Operation Endgame

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Operation Endgame is a 2003-2012 plan under implementation by the Office of Detention and Removal Operations of the U.S. Department of Homeland Security Bureau of Immigration and Customs Enforcement to detain and deport all removable aliens and "suspected terrorists" currently living in the United States by 2012

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Operation Endgame

  1. 1. U.S. Department of Homeland SecurityBureau of Immigration and Customs Enforcement ENDGAME Office of Detention and Removal Strategic Plan, 2003 - 2012 Detention and Removal Strategy for a Secure Homeland Form M-592 (8/15/03)
  2. 2. ENDGAME D e t e n t i o n a n d R e mo v a l S t r a t e g i c P l a n 2 0 0 3 – 2 0 1 2ContentsExecutive Summary ...................................................................................................... iiChapter 1. Introduction........................................................................................... 1-1 Situation .................................................................................................................................................1-1 Enforcement Challenge .........................................................................................................................1-1 Strategic Framework..............................................................................................................................1-2 Stakeholders..........................................................................................................................................1-3 Plan Development .................................................................................................................................1-5 Plan Structure ........................................................................................................................................1-6 Execution ...............................................................................................................................................1-6Chapter 2. Situational Assessment ....................................................................... 2-1 Overview................................................................................................................................................2-1 Situation .................................................................................................................................................2-1 Reorganizations and Demands for Service.......................................................................................2-1 Strengths, Weaknesses, Opportunities, Threats (SWOT).....................................................................2-2 Strengths ...........................................................................................................................................2-2 Weaknesses ......................................................................................................................................2-4 Opportunities .....................................................................................................................................2-7 Threats.............................................................................................................................................2-10Chapter 3. Goals and Objectives ........................................................................... 3-1 Goal Relationships.................................................................................................................................3-1 Homeland Security to DRO ...............................................................................................................3-1 Goal Alignment ......................................................................................................................................3-4 Milestones..............................................................................................................................................3-6Chapter 4. Strategies .............................................................................................. 4-1 Strategic Concept ..................................................................................................................................4-1 Strategic Fundamentals.........................................................................................................................4-1 Foundations for Success .......................................................................................................................4-1 General ..................................................................................................................................................4-2 Strategic Challenges and Success Factors...........................................................................................4-3 Strategic Challenges .........................................................................................................................4-3 Key Success Factors.........................................................................................................................4-3 Strategic Initiatives.................................................................................................................................4-3 Strategies...........................................................................................................................................4-4 Execution .............................................................................................................................................4-10 Effective ...........................................................................................................................................4-10 Plan Maintenance............................................................................................................................4-10 Planning Cycle.................................................................................................................................4-10Glossary..................................................................................................................... G-1Contents i
  3. 3. Bureau of Immigration and Customs EnforcementOffice of Detention and RemovalExecutive Summary o Building partnerships with critical stakeholders;Endgame is the Immigration and Customs o Developing a professional workforceEnforcement (ICE), Office of Detention and and the infrastructure to retain it; andRemoval (DRO) multi-year strategicenforcement plan. It stresses the effective o Employing mission-critical systemsand efficient execution of the critical service and information technology.DRO provides its partners and stakeholdersto enforce the nation’s immigration and Endgame embodies the core principles foundnaturalization laws. The DRO strategic plan within the National Strategy for Homelandsets in motion a cohesive enforcement Security. The National Strategy forprogram with a ten-year time horizon that will Homeland Security promotes a balanced andbuild the capacity to “remove all removable integrated enforcement strategy, whichaliens,” eliminate the backlog of unexecuted ensures that the probability of apprehensionfinal order removal cases, and realize its and the impact of the consequences arevision. sufficient to deter future illegal activity. Through its operational focus on fugitive DRO VISION apprehension and developing full capacity to “Within ten years, the Detention and remove all removable aliens, Endgame is a Removal Program will be able to meet all key element in the achievement of the of our commitments to and mandates from the President, Congress, and the balanced immigration enforcement strategy. American people.” DRO’s success as a core element of the immigration enforcement mission will be realized when the synchronization of itsEndgame is an essential part of an overall resources and infrastructure result in thestrategic planning process that will integrate immediate and effective removal of eachoperations with budget development and removable alien. With this strategic plan,performance measurement. The DRO DRO strives toward that goal while ensuringStrategic Plan Working Group, which that its services will be provided consistentlydeveloped this plan, will maintain it and the and professionally. The result will beprocess through a suite of performance enhanced homeland security through theindicators. These will ensure that operations successful accomplishment of DRO’sand accomplishments are appropriately mission.measured and that the plan accuratelyreflects the current and future environment.Endgame is pro-active in its vision to confront DRO MISSIONand overcome the many challenges DROfaces today and will face tomorrow.Throughout the next ten years, DRO will “Promote the public safety andimplement and execute a series of strategies national security by ensuring thethat will develop the capacity and capability to departure from the United States ofexecute all final orders of removal. The three all removable aliens through thethemes listed below are DRO’s “foundations fair and effective enforcement offor success,” the pillars supporting the the nation’s immigration laws.”platform from which this plan and itsstrategies will be launched:ii Executive Summary
