Border Patrol Strategic Plan
1994 and Beyond

National Strategy

Prepared by the
U.S. Border Patrol
. July, 1994

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 •.
Border Patrol Strategic Plan
1994 and Beyond
Preface
Why the StraJegy?
The 1994-1995 immigration'·initiatives included a Border Patrol enhancement as an
integral part of the Administration's commitment to reform the immigration system. The
Commissioner, Immigration and Naturalization Service, recognized the need to address the
immigration challenges of asylum, technology, criminal aliens, naturalization, and control of the
border in an efficient, comprehensive, coordinated manner. In that context, the Border Patrol
has developed a systematic approach to strengthen control of the border with goals and .measures
of success based on the Administration's and INS' immigration initiatives.
~

The Border Patrol adopted a strategic planning system that permits planners to prioritize
(_Cft.eir efforts over tinfui? The strategic planning.ptocess challenges the organization to focus on
the task at hand, to prioritize its efforts by geographic area, to incorporate long term goals, and,
most importantly, to define and meaiure success.
In its strategic planning process, the Border Patrol accepted that absolute sealing of the
border is unrealistic. Through the strategic planning process, however, the planners found
legitimate reason to believe that the border can be brought under control.

Where does the Stralegy Take Us?
A planned strategic approach to enforcing immigration laws a'!ong our nation's borders
integrates the Border Patrol's vision for the future with a systematic means to achieve that
vision. The process prioritizes the use of the organization's resources as it travels along a well
defined path leading to effective border control. The strategic planning process sets the entire
organization in motion concentrating on the task at hand. The process establishes long-term
goals and instills a stronger sense of pride and professionalism. It sharpens the Border Patrol
focus, improves public image, employee morale, and facilitates justification for allocation of
resources. Our strategic approach strengthen~ control of the border, restricting the passage of
illegal traffic and encouraging legal entry as the preferred method to enter the United States.

Vision
1

The planners consisted of planning experts from the Department of Defense Center for
Low Intensity Conflict (CLIC) and Chief Patrol Agents from all regions and selected
··
eadquarters staff.
·

1

 The keystone for strategic planning is a vision offering a clear sense of direction for the
future. The strategic planning process provided Border Patrol leadership the opportunity to
define their vision for the future. Once established, planners concentrated on what direction
should be taken to arrive at that vision. Planners found that the organization's traditional goal
of controlling the border between the ports of entry remained valid. The importl,nce of this
traditional task in the face of massive illegal entry of persons and contraband into the United
States has increas-ed. In protecting our borders against unlawful activities, we improve national
security and protect the immigration heritage that helped to form the nation's institutions. The
Border Patrol's success in achieving control of the border will restore confidence in the integrity
of the border and the organizations ~_Iltrusted with its management.
The Vision: The U.S. Border Patrol will control the borders of the United States
between the ports of entry, restoril!g our Nation's confidence in the integrity of the border.
A well-managed border will enhance national security ;nd safeguard our immigration
heritage.

Environment
The border environment is diverse. Mountains, deserts, lakes, rivers and valleys form
natural barriers to passage. Temperatures ranging from sub-zero along the northern border to
the searing heat of the southern border effect illegal entry traffic as well as enforcement efforts.
Illegal entrants crossing through remote, uninhabited expanses of land and sea along the border
can find themselves in mortal danger.
The demographic profile of the border area has a significant influence on the border
environment. Population centers straddling the international boundary have developed all along
the southwest land border. These "twin cities," sometimes separated by little more than a line
in the dirt, are the areas of greatest risk for illegal entry. These urban areas offer accessibility
to i:oads, rail lines, airports and bus routes to the interior of the country.

