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he U.S. Border Patrol has proudly protected our borders since its founding in 1924. Its mission has always been important. However, on 9/11, that mission immediately became more vital than ever before to our nations security. In light of the 9/11 attacks, the Border Patrols leadership recognized that it had to realign its priorities, resources, and organizational structure to focus on the new homeland security threat while simultaneously continuing to perform its important legacy missions including immigration enforcement and narcotics interdiction. Concurrently, the Border Patrol had to transition into a new parent organization created as part of the new Department of Homeland Security. For these reasons, the Border Patrol issued its first National Strategy in 2004. That Strategy facilitated both the Border Patrols successful achievement of its immediate post-9/11 goals and objectives and its smooth transition into U.S. Customs and Border Protection (CBP).
The 2012-2016 Border Patrol National Strategy represents an evolution from the 2004 Strategy to account for, and take advantage of, changes and improvements in the border environment and the Border Patrol since 9/11. Threats to our border have evolved since 2004, and the Border Patrols resources and capabilities to meet these threats have also grown. Accordingly, this National Strategy is structured to adjust to these evolving threats and to reflect the effectiveness of the Border Patrols additional resources and improved operational capabilities. Specifically, the 2012-2016 Strategy evolves from a resources-based approach toward a risk-based approach. This Strategy is built on a framework using Information, Integration and Rapid Response to better secure our border in the most risk-based, effective and efficient manner.
challenges to any enforcement strategy. Today, thanks in large part to the successful implementation of the 2004 Strategy, levels of illegal activity are substantially lower. This demonstrates that unprecedented levels of border security are within reach if we can successfully evolve our enforcement approaches to take advantage of past successes and meet these new security challenges. For this reason, the first goal of the 2012-2016 Strategy focuses on taking a risk-based approach to securing the border. This involves a set of objectives, strategies and programs that utilize Information, Integration and Rapid Response to develop and deploy new and better tools, processes and approaches to achieve the Patrols operational objectives. This means, for example, increasing the use of intelligence-driven operations to focus resources against the greatest threats. It means being more effective and efficient by using tools and methods like changedetection techniques. It also means working with Federal, state, local, tribal, and foreign partners in an integrated and targeted manner. In short, it means using Information, Integration and Rapid Response to leverage and focus the increased resources and organizational improvements from the 2004 Strategy to their maximum effect and achieve the most focused enforcement benefits against the greatest risks along our border. To gain the full benefits from these new and improved tools, techniques, and approaches, the Border Patrol also must achieve the second goal of this strategy: strengthening its own institutional capabilities. This means improving the skills and abilities of our personnel, optimizing our organizational structures and processes, and becoming a more mature, sophisticated law enforcement organization. When the goals of this 2012-2016 National Strategy are achieved, the Border Patrol will build upon its success and continue the improvements in border security that have been achieved since 9/11. The Border Patrol will increase and then sustain certainty of arrest of those who enter illegally between the ports of entry, reduce smuggling and crimes associated with smuggling, and ultimately prevent, and respond to potential terrorist entry along our Nations borders. We will do so in a way that matches capabilities to threat in a risk-based manner. We will continue to grow and mature the Border Patrol into one of the worlds premier law enforcement organizations, and we will continue to make our borders safer than they have ever been. Honor First.
EXECUTIVE SUMMARY
The 2012-2016 National Strategy is a risk-based approach to border security. It focuses on using Information, Integration and Rapid Response to achieve two overall goals: securing Americas borders and strengthening the Border Patrol.
Increase and sustain the certainty of apprehension for illegal crossings between the POEs by expanding the Border Patrols situational awareness and employing a comprehensive and integrated whole-ofgovernment approach; and Increase Community Engagement by participating in community programs, using media relations, and leveraging the public to help us achieve our goals.
End State
The U.S. Border Patrol will manage risk along our nations borders to prevent terrorism, increase and sustain certainty of arrest of those who enter illegally into the US, and reduce smuggling and crimes associated with smuggling.
2012-2016 Border Patrol National Strategy
Objective 1.1
The current risk environment in which the Border Patrol and other law enforcement agencies operate is characterized by a variety of constantly evolving terrorist and transnational criminal threats that are both complex and variable. The capacity to develop timely, well-formulated, and actionable intelligence is vital to the prevention and disruption of threats to our borders. The Border Patrol will meet this challenge by supporting a well-integrated intelligence platform which promotes information sharing throughout the foreign and domestic law enforcement community. This endeavor is accomplished through the integration and support of Border Patrol intelligence frameworks and other intelligence entities such as CBP Office of Intelligence and Investigative Liaison (OIIL), DHS Border Intelligence Fusion Section (BIFS), Border Enforcement Coordination Center (BECC), Border Intelligence Center (BIC) and the State and Local Fusion Centers (SLFC).