  4. 4. ENDGAME D e t e n t i o n a n d R e mo v a l S t r a t e g i c P l a n 2 0 0 3 – 2 0 1 2Chapter 1. Introduction the American people. Building these partnerships is fundamental to the success of this plan and DRO’s mission and will result inSituation improvements that maximize efficiencies within the immigration enforcement process.Endgame is the Immigration andCustoms Enforcement (ICE), Office of Our mission is critical to the immigrationDetention and Removal (DRO) multi-year enforcement process and provides the finalstrategic enforcement plan. It is part of a link in securing America’s borders. Ourbroader planning cycle that, when fully plans, operations and resource requests willimplemented, will integrate strategic and be fully integrated with all other immigrationoperational planning with the budget building enforcement programs and initiatives.process and performance measurement. Initiatives to improve border security andEndgame articulates the DRO mission and protect the interior of the United Statesvision statement, and through an increase inwill guide the Endgame is part of a broader planning personnel anddevelopment and cycle that, when fully implemented, will enhanced informationexecution of DRO integrate strategic and operational technology, as well asoperations through a planning with the budget building process the establishment offocused set of goals, and performance measurement. the DHS, will requireobjectives and significant increases instrategies. The plan detention and removalidentifies core detention and removal operations and resources. Our managementbusiness functions and key processes within and staff will use this plan as a reference toolfive goal areas to accomplish several short- to develop operations that will be properlyand long-term objectives. It emphasizes the and fully aligned with all immigrationexecution of key processes within the two enforcement operations. We will follow thiscore functions, removals and custody plan to ensure that we manage and maintainmanagement, recognizing they will remain an effective detention and removal program,essentially the same once the Program is and that we continue to execute our part infully integrated into the Department of the overall immigration enforcement process.Homeland Security (DHS). On March 1, 2003, DRO officially becameEnforcement Challenge part of the Bureau of Immigration and Customs Enforcement (ICE) of the directorateRecent events and political initiatives have of Border and Transportation Security (BTS)emphasized the significance of DRO’s within the Department of Homeland Securitymission and the critical need to restore some (DHS). This transition brings with it newcertainty to the removal of aliens found to be partners, stakeholders and challenges yet,removable. DRO will meet the challenge of we must remain diligent in our efforts tothis defining moment in our nation’s history, provide the entire DRO program with theclearly demonstrating our critical role in appropriate tools and resources required toimmigration enforcement and our nation’s accomplish our mission and dailydomestic security. This plan will guide our assignments. Through this team and ourefforts in developing operational plans and inter-agency and internal partnerships, we willresource requirements to achieve our succeed in meeting our national policynational immigration law enforcement policy mandates.aims. Through cooperative relationships andeffective partnerships with our internal andexternal stakeholders, we will fulfill thedemands of the President, the Congress andIntroduction 1-1
  5. 5. Bureau of Immigration and Customs EnforcementOffice of Detention and RemovalStrategic Framework remove all removable aliens. The principles of that foundation are implicit in threeThe Director for Detention and Removal, in overarching strategic themes:conjunction with his staff, has developed avision statement to guide the efforts of the o Build partnerships with criticalprogram for the next ten years. This ten-year stakeholders.vision is focused on the development of theinfrastructure, resources, personnel and o Develop a professional workforce andleadership necessary to develop, maintain the infrastructure to retain it.and sustain a program that will accomplish itsmission efficiently and effectively throughout o Employ information systems andthe next ten years, and beyond. technology.U.S. immigration policy remains fluid to reflect These three themes influence objectives andthe ever-changing global and political strategies across five goal areas. These fiveenvironment; however, this ten-year vision goal areas will guide DRO operations andwill transcend these changes, as it is founded efforts and support ICE strategic goals. Thein a mission that reflects the core business of relationships between DRO goals and those ofthe Detention and Removal program. The ICE and the National Strategy for HomelandDRO mission is the cornerstone of this vision Security are depicted in the graphic on theand this plan. Over the next ten years, following page and described in more detail inEndgame will lay the groundwork for Chapter 3.developing the capacity and capability to DRO VISION Within ten years the Detention and Removal Program will be able to fully meet all of our commitments and mandates from the President, Congress and the American people. To make this happen, the following will be required: • Visionary leadership, at all levels of the organization • An effectively trained and educated professional workforce • The right levels of the right resources such as personnel, facilities, and support infrastructure • Effective, responsive, and accurate command, control, communication, computers and intelligence (C4I) systems that truly support our enforcement requirements and improve the way we do business • Thoughtful and thorough planning, and effective operational execution1-2 Introduction
  6. 6. ENDGAME D e t e n t i o n a n d R e mo v a l S t r a t e g i c P l a n 2 0 0 3 – 2 0 1 2 Figure 1. Relationship between DRO, ICE and DHS Strategic Goals and Objectives DHS to ICE to DRO Goal Relationships DHS Strategic Objective: DHS Strategic Objective : Prevent terrorist attacks Ensure functions not directly related to within the United States. homeland security are not diminished or neglected. ICE Strategic Goal (DRAFT): ICE Strategic Goal (DRAFT): Deterring, interdicting, & removing Protect America from customs & threats; & policing & securing immigration violations not directly federal facilities. linked to terrorism. DRO Goal 1 DRO Goal 2 DRO Goal 3 DRO Goal 4 DRO Goal 5 Removals Custody Mgmt Non-Detained Info Tech Human Capital Docket MgmtWhen implemented to its fullest, this plan will a professional, effective and efficient mannerserve as the platform from which strategies while addressing the rights, needs andwill be initiated, partnerships will be built, and interests of all its various stakeholders.innovation for continued process DRO’s primary stakeholders have beenimprovement will be fostered. This vision will identified and grouped, as depicted on thebe realized, and the mission will be following page:accomplished, only through the collective andcollaborative efforts of all DRO employees.DRO employees (including officers,management, and staff) must encouragegrowth and improvement through the sharingof ideas and the integration of DRO corebusiness functions with key processes, allcritical elements of the immigrationenforcement program.StakeholdersIn response to national policy, DRO providesthe necessary public service of removingunauthorized aliens from the United States.DRO is committed to providing this service inIntroduction 1-3
