing, analyzing, and reporting on several performance indicators. In December 2016, CBP updated this plan, to include maps that show predicted coverage for CBP sectors and trending analysis tables. As part of this plan, CBP has consistently produced monthly performance monitoring reports, which include information on factors that contribute to system outages, such as human attributable outages (training gaps), process errors, and technical issues. The collection of performance trend data has better positioned CBP to identify and make needed improvements to its TACCOM program. As a result, this recommendation is closed as implemented.
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| United States Immigration and Customs Enforcement | To ensure the ICE TACCOM program is effectively managed, the Assistant Secretary of ICE should develop a program plan to ensure that the agency establishes the appropriate documentation of resource needs, program goals, and measures to monitor the performance of its deployed radio systems. |
In March 2015, we reported on DHS border security and immigration tactical communications (TACCOM) programs and operational impacts resulting from interoperability challenges (GAO-15-201). During the course of our review, we found that while ICE had taken some actions to modernize its TACCOM radio systems along the southwest border, such as upgrading analog radios and equipment with digital systems; it had not developed plans to fully modernize any of the southwest border regions, which would entail expanding coverage and capacity by building new sites. Instead, the agency's strategy had focused on leveraging other agency infrastructure until funding was approved to initiate modernization projects in these regions. We also reported that ICE had not developed program plan documentation because the ICE TACCOM program was not required to develop acquisition documentation in accordance with DHS Acquisition Directive 102-01 because the program was already in sustainment-e.g., project implementation phase complete-prior to 2008, when the directive was issued. However, we noted that developing a program plan could help ICE better determine whether the agency is prioritizing modernization projects and expending resources on technology upgrades in a manner that meets its radio user needs. In June 2016, ICE developed program plan documentation, including an acquisition plan, capability development plan, and operational requirements document, among other documents. To continue ICE's modernization of its tactical communications, in May 2018, the Department-level TACCOM program received approval to initiate two pilot ICE projects that will become the baseline for the remaining ICE regions, including in the southwest region. By developing program plan documentation, ICE is better positioned to prioritize its modernization projects to meet its radio user needs when funding becomes available. As a result, this recommendation is closed as implemented.
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| United States Customs and Border Protection | To improve CBP training efforts, CBP Commissioner should develop and implement a plan to address any skills gaps for CBP agents and officers related to understanding the new digital radio systems and interagency radio use protocols. |
In March 2015, we reported on DHS border security and immigration tactical communications (TACCOM) programs and operational impacts resulting from interoperability challenges (GAO-15-201). During the course of our review, radio users we met with reported experiencing communication challenges that they identified could be addressed with additional training to enhance their skills and help them overcome these communication challenges. We recommended that CBP develop and implement a plan to address any skills gaps for CBP agents and officers related to understanding the new digital radio systems and interagency radio use protocols and noted that doing so could help ensure that more of its radio users have the skills needed to overcome challenges that hinder interoperable communications. In June 2017, CBP officials reported that CBP's Office of Training and Development developed and completed beta testing of a radio interoperability training course that will include a pre-test and post course user satisfaction survey to help determine user skill level and any skill gap areas. In January 2018, CBP officials reported that the radio interoperability training course had been approved as a mandatory training requirement and assigned to all radio users. In addition, CBP officials developed an online training request form for users to report potential radio user skill gaps and to request additional or targeted training. CBP officials notified radio users of the availability of the new training request form in April 2018. As a result, this recommendation is closed as implemented.
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| United States Customs and Border Protection | To improve CBP training efforts, CBP Commissioner should develop a mechanism to verify that all Border Patrol and OFO radio users receive radio training. |
In March 2015, we reported on DHS border security and immigration tactical communications (TACCOM) programs and operational impacts resulting from interoperability challenges (GAO-15-201). During the course of our review, we found that CBP had not developed a mechanism to verify that all Border Patrol and OFO radio users receive radio training. Specifically, we reported that CBP does not know the extent to which all users have received training because it does not require that all radio users complete radio training for all three CBP components. We recommended that CBP develop a mechanism to verify that all Border Patrol and OFO radio users receive radio training and noted that developing such a mechanism could help CBP improve its ability to monitor and address radio user training needs. In June 2017, CBP implemented a process for identifying the TACCOM user community by using job series codes. CBP identified approximately 45,000 radio users through this approach. Further, to verify that all identified TACCOM radio users receive radio training, CBP developed and implemented a mandatory radio interoperability training course. A November 2017 CBP memo notes that Border Patrol agents and OFO officers would be required to take the radio interoperability training course biennially and that the course is currently available in CBP's online training system. By mandating the course and programming it into CBP's online training system, CBP has the capability to monitor compliance with the new training requirement through its online training system. As of January 2018, CBP officials reported that the radio interoperability training course has been assigned to all identified radio users. As a result, this recommendation is closed as implemented.
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| United States Immigration and Customs Enforcement | To improve ICE training efforts, the Assistant Secretary of ICE should develop and implement a plan to address any skills gaps for ICE agents related to understanding the new digital radio systems and interagency radio use protocols. |
In March 2015, we reported on DHS border security and immigration tactical communications (TACCOM) programs and operational impacts resulting from interoperability challenges. During the course of our review, radio users we met with reported experiencing communication challenges that they identified could be addressed with additional training to enhance their skills and help them overcome these communication challenges. We recommended that ICE develop and implement a plan to address any skills gaps for ICE agents related to understanding the new digital radio systems and interagency radio use protocols and noted that doing so could help ensure that more of its radio users have the skills needed to overcome challenges that hinder interoperable communications. In July 2017, the Department of Homeland Security Joint Wireless Program Management Office approved ICE's interoperability training plan which aimed to address communications interoperability gaps. The training plan specifies that a checklist will be used to verify that each student can demonstrate a working knowledge of radio operation and identifies several key skills to be assessed. In April 2018, ICE officials reported that the interoperability training would be mandatory, on a biennial basis, for all TACCOM radio users. In May 2018, the course entitled land mobile radio training for ICE users was completed and uploaded to the DHS online training system. The course description states that the course was developed to provide refresher training to all users of ICE land mobile radios, as well as serve as a reference source for land mobile radio related questions for all ICE radio users. As a result, this recommendation is closed as implemented.
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| United States Immigration and Customs Enforcement | To improve ICE training efforts, the Assistant Secretary of ICE should develop a mechanism to verify that all ICE radio users receive radio training. |
In March 2015, we reported on DHS border security and immigration tactical communications (TACCOM) programs and operational impacts resulting from interoperability challenges. During the course of our review, we found that ICE had not developed a plan to ensure training needs were met or tracked the training that it provided. We recommended that ICE develop a mechanism to verify that all ICE radio users receive radio training and noted that developing such a mechanism could help ICE improve its ability to monitor and address radio user training needs. In May 2018, the course entitled land mobile radio training for ICE users was completed and uploaded to the DHS online training system. The course description states that the training is mandatory for all ICE radio users; must be completed every other year; and will be provided as a self-certification training session. According to ICE officials, the online training system will capture data regarding training compliance. By mandating the course and programming it into DHS's online training system, ICE has the capability to monitor compliance with the new training requirement through its online training system. As a result, this recommendation is closed as implemented.
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