Enforcement Challenge2
In FY 93, the Border Patrol apprehended 1,263,490 aliens nationwide of which 97
percent were Mexican nationals, mostly from the interior of Mexico. Typically, an alien
arrested by the Border Patrol is under the age of 25. Twenty percent are women and children
who are attempting to reach thdr husbands and\or fathers who are already in the United States.
Most of the aliens encountered are poor, are looking for work and have incurred transport and
smugglers fees. Those who are not Mexicans are from Central America and numerous other
countries from around the world. In FY -93, 40,754 Other Than Mexicans (OTM'S) aliens were

2

Information provided by the INS Intelligence Program contributed to this section.
2

 smugglers fees. Those who are not Mexicans are from Central America and numerous other
countries from around the world. In FY-93, 40,754 Other Than Mexicans (OTM'S) aliens were
apprehended attempting to enter the United States. A majority of apprehended aliens are
destined for the States of California, New York, Florida, Texas, and Illinois.
Mexico's government institutions and economy are under significant stress from its lower
socio-economic sfrata. Some of the major causes for increasing instances of social unrest and
illegal immigration include:
o

Rapid population grow_\ll in Mexico's lower socio-economic groups

o

Great disparity in the standard of living and chances for upward mobility in
Mexico versus the United States

o

Significant population of unemployed and underemployed in Mexico

The passage of The North American Free Trade Agreement (NAFTA) should reduce
illegal immigration as the Mexican economy improves. The NAFTA agreement lifts commercial
barriers among its members: the United States, Mexico and Canada. In the spirit of NAFTA,
the United States and Mexico are cooperating in efforts to resolve the issues of illegal migration
of Mexican workers into the United States, border environmental issues, narcotics and dangerous
drug traffic into the United States.
The Governments of Mexico and the United States have been intensifying cooperative
efforts to jointly resolve enforcement concerns along both sides of the border. In addition to the
passage of NAFTA, other initiatives include jointly naming areas on both sides to reduce
response times for law enforcement officials and focusing on reduction of border violence. INS
will continue to seek stronger cooperative ties between the two governments to facilitate legal
im"migration while strengthening control of the U.S. border.
INS' immigration enforcement role is more complex and challenging than at any time in
its history. INS officers at the border, at the ports-of-entry, and in the interior are uncovering
increasingly sophisticated methods used by aliens and smugglers of aliens to enter the United
States and to avoid detection and apprehension .. Document fraud is widespread. One of the
most recent concerns is a new trend in which a rising number of Mexican citizens attempt to
enter illegally and secure work authorization in the United States by requesting asylum. Also,
a pattern of Mexicans posing as Guatemalans claiming political asylum has developed. This
method of obtaining Guatemalan birth certificates is occurring along the Southern Border and
Gulf coast states. Illegal entrants from Mexico claim Guatemalan citizenship in the belief that
the asylum claims of Guatemalans are processed faster and are more like! y to be approved than
claims from citizens of Mexico.
Another area of concern involves the Nationals from the Peoples Republic of China
(PRC) who have become the third largest group of Other Than Mexicans (OTMsfapprehended
3

 along the Southern Border. Once PRC aliens arrive in Latin America, often by boat, smugglers
easily lead them by land through Mexico into the United States.
Similarly, citizens of Cuba are entering Mexico to take advantage of Mexico's diplomatic
mechanisms to gain entry into the United States. Many Cubans are also being s~uggled to
Mona Island, an uninhabited island between the Dominican Republic and Puerto Rico. The
Cuban immigrantS are dropped off by the smugglers who know that the Border Patrol will rescue
them. Once processed they are released to continue their exodus from Cuba to the Miami,
Florida area. Many illegal Haitians are doing the same as the Cubans and requesting political
asylum.
The forces that cause legal and illegal migration are powerful. Without positive, long
term changes in the root causes that prompt illegal migration such as improvements in the
Mexican economy, NAFTA, effective employer sanctions restrictions, or closing the loopholes
that allow illegal aliens to gain equities in the United States, the "push" and "pull" factors will
remain strong.