  7. 7. Bureau of Immigration and Customs EnforcementOffice of Detention and Removal Figure 2. DRO Stakeholders1 Stakeholders Internal DHS Enforcement Internal International Affairs (Asylum/Refugee) DRO Employees INS Enforcement (BOR, INSP, INV, LESC) (ICE, CIS, CBP, LESC) Office of General Counsel Immigration Services D&R Employees Office of Community Relations External American Private Sector: *Foreign government The American People *The Alien Consulates/Embassies CBOs/NGOs/ABA Family members Lawyers American Government: Union Community leaders Contract services; vendors— * LEAs food, services, IGSA providers •Local/State PD’s Other government agencies CDFs •BOP •US Marshal Service Senators/Congressmen AILA (USMS) Public Health Services Business owners/employers •FBI/CIA •JPATS Executive Office of Media Immigration Review Airlines & Other Transportation HHS – Juvenile AffairsDRO’s primary internal customers are the efforts that we will create consequences forother enforcement arms within the and deterrence to illegal immigration.Department’s Directorate of Border and DRO’s service and enforcement partnersTransportation Security that includes work diligently to identify, locate, apprehend,investigators and intelligence analysts within process, and remove aliens who violate thisICE and inspectors and border patrol agents nation’s immigration laws. While inspectorswithin the Bureau of Customs and Border and border patrol agents can remove aliensEnforcement (CBP). Other DHS customers directly at ports of entry via expeditedinclude the Law removal, voluntary It is only through our combined effortsEnforcement Support that we will create the consequences for return or otherCenter (LESC), the and deterrence of illegal immigration. methods, that is not aOffice of International core function of theirAffairs, and the Bureau mission. “Removing allof Customs and Immigration Services (CIS). removable aliens” is, in fact, DRO’s mission.Through cooperative and concerted efforts, All of the activity needed to carry out thatall aspects of the immigration enforcement mission is the service we provide ourprocess will be completed thoroughly and partners. Illegal aliens, unaccompaniedexpeditiously. It is only through our combined juveniles, asylum seekers, refugees, and1 Refer to pages G-6 and G-7 for a complete listing of the acronyms used in Figure 2 and throughout this report.1-4 Introduction
  8. 8. ENDGAME D e t e n t i o n a n d R e mo v a l S t r a t e g i c P l a n 2 0 0 3 – 2 0 1 2countless other apprehended aliens cannot facilitate a smooth and trouble-free transferall be immediately removed from the country, from the United States to the alien’s home ofnor can they all be released into the record.American community. For that reason, DROresources and expertise are required to While the alien will not necessarily perceivetransport these aliens from point to point, to any “benefit” from DRO services, he will bemanage them in custody while their cases are provided with safe and secure confinement inbeing processed and, finally, to remove them detention facilities, as well as transportationfrom the country when ordered to do so. The from ports and points along the border toeffects of other programs’ enforcement efforts other detention facilities or his country ofare diminished and their operations are origin. These services will be provided in aconstrained if DRO cannot execute its mission professional manner; the alien will beefficiently and effectively. Therefore, DRO detained in safe, secure and humanemust immerse itself within the immigration environments; he will be transported safely;enforcement element of DHS and establish a and his movement will be fully coordinatedsignificant and collaborative presence with its with his family, legal representative, andservice and enforcement partners and country of origin, whenever appropriate. Forstakeholders. these reasons, the alien is as important a stakeholder as any of the others mentioned. The effects of other programs’ enforcement efforts are diminished and This strategic plan and the vision statement their operations are constrained if DRO have been developed in consideration of thecannot execute its mission efficiently and concerns of each of our stakeholders. It is effectively. difficult to prioritize DRO efforts to satisfy one stakeholder’s needs over that of another; yet the need to satisfy the AmericanDRO must maintain cooperative relationships constituency, protect their freedoms andwith each one of its stakeholders to ensure secure their safety remains the overarchingthat enforcement operations are conducted and desired outcome.as efficiently and professionally as possibleand that all stakeholders’ legitimate interests Plan Developmentare addressed. DRO and the private sectorrely on each other for the services each On August 3, 1993 the President signed intodemands and has to offer. While the private law the Government Performance andsector relies on DRO to provide national and Results Act (GPRA). Simply stated, the lawinternational transportation, or to house and implements a strategic planning andfeed detainees, DRO relies on those same performance-measuring process to holdservices to execute its mission when they are government agencies accountable to thenot available through normal government American people for the money they spend.channels. DRO must also maintain similar To that end, the law requires governmentcooperative relationships with foreign agencies to developgovernments in order strategic plans withto realize and effect Endgame supports national, DHS, and measurable programremoval. Strong ICE-wide policy and initiatives, while goals, and to reportpartnerships and satisfying the inherent needs of both annually to Congresscooperative its internal and external stakeholders. and the American publiccoordination between on their progress. TheDRO, the DHS Office Office of Detention andof International Removal now releasesAffairs, the Department of State (DOS), its supporting strategic plan, Endgame,foreign governments, and the alien will covering the time frame 2003-2012. The planIntroduction 1-5
  9. 9. Bureau of Immigration and Customs EnforcementOffice of Detention and Removalsupports national, DHS, and ICE-wide policy chapters, this plan lays out a set of strategicand initiatives, while satisfying the inherent initiatives DRO will undertake to accomplishneeds of both its internal and external its mission, achieve its goals, overcome itsstakeholders. challenges and satisfy its stakeholders. The plan does not, however, focus on theThe DRO strategic plan and planning process implementation of specific processes inis the culmination of a nine-month conducting DRO business. Detailedcollaborative effort of the Strategic Plan processes and operations will be addressedWorking Group (SPWG). The SPWG, in a supporting five-year business plan fromconsisting of 23 individuals from HQDRO, the which the budget, the annual performancefield, and other HQ staff elements, was plan and the annual implementation plan willchartered in September 2001. The group’s be built. These appendices support thisimmediate task was to develop performance strategic plan and will be updated on ameasures to be incorporated into the existing recurring basis.suite of performance indicators for inclusionin the fiscal year 2003 Annual Performance In its four chapters, this plan lays out aPlan. Upon completion of that immediate set of strategic initiatives DRO willassignment, the group began a systematic, undertake to accomplish its mission,academic approach to developing a strategic achieve its goals, overcome itsplan that would serve as the cornerstone for challenges, and satisfy its stakeholders.development of the fiscal year 2004 (andfuture) budgets. The group developed themission statement and five goal areas in Executionwhich to focus its operational efforts.Through an analysis of strengths, This Strategic Plan is effective upon release,weaknesses, opportunities, and threats and will be maintained by the SPWG(SWOT), the SPWG identified a set of throughout the year. Review of the plan andstrategic challenges, key success factors, its critical elements will be conducted inand executable objectives and strategies to conjunction with budget calls, mid-yearaddress and/or overcome its challenges. The reviews, and the development of AnnualSPWG resolved that all of its key processes Performance Plans and Implementation(its routine and day-to-day activities) could be Plans.grouped into two core business functions: 1)removals; and 2) custody management. Inorder to justify the need and significance ofeach strategy and objective, the groupdeveloped a suite of indicators to measureperformance in each goal area throughoutthe year. Upon release of the plan, the groupwill transition to a maintenance mode and willmeet quarterly to review the progress of thisplan and update it accordingly.Plan StructureEndgame will shape the future of the DROorganization and will guide the programthrough the current sea of change. Thestrategic plan is rooted in the overarchingvision, mission, and goals that will serve asconstants for the next ten years. In its four1-6 Introduction