Coordination with our foreign law enforcement partners is important to both gathering information and intelligence to understand potential terrorist and transnational criminal threats and to assist our overseas partners with their own operations so that terrorists and criminals are identified and interdicted before they attempt to enter the U.S. For these reasons, the Foreign Operations Branch (FOB) works in coordination with the Office of International Affairs to provide Border Patrol Subject Matter Experts (SMEs) abroad to fulfill a variety of training needs. Training missions range from basic Border Patrol presentations to tactical
2012-2016 Border Patrol National Strategy
Objective 1.2
skills to highly technical table-top exercises sponsored by various United States Government entities to include the State Department and the Department of Defense. The FOB also receives training support requests from other federal agencies operating in our partner nations. Border Patrol agents from the Special Operations Group are often requested to provide specialized training tailored to the specific needs of our partner nations.
The national International Liaison Unit (ILU) program fosters local partnerships, trust and mutual understanding between the U.S. Border Patrol and the Governments of Canada and Mexico in order to increase border cooperation, security and safety. For example, the ILU initiates monthly meetings with the Canadian and Mexican Embassies to discuss mutual concerns and facilitate local communication on issues such as exercises to test the joint response capabilities and coordination to a catastrophic event. The ILU facilitates information sharing between governments and agencies involved in the cooperative effort of ensuring border security. 10
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responds to intelligence-driven targets and shifts in local cross-border criminal activity, as deemed necessary by the Chief Patrol Agents. The MRT provides a flexible and enhanced tiered-response capability to counter the emerging, changing, and evolving threats along the challenging operational areas along our Nations borders.
The Mobile Response Team (MRT) provides a national group of organized, trained, and equipped Border Patrol Agents capable of rapid movement to regional and national incidents and events, in support of priority CBP operations. The MRT also 12
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Border Patrol agents using technology continues to be an important capability and force multiplier for the Border Patrol and its partners. The Border Patrol leverages various forms of technology to gain situational awareness to better detect, identify, monitor, and respond to threats to our nations borders. Without technology, the Border Patrol cannot operate in an effective, efficient, and risk-based manner.
Objective 1.3
The Border Patrol manages its requirements for existing and emerging technology at the Headquarters level. The Border Patrol assesses technology mission needs and capability gaps and works with its CBP partners including the offices of Information Technology (OIT) and Technology, Innovation and Acquisition (OTIA) to manage requirements through a mission analysis process, from beginning to end, to ensure that the Border Patrols technology needs are addressed properly through documentation, prioritization, test and deployment. The Border Patrol also works to identify and develop potential emerging technologies that can support current and future mission needs.
Due to the ever expanding and diverse threats facing at our Nations borders, the U.S. Border Patrol has adopted a targeted enforcement posture to prevent and disrupt terrorist and transnational threats. Targeting threats between the ports of entry through sound intelligence and analysis translates organizational priorities into strategic, risk-based, operational plans and focused deployment of resources.
The Analysis of Alternatives (AoA) ensures that each stations Integrated Mission Analysis of threats, vulnerabilities and risks is used appropriately to determine the proper integration of manpower, technology, and tactical infrastructure to meet the needs of the stations or sectors most operationally deficient AOR if a resources-based solution is deemed necessary. 14
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Due to the dynamic nature of threats faced between the POEs, the Border Patrol has employed coordinated efforts to strengthen security through targeted enforcement programs. The programs that have become critical in promoting targeted enforcement are evident in Operations Streamline, Outbound, and Stonegarden. Furthermore, the Border Patrol supports the National Targeting Center in its efforts to utilize intelligence and systems to screen potential threats through the use of targeting systems such as the Automated Targeting System (ATS).
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Objective 1.4
Increase and Sustain Certainty of Arrest
A critical component of securing the borders is to increase and sustain certainty of arrest of any persons or goods being illegally brought across our borders. As the certainty increases, this places a heavy strain on the resources of TCOs, severely degrading their ability to operate, as high arrest rates cause smuggling to cease to be a profitable endeavor.
Program: Prosecutions
Criminal prosecution is the traditional means by which aliens are held responsible for their illegal actions. Using prosecutions to deliver consequences for illegal crossborder activity is a critical element in the larger border security strategy. Cooperation is key to the success of the prosecution program which requires the support of the U.S. Attorneys Office and other Federal, state and local partners. 16
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The Border Patrol Special Coordination Center (BPSCC) is a critical program in our adoption of a whole of government approach to law enforcement. The BPSCC acts as a liaison between the Border Patrol and the Department of Defense (DoD) through Joint Task Force-North (JTF-N). The cell is co-located with JTF-N at Fort Bliss, El Paso, Texas and serves as the focus of our efforts to synchronize DoD support to Law Enforcement and our own strategic goals and objectives.