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'CQ_ose attempting to illegally enter the United Stat~ in large numbers do so in part
ecause of the weak controls we have exercised .over the southwest land border in the recent
ast. Strengthening border control is a critical component of improved
bOrder management and will provide the U.S. Government the opportunity to deal with powerful
global immigration pressures in a reasoned, systematic manner.
INS can meet the challenge of controlling illegal immigration to the United States through
a coordinated enforcement effort. Controlling the border must be supported with such efforts
as effective employer sanctions, back-up enforcement in the interior of the United States,
reducing document fraud, providing detention and deportation for eligible illegal aliens and
expeditious removal of criminal aliens.

Assumptions
In developing the 1994 Border Patrol Strategic Plan, Border Patrol planners relied on a
number of key assumptions:
o

Alien apprehensions will decrease as Border Patrol mcreases control of the
border.

o

Influx will adjust to U.S. Border Patrol changing tactics.

o

Violence will increase as effects of strategy are felt.

o

Rapid increase in personnel/equipment (resources) will reduce time reqnired to
achieve control of the border

4

 V~id

o

measures of effectiveness of border control mechanisms/systems are needed
to adjust enforcement efforts and reach the strategy objectives.

o

A strong interior enforcement posture works well for border control.

o

The INS must maintain a multi-program perspective that includes but is not
limited to strengthening control of the southwest border.

0

Improvements in technology will make border control strategies more effective
and less resource inte.I}_sive.

0

Control of the border will reduce INS cost and produce more efficiency.

0

[j ~uccess _of the strategy depends on continued Congressional support throughout
Its duratiOn.

Mission
As part of the strategy building process, Border Patrol leadership reviewed their
traditional mission statement in the context of the Administration's immigration initiatives, the
INS goals, and the "vision" for the future. The duties performed by Border Patrol agents have
expanded and evolved over the past 70 years. It became clear, however, that the basic concepts
of deterring, detecting and app{ehending illegal entrants into the United States specified in the
immigration statUtes continued to be the basis of the Border Patrol's mission. Many of the tasks
are spe£ified by statutes. Many more are implied tasks inherent in the accomplishment of the
mission. Implied tasks include, but are not limited to: processing and removing illegal entrants,
pursuing employer sanctions cases, seizing vehicles, facilitating prosecutions, gathering
intelligence, maintaining public image, conducting liaison, being prepared for emergency
responses, obtaining and providing training, and managing resources.

With the above in mind, the current mission of the Border Patrol is best described as:
The mission of the United States Border Patrol is to secure and protect the external
boundaries of the United States, preventing illegal entry and detecting, interdicting
and apprehending undocumented entrants, smugglers, contraband, and violators of
other laws.
The Border Patrol has significant strengths inherent in its organizational structure.
Border Patrol planners have capitalized on those strengths in plotting the course of the strategy.
The Border Patrol has maintained a continuous uniformed presence on the border since
1924. Even today, the Border Patrol is the only uniformed Federal body with_ a significant
patrol function between the ports-of-entry. No other institution has amassed a more
5

 comprehensive knowledge of the border environment. Strategic planners relied on this
knowledge in generating the assumptions and predictions incorporated into the strategy.
Virtually all State, local and Federal agencies with a mission that interacts with the
immediate border environment have at least a local liaison mechanism with the Borc!er Patrol.
The courses of action developed at the national and Sector levels rely on the Border Patrol's
liaison network to garner the support the organization needs to communicate and coordinate
strategic actions.
Individually and collectivelyJ_ Border Patrol agents identify very strongly with their
organization. The Border Patrol's chain of command is one of the strongest and most direct in
uniformed Federal law enforcement. T~e organization views itself internally as the best in the
world at their business. The Border Patrol employs specialized recruitment and stringent
training standards, including Spanish language competency. All agents are originally assigned
to the southern border, and, as a consequence, build strong ties based on commonality of
experience and training. The Border Patrol's strategy relies heavily on the organization's
"esprit-de-cows" to implement the course of actions described in the strategy, many of which
are significant and challenging changes in the way Sector operations have been conducted.