  10. 10. ENDGAME D e t e n t i o n a n d R e mo v a l S t r a t e g i c P l a n 2 0 0 3 – 2 0 1 2Chapter 2. Situational September 11 attacks (such as the Border Security Act and the USA PATRIOT Act)Assessment further expanded DRO’s operational area of responsibility. These Acts, in particular, haveOverview reprioritized national immigration enforcement efforts and this program’s responsibilities andThe Detention and Deportation Program, now operations. By implementing this strategicthe Office of Detention and Removal (DRO), plan and providing a guide to conductwas established in a 1955 reorganization of operations, this program is making strides inthe INS to carry out a mission first articulated altering its operations and resourcein the Alien and Sedition Acts of 1798. The requirements to support both current andAlien and Sedition Acts included the earliest future immigration related policy, events anddeportation legislation, which empowered the activity.President to order the departure from theUnited States of all aliens deemed Situationdangerous. Legislation since then hasexpanded the detention and removal Reorganizations and Demands for Serviceoperations and redefined the classes ofaliens to be deported or excluded. The basic A) Reorganizations: DRO was integratedmission, however, remains the same: into the Department of HomelandRemove all removable aliens. Security’s Bureau of Immigration and Customs Enforcement on March 31,The Immigration and Nationality Act (INA) of 2003. Notwithstanding the impact this1952 expanded the federal expulsion power transition will have on DRO, theto include a wider category of aliens. The INA program’s mission and core functionslisted 19 general classes of deportable aliens (custody management and removal) willand provided for exclusion (at the time of remain the same. The most significantapplication for admission) to the United changes will be seen in the organizationalStates on health, criminal, moral, economic, structure, chains of command, andsubversive, and other grounds. The Illegal hierarchy. This plan is focused on theImmigration Reform and Immigrant program’s core business functions andResponsibility Act (IIRIRA) of 1996 expanded key processes and will, therefore, not bethe number of crimes that made people significantly impacted by the finalsubject to removal. It also eliminated DRO’s reorganization decisions.discretion to release certain aliens byrequiring that virtually any non-citizen subject B) Demands for Service: An effectiveto removal on the basis of a criminal enforcement program requires that aconviction, as well as certain categories of significant risk of apprehension benon-criminal aliens, be detained without combined with a high likelihood thatbond. As a result of these acts and other apprehension will result in removal. Withlegislation, DRO is required to detain and high enough risk of apprehension andremove a much larger and more diverse sufficient likelihood of removal, thepopulation. The current population requires incidence of illegal activities will decline,unique facilities, procedures and improving law enforcement effectiveness.management depending on risk, criminal The national strategy for law enforcementcategory, nationality, health and other special must address the priority of removals.needs. The “endgame” of immigration lawSimilarly, operations, policy and legislation enforcement is the removal of individuals whothat were developed in response to the have received final orders of removal. This isSituational Assessment 2-1
  11. 11. Bureau of Immigration and Customs EnforcementOffice of Detention and Removalthe essence of DRO’s mission. removal for all removable aliens is critical toImprovements in the operational allow the ICE to provide the level ofeffectiveness of apprehensions will create an immigration enforcement necessary to keepincreased requirement for processing and America secure. Without this final step in theremoving offenders. Therefore, to process, apprehensions made by other DHSsuccessfully complete the enforcement programs cannot truly contribute to nationalprocess, the removals program must be as security.vigorous as other enforcement programs.DRO needs appropriate resources to ensure Strengths, Weaknesses,that removal does, in fact, result surely from Opportunities, Threats (SWOT)apprehension. Otherwise, the workloadresulting from enhancements to and Endgame was developed with both theincreased efficiencies within other DHS positive and negative aspects of the programprograms will be made in vain without an in mind. DRO will exploit its strengths andequally enhanced detention and removals minimize its weaknesses in order to capitalizeprogram. on available opportunities and overcome the challenges it faces in pursuit of its mission.As part of the DHS immigration and lawenforcement mission, the DRO program has Strengthsthe primary responsibility of providingadequate and appropriate custody DRO’s success will be attributed to themanagement (including bed space), strength of its leadership, current andsupporting removals, facilitating the planned initiatives, the experience andprocessing of illegal aliens through the dedication of its workforce and animmigration court, and enforcing their unquestionable commitment from the entiredeparture from the United States. Key program to execute this plan and the criticalelements in exercising those responsibilities planning process within which it is a part.include: identifying and removing all high-risk The current workforce has the experience,illegal alien absconders; ensuring that those dedication and corporate knowledge neededaliens who have already been identified as to build the foundation from which this plancriminals are expeditiously removed; and will be launched and from which the programdeveloping and maintaining a robust capacity will be both built and enhanced.removals program with the capacity to DRO’s workforce is supported by time-provenremove all final order cases issued annually, processes to remove illegal aliens from thethus precluding growth in the illegal alien country and the maintenance of detentionabsconder populations. Simply stated, facilities against standards more stringentDRO’s ultimate goal is to develop the than the national norm.capacity to remove all removable aliens.Integral to making America more secure, 1. Leadership: DRO leadership believesDHS detention and removal operations that “failing to plan is planning to fail” andprovide the final step in the immigration therefore supports this strategic plan andenforcement process. To accomplish this a planning process that fully integratesmission, DRO will be vigorous in its efforts to operations and performance withprovide services commensurate to the resource needs. DRO leadership isdemand from and efforts expended by other committed to executing this plan and itsenforcement programs and agencies. DRO strategies to accomplish the mission andwill increase its overall number of removals attain the vision by empowering the DROannually in order to thwart and deter workforce to think globally, work smartercontinued growth in the illegal alien and take responsibility for executing apopulation. Moving toward a 100% rate of2-2 Situational Assessment
  12. 12. ENDGAME D e t e n t i o n a n d R e mo v a l S t r a t e g i c P l a n 2 0 0 3 – 2 0 1 2 critical function of the entire immigration a) Health Care: DRO is expanding its enforcement process. health care delivery system to fit current and future needs in the most2. Workforce: The DRO core business cost-effective way. This includes functions (custody management and increasing the services currently removal) demand that the DRO officer provided by the Public Health Service corps maintain broad and expert (PHS). It also includes an overall knowledge of all applicable upgrade of the Immigration Health immigration laws, policy and procedures; Information System (IHIS), involving they do so. The DRO officer corps has the creation of an electronic the education and experience to manage surveillance system for communicable IICE’s unique population while diseases that will help to control costs simultaneously carrying out proper and significantly increase enforcement action. Because of their administrative efficiency. This diverse workload and broad initiative will allow PHS to maintain immigration knowledge, DRO officers are appropriate staff levels needed to often called on to serve on review panels provide requisite detainee health care. that recommend parole, release or other It will especially enhance the relief for aliens in accordance with the movement of detainees to the most law. They are also authorized and optimal site based on their health mandated to discuss and act on conditions and will clear them for immigration issues with aliens being removal more quickly. processed for administrative immigration violations. b) Chaplaincy: DRO has requested positions be created to place3. Unique Population and Detention chaplains in each of its Service Standards: The detained alien population Processing Centers (SPCs) to ensure is unique and extremely diverse. that detainees of different faiths are Detained aliens are in administrative provided reasonable and equitable custody (versus punitive or correctional) opportunities to pursue their and are therefore afforded rights and respective religious practices. This privileges not gained by prisoners initiative will satisfy detention incarcerated in other federal institutions. standards that allow for the practice of For this reason, DRO conducts routine various religions, unique food inspections of its facilities and operations provisions, and spiritual needs during to ensure that they are in compliance with terminal illness and death. The approved standards, that aliens are chaplain will also be responsible for treated humanely, and that they are safe advising the Officer in Charge in and secure. DRO manages its own matters of religious holiday Detention Management Control Plan observance, religious diets, religious (DMCP) to ensure its facilities comply personal property, dress and with American Correctional Association contraband. detention standards and their own more stringent and comprehensive ICE 4. September 11 Awareness: The Detention Standards. Through execution unprecedented terrorist attacks on of thorough and routine inspections September 11, 2001 heightened outlined in the DMCP, DRO ensures its awareness among the public and facilities are operated in a professional governments worldwide of the critical manner and are compliant with importance of enforcing immigration laws appropriate codes, standards, and and sharing information and intelligence. regulations. Since then, the U.S. has reviewed its ownSituational Assessment 2-3