Operational Progression
Coordination
(Collaboration/De-confliction)
Integration
Information Sharing
Recognized Importance
Fusion
Information Sharing and Joint Planning Toward Specific Objective Is Critical
Governed by Accomplishment of Stated Objective
Predicated on Relationships
Unsustainable over time Informal
Success
Phase 1
TIME
Phase 2
TIME
Phase 3
Objective 1.5
Members of the U.S. Border Patrol are assigned to various counter narcotics and counter crime/terrorism task forces at the local law enforcement level. These task forces work on drug and violent crimes associated with narcotics trafficking that affect the border communities and concentrate on a coordinated response to disrupt, dismantle and defeat terrorist and criminal organizations.
Recognizing the jurisdictional complexity of the border environment, partnerships with Federal counterparts are essential for the Border Patrol to achieve our goals. These partnerships are critical at the operational and tactical levels as well as at the strategic and policy levels, where we must coordinate policies and ensure adherence to relevant laws and regulations. The Border Patrol has further strengthened its law enforcement partnerships along the border by co-locating and integrating our assets and personnel with those within other law enforcement organizations and offering reciprocal opportunities to our colleagues, consistent with applicable laws and authorities. The nature of shared communities and shared infrastructure requires that our approach involve further developing and enhancing unity of effort by CBP and among all our Federal partners. 18
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Crime in border communities is a key threat. Engagement with local law enforcement and the public can reduce this threat, lower crime, and prevent violence from spilling over from the opposite sides of U.S. borders. Operation Detour is a community outreach program conducted in conjunction with local school systems which began in the Del Rio, Texas Border Patrol Sector and has expanded along the Southwest Border. It educates the young adults of border communities about the dangers and consequences of decisions that may involve Transnational Criminal Organizations (TCOs) and outlines ways in which these TCOs may approach students to involve them in criminal activity. The program provides a real and true sense of the horrors and
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tragedies that befall individuals and their families once involved with the narco-terrorism world. Students are encouraged to think for themselves, to avoid peer pressure, and to reach out to parents, teachers, counselors, or law enforcement if they are asked to work for a TCO.
Explorers. The dissemination of operational achievements and challenges is essential to foster support from our partners and stakeholders.
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Objective 2.1
Strengthen Our Investment in People and Capabilities
People are our most valuable asset. Leaders must ensure that the U.S. Border Patrol hires and trains the best people and that future leaders receive the best possible education, training, and professional development.
Program: Mentoring
Expansion and reorganization of our agencys mentoring program will enable institutional knowledge to be passed on from mature leaders to newly promoted managers.
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Headquarters personnel, as well as advisors and subject-matter experts from the U.S. Customs and Border Protection Offices of Internal Affairs, Chief Counsel, Human Resources Management, and Field Operations (OFO). The U.S. Border Patrol is also represented on the Commissioners Integrity Integrated Planning and Coordination Committee (Integrity IPCC), which reviews integrity-related efforts throughout CBP. In addition, Border Patrol personnel are working with OFOs Analytical Management Systems Control Office to assess the feasibility of using agent-related anomalies in various CBP systems as indicators of potential integrity issues.
Program: Anti-Corruption
Corruption within our workforce poses a threat unlike any other. The U.S. Border Patrol is fortunate in that documented cases of corrupt employees represent only a minute percentage of the workforce. However, any instance of corruption within our ranks always has been and always will be unacceptable. The Border Patrol Integrity Advisory Committee (IAC) was chartered in September, 2008, to provide strategic recommendations to combat corruption and promote integrity among all U.S. Border Patrol employees. It is composed of a select group of Border Patrol field and 24
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Objective 2.2
Developing and institutionalizing doctrine within the organization will help execute the long term strategy and enable the Border Patrol to operate on a standard that captures necessary change and allows operations to function smoothly. The Office of Border Patrol is working to develop doctrine as a process to seamlessly link the operating force to emerging Tactics, Techniques and Procedures (TTP) and best practices while additionally focusing on enduring principles and techniques that remain the hallmark of a professional operation. Doctrine will focus on overarching enduring principles, sector operations and future border security initiatives that all agents can use to execute their mission in the field.
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Objective 3
It is important that resource allocations are consistently applied toward maximizing their operational impact on the mission. A comprehensive Command Budget Guidance will be issued annually and will play a major role in formulating the resource requirements for conducting the day-to-day activities and functions within the Headquarters and in the field. The guidance will identify commonality in acquisition methods which will lead to strategic sourcing initiatives to provide for cost efficiencies and the maximization of appropriated funding. The effective utilization of resources will also be achieved through the planning, programming, budgeting, and accountability (PPBA) process and the proper alignment of resources along identified lines of business (LOB) for the Border Patrol. The Resource Allocation Plan (RAP) for the Border Patrol budget will continue to be refined along the appropriate LOBs, sub-programs and activities that support the primary mission of securing Americas borders.
The Border Patrol requires a governance structure to ensure that its investments are in alignment with the vision, strategic goals and overall mission priorities of the agency. The Executive Governance Board will be implemented to achieve substantive improvement in key interdivisional and sector business processes. The Board will incorporate standardized implementation methodologies under a governance framework, along with providing awareness of, advocacy for, and collaboration on current and future investments. 28
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