The Border Patrol is aware that there are significant challenges to be met in the strategic
course they have set. The volume of attempted illegal entries is very large by any estimate.
Illegal entry trends r!!<lct quickly to border control initiatives. The public and private sector at
the local level expect the Border Patrol to take immediate and decisive action to counter
il}£!"eases in illegal entry traffic. Local expectations can run contrary to the milestones set out
in the national strategy. The Border Patrol has limitations on its ability to quickly shift
resources. INS' detention and removal capabilities are already heavily committed to the criminal
<!lien and Chinese smuggling initiatives. Fluctuating single-year funding restricts the ability of
planners to design effective multi-year strategies.

Concept
The Border Patrol will improve control of the border by implementing a strategy of
"prevention through deterrence." The Border Patrol will achieve the goals of its strategy by
bringing a decisive number of enforcement resources to bear in each major entry corridor. The
Border Patrol will increase the number of agents on the line and make effective use of
technology, raising the risk of apprehension high enough to be an effective deterrent. Because
the deterrent effect of apprehensions does not become effective in stopping the flow until
a prehensions approach 100 percent of those attempting entry, the strategic objective is to
maximize e apprehension rate. £1-lthough a 100 percent apprehension rate is an unrealistic
~we believe we can ach1eve a rate of apprehensions sufficiently high to @.ise the risk of
apprehension to the point that many will consider it futile to continue to attempt jllegai entry.

6

 El Paso's enforcement strategy has been successful in El Paso Station's downtown area.
The national strategy builds on El Paso's success through an infusion of permanent resources
designed to stabilize their enforcement initiative and extend it throughout the Sector. Likewise,
in the San Diego Sector, an infusion of resources is underway, and preliminary indications are
that the Sector has begun to achieve a similar level of control.
In FY 1994 and 1995, the Patrol will add up to 1,010 additional agents on the line along
the Southwest border. This will be accomplished through a combination of new agent hires, and
redirecting agents freed up as a result of increased automation and support.
The prediction is that with traditional entry and smuggling routes disrupted, illegal traffic
will be deterred, or forced over more hostile terrain, l~s suited for crossing and more suited
for enforcement. Mobility of enforcement resources will be essential in tracking illegal traffic
to prevent local "hot spots" from becoming long-term problem areas.
In order to identify the precise quantity and mix of agents, support personnel and
technology needed to "control" the border, our current measures of effectiveness must be made
more reliable. The flow of illegal traffic must be measured and relayed to the implementors of
the strategy.
Currently, we know how many arrests we are making, but we do not have a reliable
of how many are eluding us and how many attempts they must make before
succ:eedrng in entenng Despite this weakness, based on our years of experience and knowledge
of border dynamics, we have developed a strategy we believe will work to greatly reduce the
flow of illegal traffic. Previously, resource allocation strategies have "sprinkled" resources to
all Southwest border locations. However, the magnitude of the increase in any given sector has
not provided the decisive concentration of resources necessary to increase the "cost" to illegal
entrants to the point of deterring repeated attempts. As we reduce the rate of recidivism in the
ipegai entering population, the number of aliens attempting illegal entry will decreast;. Marginal
increases in resources will not necessarily ach1eve a proportionate reduction in illegally entering
traffic. These facts compelled Border Patrol planners to implement a new strategic approach
to allocating border enforcement resources.
as~essment

We will establish baseline staffing levels for each Sector and ensure no Sector falls below
critical operating levels as new resources are directed to each phase. Baseline staffing levels will
be maintained by assigning attrition resources or by using a portion of new resources, if
available, in order to maintain the baseline level for all sectors. Sectors need to be protected
from becoming new "hot spots" that are out of control. We must maintain -minimal staffing
levels as established and monitor them throughout the strategy implementation.