  13. 13. Bureau of Immigration and Customs EnforcementOffice of Detention and Removal business practices regarding immigration progress on diminishing and eliminating and homeland defense and, in doing so, the existing backlog. Detention and has identified critical gaps that are now Removal resources have not kept pace being addressed and resolved. This with the increased number of worldwide focus on immigration provides apprehensions generated by explosive the opportunity to develop and enhance growth in Border Patrol and Inspections relationships and cooperation with foreign since 1996. Since that time, these governments and, most importantly, apprehension resources have increased among U.S. law enforcement, border by 64 percent while DRO forces have control and defense agencies. Finally, it increased by only 37 percent. While DRO has afforded the DRO and the DHS an does not have empirical models to show opportunity to educate the public on the the optimal ratio of DRO forces to critical mission and role they play in the apprehension assets, it is clear that this immigration enforcement process. asymmetrical growth has put severe strains on the program. Its ability toWeaknesses follow up on apprehensions, to effectively manage the processing of cases through1. Lack of Empirical Models: The DRO the immigration courts, and to remove mission cannot be accomplished without those ordered removed has been appropriate human resources, yet the hindered. program does not have reliable models to determine what the true workload-to- 3. Standardization: The current field personnel ratio should be. Although a structure, coupled with a lack of unified new financial management system, the national operations plans, has resulted in Federal Financial Management System diversified and inconsistent interpretation (FFMS), is being fielded that will enhance of policy and guidance within and the management of current fiscal between regions and districts. resources, DRO does not have the Additionally, the current performance capability to conduct detailed financial measurement system creates an analysis and resource identification atmosphere of territoriality rather than a utilizing the current system. Also lacking unified, cooperative, effective, and is a documented business model and efficient operation. DRO acknowledges accurate cost data to support future that nationwide operations cannot be budgetary planning, resource allocation, conducted consistently without unified cost optimization, and GPRA operations plans and clear guidance to requirements. the field. Developing a national fugitive operations policy, a national custody2. Human Resource Shortfall: The program management plan and a national experienced relatively gradual growth in transportation system are the program’s key areas from 1998 to 2001 (end of year greatest challenges and will prove to be 2002 numbers were not available while among its greatest recent drafting this plan). The DRO staff grew accomplishments when complete. by only three percent, which was slightly Development and deployment of these slower than the four percent growth in the national plans, as envisioned, will have docket or caseload. While the program is significant positive impact on DRO making progress, increasing removals by operations across the board. These 11 percent, staff growth is only barely national plans will not solve all program keeping pace with the growing docket. deficiencies but will significantly reduce Staff growth must exceed docket growth if and minimize the gaps. Standard staffing the program is going to begin making guidelines and staffing levels are also absent from the DRO personnel2-4 Situational Assessment
  14. 14. ENDGAME D e t e n t i o n a n d R e mo v a l S t r a t e g i c P l a n 2 0 0 3 – 2 0 1 2 management system. Staff make-ups programs are the Student Exchange and vary widely among and between like Visitor Program (SEVP) and the United offices throughout the country. Arguably, States Visitor and Immigrant Status offices should reflect the particular needs Indicator Technology (US-VISIT). of their locale, but the discrepancy in staffing levels and ratios, officer grade, 7. Workforce Development: The DHS and employee roles and responsibilities operates and maintains an intensive creates anomalies in mission course of instruction for new officers and accomplishment and unfair advantages recruits. The academies provide 11-, 16-, and disadvantages to those competing for and 21-week courses designed to provide like jobs. officers with the core competencies needed to begin their work at their duty4. National Fleet System: Lacking a National location. The officers do, however, Transportation Strategy and efficient require a period of on-the-job training coordination, DRO spends millions of before they are fully effective in their dollars annually for air and ground assigned duties. Unfortunately, DRO transportation in order to manage the does not have an advanced or detention population and effect timely professional development program of removals. Likewise, as staffing levels in equal caliber. Officers do not have a other programs have increased, the DRO “career advancement” template to follow program has experienced an increased and, due to the operational tempo and workload without the necessary increase shortfall in human resources, officers are in vehicles. Consequently, the lack of often not relieved from duty to attend adequate types and numbers of vehicles professional development training. This, and a central movement control center along with several other factors, has had handicaps DRO in carrying out its mission a detrimental affect on retention rates as effectively and efficiently as it could. within the DRO officer corps. The low retention rate is further exacerbated, as5. Alternatives to Detention: The DRO the hiring and training process is detained population has grown in both extremely slow and cumbersome; officers numbers and diversity in recent years, yet are not trained and put in place before detention methods needed to satisfy existing staff is burnt out and eventually unique demands have not kept pace. For leaves the program. example, family groups are often held in hotels because there are not adequate 8. Institutional Removal Program (IRP): The facilities available to house both adults IRP, as currently executed, is inefficient and juveniles together. and less effective than it should be because the responsibility for operational6. DHS Enforcement Initiatives: The DHS is execution lies with the Investigations currently implementing and making plans program (identifying and processing to implement several enforcement incarcerated aliens) and the responsibility initiatives and programs that, when fully for results lies with the Detention and operational, will generate increased Removal program (removing criminal demands on DRO. Unfortunately, these aliens). Even at authorized staffing increased demands do not come with levels, the Government Accounting Office increased DRO resources. DRO cannot (GAO) and the Office of the Inspector fully support these programs, and they General have clearly cited a workforce will not be as effective as intended, shortfall to handle the significant without a commensurate increase in workload. As the War on Terror personnel and infrastructure. These continues to be waged, the Special Agents who have been supporting theSituational Assessment 2-5
  15. 15. Bureau of Immigration and Customs EnforcementOffice of Detention and Removal IRP are being pulled from the program to population of over 65% criminal, some work other high profile cases related to requiring a maximum-security setting. As “homeland security”. These positions and an agency, we have had a relatively short the IRP work left unaccomplished by period of time and little funding to keep up these special agents are not being with the growth and the special needs of backfilled, increasing the risk of releasing this disparate population. criminal aliens into the community. 11. September 11 Unfunded Mandates:9. Inadequate Information Technology to Since September 11, 2001, policy and Support DRO Operations: The activity has subjected DRO to a series of Deportable Alien Control System (DACS) unfunded mandates, taking resources no longer responds to the demands away from the accomplishment of other placed on it in today’s operational critical operations. Throughout the past environment. Outdated hardware and year, the Administration, the Department software, coupled with questionable data of Justice and Congress have initiated quality, render the system difficult and several programs in response to gaps inefficient to use. The integrity of the revealed by September 11 findings. system has been maintained by years of These have forced the program into a software patchwork, additions and reactive role, thereby redirecting our enhancements. proactive initiatives and planning. Programs such as the Alien Absconder10. Aging and Inadequate Infrastructure for Initiative and the Custody Review Unit, Detention Operations: Historically, while extremely beneficial in securing funding for repair, construction, and America’s borders, have not been alteration has not been adequate to resourced to the extent that optimum support our Service Processing Centers benefit can be realized. (SPCs). Funding for construction projects has routinely been reduced and/or 12. Lack of Immigration Enforcement Mission eliminated over the last several years. Area Plan: As the title of this plan This has made it extremely difficult to implies DRO provides the final step in support our detention operation and to the immigration enforcement process. keep up with the technological / design / The Department does not yet have, in procedural advancements the "prison" place, a tool, method or process to industry affords. While most of our ensure that strategies, budgets and facilities have portions of new operations planned for and executed construction, our facilities generally need significant physical improvements. This is by other enforcement programs not to say that any of our facilities are in consider the impact to DRO and the "poor condition." Our staff goes to great ensuing operational implications and lengths to ensure the health, safety and resource requirements. welfare of the staff, detainees, and general public. Facilities like Florence, El 13. Non-detained docket: The Detention and Centro, El Paso, and Port Isabel, when Removal program does not have a originally constructed years ago, were program to effectively manage its non- designed to hold relatively small non- detained docket. The appearance rate of criminal populations for short periods of individuals released from ICE custody is time. Over the last 5 years, our estimated to be 15 percent and the population has increased by 136%, and program does not have the resources to the classification of our population has identify, locate, apprehend and process gone from primarily non-criminal to a the remaining 85%.2-6 Situational Assessment
  16. 16. ENDGAME D e t e n t i o n a n d R e mo v a l S t r a t e g i c P l a n 2 0 0 3 – 2 0 1 2Opportunities aliens continue to find ways to enter the country illegally. The detention andDRO is currently working on several short- removal mission is manpower intensiveand long-term initiatives that are proving to be and very few functions can be automated.excellent opportunities to continue its Therefore, the success of the missionprogress in implementing this plan and relies heavily on available humanachieving its vision and mission. The proper resources and their capabilities. DRO willuse of information technology is critical to work diligently to close the gap betweenprogram success and DRO is working with its workforce and the demands forthe Office of Information Resource services. To ensure that the existingManagement (OIRM) to replace the workforce is productive, efficient andDeportable Alien Control System with the effective, DRO will implement strategiesRemoval Module (EREM) of the Enforcement to improve training programs, createCase Tracking System (ENFORCE). The professional development programs, andEREM will draw from many more databases build the infrastructure (informationand sources than DACS. It is expected that technology, transportation, facilities)EREM will facilitate the automation and essential to facilitate the detention andsubsequent improvement of many DRO removal process.efforts and procedures. Other initiativesinclude the implementation of the National 2. Institutional Removal Program (IRP): TheFugitive Operations Plan, the reorganization IRP, as currently executed, is inefficientof District DRO operations who control and less effective than it should beService Processing Centers (SPCs), because the responsibility for operationalunilateral management of the Institutional execution lies with the InvestigationsRemoval Program (IRP), revision of the Field program (identifying and processingOfficer’s Manual, an initiative to reengineer incarcerated aliens) and the responsibilitythe bond management program, development for results lies with the Detention andof a central ticketing program to coordinate all Removal program (remove criminalescort missions, and implementation of aliens). To reduce the inefficiencies invarious electronic monitoring programs. All of the program, in September 2000 thethese initiatives are layers deep and include Office of Field Operations mandated thethe creation of training and professional transition of the IRP from Investigations todevelopment programs, increased staffing Detention and Removal. Consolidation oflevels and greater stakeholder cooperation the IRP will allow senior management toand involvement. focus on and resolve the program deficiencies identified in the 1997 andIn addition to these initiatives, other strategies 1998 GAO reports. These efficiencies willwithin this plan, current events, political will, permit more aliens to be processed whileand public interest provide the program with incarcerated, thereby reducing thean array of opportunities from which it cannot potential demand for detention space.turn away. DRO will exploit every opportunity Overall, improved effectiveness of thepresented in order to build the capacity to IRP will increase the public safety, reduceremove all removable aliens. the potential for future crimes, and enhance the welfare of our society. DRO is working with the Investigations1. Human Resource Shortfall: The workload Program to either identify resources to be per case officer is daunting and the pool transferred with the IRP or to acquire of removable aliens continues to grow as additional resources to merge and other immigration enforcement divisions execute the program. become more effective, apprehending greater numbers of individuals, and asSituational Assessment 2-7
  17. 17. Bureau of Immigration and Customs EnforcementOffice of Detention and Removal3. DEO/IEA Reclassification: Creation of indicated that there is a backlog of cases the Immigration Enforcement Agent (IEA), with unexecuted orders of removal. The with a journeyman-level at GS-9, will NFOP will target this backlog by make this entry-level position a true facilitating the apprehension and foundation for an officer’s career subsequent removal of those fugitives. development. This new career position The goal over the next ten years will be to will strengthen the overall professionalism eliminate this backlog and to ensure that of the DRO workforce and will afford our efforts in terms of apprehension and those who are interested with the removal of fugitive cases equals the opportunity to apply for any of the senior number of new cases falling into this officer positions, thereby continuing their category. While woefully inadequate to career growth within the Division and achieve the goal, the creation of 40 Department. Establishment of this positions dedicated to the NFOP is a position will create a corps of nearly 2,400 promising start. IEAs with arrest authority and authority to issue detainers. This increased 5. Removal Module (EREM) of the workforce will create a pool of officers that ENFORCE: ENFORCE Removal Module can effectively execute the IRP. If this (EREM) is a module of the Enforcement corps of officers works the IRP 25% of Case Tracking System (ENFORCE) that their time (as is expected to meet the will support detention and removal requirements of the new classification and operations. As such, it is integrated with grade), we will have, in effect, almost 600 applications that support other full time equivalent positions (FTE) enforcement operations, e.g. dedicated to the IRP, which is nearly apprehensions, investigations and double the current IEA FTE. By doubling intelligence. ENFORCE will support all the effective IRP workforce, we can enforcement processes and make expect a significant increase in criminal enforcement data available at all levels of removals as more incarcerated DHS nationwide. ENFORCE will capture removable aliens are processed and data on individuals, entities, and deported. This increased effectiveness investigative cases, and support case will also reduce the number of persons processing from apprehension through placed in ICE detention, thus reducing final completion. ENFORCE will be used avoidable detention costs. to support field personnel by producing required forms and reports. Finally,4. National Fugitive Operations Program ENFORCE will provide intelligence and (NFOP)/Absconder Apprehension management information to support Initiative (AAI): In response to the decision makers. EREM goals are to: terrorist attacks of September 11, 2001, Congress passed legislation providing • Ensure timely, accurate and funding and positions for the role of law complete information; enforcement agencies in the war against • Obviate redundant data entry across terrorism. As part of that legislation, DRO multiple systems; was authorized an enhancement of 40 • Capture information as a part of the positions solely for the purpose of operational workflow; apprehending fugitive aliens. Seven • Produce forms and statistics, and districts were assigned these positions to pass information to partners, create a Fugitive Operations Section for customers and stakeholders as a by- the purpose of implementing the NFOP. product of information capture; The Absconder Apprehension Initiative announced in the Deputy Attorney General’s directive of January 25, 2002,2-8 Situational Assessment