Courses of Action
To create a deterrent and reduce the illegal entry recidivism rate, we have developed a
course of action concentrating a decisive level of resources, in phases (see attached ch<lJt, Border
Patrol Strategic Plan 1994 and Beyond), to the areas of greatest illegal activity. The main effort
7

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j) :)/;

 of all phases requires support by all sectors, concentration of resources on the line, maximum
utilization of lighting, fencing, and other barriers, redirection of agents not performing
enforcement duties back to line activities, and realignment of resources as entries shift.
Strategic planners identified and mapped out the locations of heaviest illegal immigration
activity. The are<!S of heaviest illegal entry were identified as "avenues of approach" (AA) {see
attached map, TI!egal Entry Corridors}. Planners listed the AA in order beginning with the
avenue of approach with the highest illegal entry flow (AAl) through the area with the least
traffic (AA12).
AA 1 - Southern California
AA2 - West Texas and New Mexico
AA3 - South and South Central Texas
AA4- Arizona
AA5 - South Florida
AA6- Puerto Rico
AA 7 - Northeast United States
AAS - Northwest United States
AA9 - Great Lakes
We speculated that as control is gained in the main AAs, there are three areas that are
currently not considered heavy avenues of approach, that will likely become the alternate
routes. These three areas are:
AAlO- Gulf Coast
AAll -North Central U.S.
AA12 - Southwest Coast
Border Patrol planners recognized that only a decisive level of resources would increase
the "cost" to illegal entrants sufficiently to deter entry. Marginal increases in resources would
not result in a proportionate deterrent effect. A phased, multi-year approach that concentrated
resources in the areas of most active illegal entry was developed incorporating areas of "Main
Effort" and of "Supporting Effort."
Areas of "Main Effort" and of" Supporting Effort" were identified in each of the planned
phases. In the geographic areas of "Main Effort," sufficient resources are brought to bear to
ensure that near 100% of illegal entries are apprehended. "Supporting Effort" areas support the
areas of main effort either directly through loan of resources or indirectly by other actions that
support and sustain the main effort, i.e. coordinating enforcement initiatives with main effort
initiatives, gathering intelligence to validate the relative success of the main effort, identifying
shifts in illegal entry traffic, etc.

8

 Phase I (FY -94 and 95 Immigration Initiative)
CONTROL SAN DIEGO AND EL PASO CORRIDORS (AAl & AA2)
The majority of illegal entries have historically occurred in San Diego and El Paso.
Achieving control of the avenues of approach in San Diego and El Paso is the most" effective
first step in achieving control of the border. Concentrating a decisive level of resources in these
areas is more effective than making only incremental changes in border enforcement across all
sectors.
San Diego (AAI) and El Paso (AA2) are the areas of main effort in Phase I. As the
strategy in San Diego and El Paso (main effort areas) becomes effective, much of the flow of
illegal traffic will shift to other avenues of approach that transform from supporting areas to
main effort areas. Some part of the flow will turn to other entry tactics, including legal entry,
use of fraudulent documents, and requests for asylum and immigration hearings. Some part of
the flow will be deterred from attempting illegal entry.
The current enforcement posture in AA 1 and AA2 is to first control the entry of illegal
entrants into and through the large urban areas. When urban areas are uncontrolled, they
provide illegal entrants an opportunity to assimilate with the population, making it difficult for
the Border Patrol to quickly identify and arrest individual illegal entrants. When the Border
Patrol controls the urban areas, the illegal traffic is forced to use the rural roads which offer less
anonymity and accessibility to public transportation.
Support efforts required include:
o
o
o
o

gather intelligence to validate success of control in AA I and AA2,
identify areas affected by shift in traffic patterns,
redirect resources, and
increase allocation of resources.