  18. 18. ENDGAME D e t e n t i o n a n d R e mo v a l S t r a t e g i c P l a n 2 0 0 3 – 2 0 1 2 • Make structured decisions on the Enhancements to the DRO removals basis of information on hand and program will directly benefit DHS business rules; and enforcement initiatives (such as the • Provide support for optimal decision- Student Exchange and Visitor Program making. (SEVP), the United States Visitor and Immigrant Status Indicator Technology6. DRO Reorganization: In May 2003, the (US-VISIT)) by completing the final step Assistant Secretary for ICE announced an in the enforcement process. Only by interim organization structure for the apprehending and removing those bureau. Within this structure DRO field individuals who choose to disregard elements would be geographically immigration law, can the overall program realigned to with that of the investigations be successful. program and re-subordinated to report directly to HQ DRO, Field Operations. 8. National Fleet System: A comprehensive This reorganization will: National Transportation Plan is necessary in order to maximize the use of DRO’s • Create a direct line of authority limited air and ground resources while over all DRO elements; ensuring efficiency. A contract study will • Develop and practice consistent consider all transportation means, current operations nationwide; routes, and location of existing facilities • Develop and apply uniform and potential sites to maximize a forward- detention standards; thinking transportation plan. Meanwhile, • Optimize nationwide utilization of an ongoing replacement and bed space and transportation enhancement of the DRO vehicle fleet resources; and program that provides for adequate types • Mirror and fully support the ICE and numbers of vehicles is instrumental in enforcement field structure. carrying out the ICE and DRO missions. Based on the needs of DRO, an adequate The Director, DRO with direct control over annual fleet budget should be dedicated field operations and the program’s to ensure that staff has adequate detention facilities will be in the best numbers and appropriate types of position to influence real changes and the vehicles. regulation needed to address and resolve historical issues regarding the treatment 9. Soft Detention: Conducting an initiative to of population, facility and infrastructure provide “softer” (staff secure) detention conditions, personnel training, and much- settings for special populations, such as needed standardization of policy and asylum seekers and family groups, will procedures. allow ICE to fulfill the goal of providing appropriate detention conditions.7. Increased Removals: Moving toward a 100% rate of removal for all removable 10. Alternative Methods to Detention: With aliens allows ICE to provide the level of limited bed space, there is a need to find immigration enforcement necessary to alternative detention methods for those keep America secure. Without this final aliens who do not pose a threat to society step in the process, apprehensions made and who are not a serious flight risk. by other DHS programs (such as the There is also a need to ensure that aliens Border Patrol, Inspections, and released from secure custody comply with Investigations) will not provide the their conditions of release and appear in deterrent or the enforcement tool court when required. In recent years, necessary to secure America’s borders. DRO has developed and implementedSituational Assessment 2-9
  19. 19. Bureau of Immigration and Customs EnforcementOffice of Detention and Removal several successful non-traditional lawmakers, immigration organizations detention methods to accomplish these and the public understand the objectives. Current alternatives to uniqueness of administrative (DRO) detention include housing aliens, detention vs. the punitive detention appropriately, in halfway houses and administered by the BOP and other family shelters. In Berks County, PA, custodial agencies. DRO will continue DRO has a detention facility designed to to execute its Detention Management detain family groups and provide for their Control Plan and market its success in unique needs. DRO will continue its that area with respect to maintaining research into available technology and safe, secure, and humane detention methods in order to create and provide facilities. safe, secure and humane alternatives to detention. Electronic monitoring will also 12. Foreign Governments: Another critical allow for the management of released external factor that influences DRO individuals, thus making bed space operations is foreign government policy available for those aliens posing greater on repatriation and issuance of travel risks of flight or threats to public safety. documents. Travel document and With these types of options available, repatriation policies vary from country to DRO can comply with the law while country and within the same country, having the flexibility to manage special depending on the government and cases in an appropriate manner. Through political environment. Countries may these and other non-traditional detention refuse return or repatriation based on methods, DRO has set a target to factors such as criminal background, increase the rate of appearance by ten bloodline, place of birth and, at times, as points each year until it reaches 100 a political statement to the United States. percent appearance. These policies have created a population of “long-term” detainees that raises11. Partnerships: detention costs, reduces throughput, and limits bed availability. Through increased a) Executive Office of Immigration cooperation with the Department of State, Review (EOIR): DRO will work to the DHS Office of International Affairs, create greater cooperation and and foreign governments, DRO will work partnership with the EOIR to improve to remove these barriers and to establish the effectiveness of the removal and develop protocols and procedures process. Through combined efforts to that will facilitate the proper and timely share information in an electronic and removal of unauthorized aliens. real-time environment, we can create a seamless process expediting the Threats transfer of an alien from the courts to DRO for immediate removal, if that Among the many fiscal and political alien has been issued a final order of challenges DRO faces daily, the SPWG removal. identified a set of challenges that must be overcome to accomplish its mission. These b) Non-government organizations are challenges that will only be resolved (NGO)/Community Based through the implementation and execution of Organizations (CBO): DRO will a series of vigorous and directed strategies. expand on its community outreach These challenges will not be resolved in the programs and work with NGOs and near term; they are issues that have plagued CBOs to educate the public on the the detention and removal program for many purpose and mission of DRO years and will take several years of detention. It is important that2-10 Situational Assessment
  20. 20. ENDGAME D e t e n t i o n a n d R e mo v a l S t r a t e g i c P l a n 2 0 0 3 – 2 0 1 2partnering, cooperation and political support unaccompanied juveniles of eitherto overcome. These strategic challenges are: gender, or families. Even the detention by DRO of those with criminal convictions1. Growth in Disparity in Detention (“criminal aliens”) is strictly administrative Workload: Growth in both numbers and in nature, not punitive. This necessitates diversity in the detention population has different environments, standards, and created demands for varied and population management within DRO appropriate facilities. In the early 1990s, facilities than that of other federal, state, the majority of ICE detainees were county, or local correctional facilities. housed in ICE Service Processing DRO detainees have unknown lengths of Centers (SPCs), private contract facilities, stay in custody because they are or Bureau of Prisons (BOP) institutions. dependant on the speed of immigration Today, the majority of detainees are court hearings, appeal review or removal housed in county and local institutions processing. through inter-governmental service agreements (IGSAs). Because DRO • DRO must house adults, juveniles, does not own these facilities, they have and families. The separate detention less control over mixing criminal vs. non- requirements for juveniles and criminal populations and ensuring families can be costly. Juvenile compliance with other jail standards that detention, in particular, requires “sight affect detention. Further exacerbating the and sound” separation from adults, as problem has been unprecedented slow well as education, recreation, and growth in the detention officer corps over counseling. the last 10 years, which is relatively • The co-mingling of criminal and non- disparate to the growth of the detention criminal detainees is a real concern. population. For example, the rate of The majority of detainees have detainees per officer grew from 6.7 to 9.0 criminal histories and separating them from 1995 to 1999. This shortfall of DRO from non-criminals is important. The officers slows case management and DRO classification system was set up removals processes, increases bed days to identify and place individuals and further heightens the probability of accordingly. multiple types of significant incidents that • Cultural and political rivalries can lead could place detainees, employees and to violence between nationalities. the public in danger. Separating detainees by nationality is often required to keep problems from2. Unique Population: DRO detainees are arising. all held for administrative, not criminal • DRO has a large number of detainees law, violations. They are awaiting the with extended lengths of stay. They adjudication of their immigration status can be disruptive and are a special cases, and are not being held subject to a security concern in DRO detention criminal conviction. This detained because they have no finite detention population is inherently unique, requiring period. specialized knowledge and processes to safely and humanely hold in appropriate facilities and meet all operational 3. High Detention Throughput and Turnover: demands. The DRO detained population DRO detention facilities have a much includes illegal economic migrants, aliens higher throughput than other DOJ who have committed criminal acts, detention providers. Because aliens are asylum-seekers (required to be detained being held to facilitate their case by law) or potential terrorists. These processing and potential removal, the persons can be male, female, lengths of stay in DRO detention varySituational Assessment 2-11
  21. 21. Bureau of Immigration and Customs EnforcementOffice of Detention and Removal widely. They are driven by a number of are relatively short-term in nature, they variables including the court’s efficiency in can have a drastic and enduring impact case review and adjudication, the alien’s on available detention space. ability to obtain travel documents and so forth. This creates a fast-paced detention 6. Alien Population: As of the year 2000, the environment with high throughput. The Immigration and Naturalization Service, in special nature of the DRO detained conjunction with the Census Bureau, population requires unique detention estimated the size of the nation’s illegal procedures and the manpower to resident population at between eight and process, house, and transport aliens eleven million residents (in the country for almost continually. DRO’S detention at least a year). The INS estimated that management standards go well beyond the illegal immigrant population was rising the normal "health and humane a net amount of 275,000 per year while treatment" issues addressed in BOP and the Census Bureau estimated the USMS facilities using the core DOJ increase to be 225,000 per year. The INS standards. In order to achieve our goals, estimated in 1998 that about two-fifths of DRO follows access standards (access to the resident illegal alien population lawyers, phones, consulates, rights entered legally and then lost their legal presentations, law libraries) that are all status by overstaying their authorized visit geared to facilitate a rapid and fair and/or by illegally taking jobs. Ultimately, processing of aliens cases. this constant unaccounted flow into the country adds to the pool of removable4. Facilities: The demand for DRO detention aliens. has grown much faster than available federal bed space, causing an increased 7. U.S. Policy: As mentioned at the reliance on local jails to house detainees. beginning of this chapter, DRO operations Reliance on local jails reduces the have been and continue to be impacted number of detainees who are under direct by changes in U.S. immigration and DRO supervision and control. Utilizing a immigration enforcement policy. variety of small local jails increases cost Unfortunately, more often than not, these and transportation needs, and places changes are directed in the form of DRO in direct competition for scarce bed unfunded mandates that force the space with other federal and local entities. program to redirect resources from daily This factor is particularly critical because operations to current crises, special DRO has more stringent jail standards projects and immediate needs. DRO will than other entities, which limits the continue to serve the President, the number of jails that it can use. Congress and the American people; however, our mission – “to remove all5. Immigration Emergencies: Detention can removable aliens” – grows continually be affected by unforeseen events more difficult without a commensurate occurring in other countries, such as increase in staff, funding, and natural disasters (i.e., earthquakes, infrastructure. hurricanes, etc.), war, and economic/political crises. These events can produce a “shock” to DRO detention. Such shocks can produce large numbers of illegal aliens, additional detention needs, and the inability to remove aliens from the U.S. back to countries in crisis. Though these immigration emergencies2-12 Situational Assessment
  22. 22. ENDGAME D e t e n t i o n a n d R e mo v a l S t r a t e g i c P l a n 2 0 0 3 – 2 0 1 2Chapter 3. Goals and Objectives 4. Ensure functions not directly related to homeland security are not diminished or neglected; andGoal Relationships 5. Monitor and sever connections between illegal drug trafficking andDRO developed five strategic goals to guide terrorism; and conduct other effortsthe program’s operational efforts and to interdict illegal drug trafficking.resource requirements towardsaccomplishing its mission and meeting its B. DHS Critical Mission Areasultimate objective: remove all removablealiens. Three operational goals are directly 1. Intelligence and warning;aligned with and support the ICE mission 2. Border and transportationand the second of its five (DRAFT) strategic securitygoals and can be further aligned with • Create smart bordersstrategic objectives identified in the National • Reform immigration services.Strategy for Homeland Security. The 3. Domestic counter-terrorism;remaining two goals support ICE’s fourth • Improve intergovernmental lawstrategic goal as well as administrative enforcement coordination.elements within the President’s • Facilitate apprehension ofManagement Agenda. These last two are potential terrorists.essential to building the infrastructure and 4. Protecting critical infrastructure;capacity to carry out the DRO mission. 5. Defending against catastrophic terrorism; andHomeland Security to DRO 6. Emergency preparedness and response.The purpose of the National Strategy forHomeland Security “is to mobilize and The critical mission area, Border andorganize our Nation to secure the U.S. Transportation Security, envisions thathomeland from terrorist attacks.” 2 The “federal law enforcement agencies willoriginal strategy, dated July 2002, identified take swift action against those who….three strategic objectives for meeting this or violate terms of entry and posepurpose that were later supplemented with threats to the American people.” 3another two during the FY2005-2009 budget Specifically stated within the initiative todevelopment cycle. The plan then aligns its create smart borders, “the Departmentfunctions essential to achieving these would enter into national lawobjectives into six critical mission areas. enforcement databases the names of high-risk aliens who remain in theA. DHS Strategic Objectives United States longer than authorized and, when warranted, deport illegal 1. Prevent terrorist attacks within aliens.” 4 This statement is the the United States; Strategy’s direct link to DRO’s mission: 2. Reduce America’s vulnerability to “Remove all removable aliens.” terrorism; 3. Minimize the damage and recover A second element in this mission area from attacks that do occur; is to reform immigration services, and DRO has already completed a step in this process. In May 2003, the Assistant Secretary for ICE announced2 National Strategy for Homeland Security, Office of 3Homeland Security, Executive Office of the President; Ibid, pg 22 4(July 2002), p. vii. Ibid, pg 23Goals and Objectives 3-1

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