Before moving to Phase II, we will use certain indicators to determine whether Phase I
has been successful. These indicators .of success - which may also be measures of
effectiveness - include:
o
o
o
o
o
o
o

initial increase of arrests and entry attempts
eventual reduction of arrests and recidivism in main effort
change in traditional traffic pattern
reduction of serious accidents involving aliens on highways, trains, drowning,
dehydration (main effort)
increased instances of more sophisticated methods of smuggling at checkpoints
increase in ports of entry activity including more legal admissions and use of
fraudulent documents
possible increase in complaints (Mexico, interest groups, etc.)
9

 o
o
o
o
o

shift in flow to other areas in southwest border
fee increase by smugglers
reduction in criminal aliens entering the country and criminal activity along the
borders
fewer illegal immigrants in the interior of the U.S.
reduction in use of social services and benefits in the U.S.

Likewise, there will be observable changed conditions in the main effort areas that will
lead us into the Phase II, such as:
o
o
o

increased efficiency in main efforts allows for maintenance of control
status for AA 1 + AA2 clear
border stabilized and secured (control)

Phase IT (near-term)
CONTROL SOUTH TEXAS AND TUCSON CORRIDORS (AA3 & AA4)
We will closely monitor the progress in controlling the border in AA! and AA2. These
two locations will be top priority before focusing on another corridor. It is believed that as
control is gained in AA! and AA2, the illegal flow will shift to other locations.
As a measure of control is achieved in these corridors, some illegal traffic is expected
to shift to AA4 and AA3. In these areas also, the initial focus will be on attaining control of
·the urban areas first and then the rural areas. AA3 and AA4 will initiate their course of action
with existing resources.
Support efforts required include:
o
o
o
o

maintain control in corridors AA 1 and AA2
gather intelligence to validate success of control in AA 1 and AA2
identify areas affected by shift in traffic patterns
redirect resources

Before moving to Phase III, there will be certain indicators that Phase II has been
successful. These indicators of success - which may also be measures of effectiveness include:
o
o
o
o
o

reduction of arrests in main effort
change in traditional traffic pattern
reduction of serious accidents involving aliens on trains, drowning, dehydration
(main effort)
increased instances of more sophisticated methods of smuggling at checkpoints
increase in complaints (Mexico, interest groups, etc.)
10

 o
o
o
o
o
o

increase in ports of entry activity including more legal admissions and use of
fraudulent documents
shift in flow to other areas in Southwest border
fee increase by smugglers
reduction in criminal aliens
fewer illegal immigrants in the interior of the U.S.
reduction in use of social services and benefits in the U.S.

The observable changed conditions in the main effort areas that will lead us into the
Phase III, include:
o
o
o

increased efficiency in main efforts allows for maintenance of control
status for AA3 + AA4 clear
border stabilized and secured (control)

Phase ill (mid-term)
CONTROL REMAINDER OF SOUTHWEST BORDER
The Border Patrol will move into Phase III on!y after valid indicators of success and
changed conditions reflect border control has been attained in the Phase II main effort.
Phase III is designed to allow the Patrol to react to the expected shift and expected
increase in all other areas of the Southwest. In fact, an expected outcome is a shift of those
attempting illegal entries to water boundaries (AA!O & AA!l). We anticipate that all along the
border there will be shifts and attempted entries in previous main effort areas, therefore, the
entire Southwest border must be controlled and that control must be maintained. The Phase III
main effort will be to gain control of the remainder of Southwest border by applying adequate
re5ources.
Supporting efforts will include maintaining control while monitoring and sustaining
baseline staffing levels for remainder of Border PatroL
The indicators of success for Phase III include:
o
o
o
o
o
o
o
o
o
o

fewer entry attempts on Southwest border control
increased seacoast entries
political pressure to loosen border
fewer returnees
potential for more protests against immigration policy
increased alien smnggHngJees
more document fraud
inquiries from U.S. employers of undocumented workers
further reduction ofsocial services
further reduction in criminal aliens
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 o
o
o

m,_Qre violence at attempted entries
improved public perception
fewer aliens staging in Mexico

The changed conditions will be:
o
o
o
o
o
o

o
o

control of Southwest border
air/sea entry attempts increase
increase in entries outside of Southwest border
change in smugglers tactics
increased ports of entrY traffic
MeXIco will enhance border control of their Southern border (OTM's who until
now had entered their country,
traversed, and then crossed the U.S. border will be forced to stay in Mexico)
pressure for another "Bracero program" (temporary worker program)
economic changes in U.S.

Phase IV (mid to long-term)
CONTROL ALL THE UNITED STATES BORDERS/ ADJUST TO FLOW (All AAs)
The Phase IV main effort will be to gain control of all other areas outside the Southwest
border, continually monitor the flow of illegal entrants, and adjust by shifting resources to new
areas of activity. As this happens, we anticipate increased entries along the Northern border and
in water avenues along the Gulf Coast and Pacific Coasts (AA5, AA6, AAlO, & AA12). As
.
the mev1table
increase of Illegal activity along the Northern border comes to fruition, resource enhancements
(i.e. personnel, technology, and equipment) will be key to maintaining control.

~

Supporting efforts will include maintaining control achieved in Phases ,I, II and III. We
will ensure adequate resources remain in those areas where we have gained control.
The indicators of success and changed conditions will mirror those of the previous
phases. As the borders become more and more controlled, the tendency may be to revert back
to traditional ways of operating which may result in loosening control. Some changed conditions
such as reduction in the cheap labor force rna create unrest and resistance. The most desperate
of those aliens see ng entry will attempt illegal entry. Special Interest Groups may tighten
pressure on Congress to remove entry controls once border control is achieved and mamtained.

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..

·-·

 Coordination
The Border Patw!'s strategic approach includes all sectors, concentrates on the border,
is easily understood and implemented, and takes advantage of current resource initiatives.
As contrpl is gained and maintained in the immediate border areas, the Service will
adjust resources at land border ports of entry and in the interior enforcement locations. The
Border Patrol will emphasize gaining control of the transit points, improving coordination for
investigations in the border area, increasing sanctions, increasing pressure on fraudulent
document vendors, increasing jail checks, increasing D&D support and controlling employment
centers. These activities are to be coordinated with other Service programs.
In order to achieve the level of border control that we determine to be acceptable to the
INS and the American public, we must maintain our vision, focus on our strengths, be aware
of our vulnerabilities, and ensure that support and coordination with other INS programs and
outside agencies are maintained. Some of these coordinated actions include:
o
o
o
o
o
o
o
o
o
o
o

barriers including fencing, lighting, bollards (work with Department of Defense
and INS's Information Resource Management and International Affairs)
increase visibility to promote public awareness
improve technology to maximize personnel and enhance mobility flexibility
increase joint operations (and share equipment) with
Customs, Drug Enforcement Administration, Local Law Enforcement Agencies
back-up border effort and improve control by maintaining and establishing
checkpoints
use short term details to test control
monitor activity in Mexico - intelligence
develop statistical!y valid measures of effectiveness
de-emphasize non-Border Patrol functions
examine interior repatriation
consistent pressure on INS to maintain eff011 as Patrol demonstrates success
through valid measures

Conclusion
The Border Patrol's strategic plan is multi-phased and requires multi-year
implementation. The plan directs intense enforcement efforts in the areas of greatest illegal
activity to gain maximum control of the border. As control is gained in these main effort areas,
it is anticipated the illegal traffic will shift to other entry corridors.
~ Traditional measures of effectiveness in which control of the border was principally
(measured by number of apprehensions will be examined. Innovative methods are being
researched to measure the flow of entry and ways to monitor those we miss, .as well as
recidivism rates. A common concern among all law enforcement is trying to measure deterrence

13

 as an indicator of success. Some measurement methodologies may prove less valid than others.
We are confident that with experimentation we will be able to identify valid measures.
Valid statistical measurements in combination with subjective indicators will allow us to
determine our success in closing the revolving door of illegal immigration on the border while
keeping the door_; open for legal immigration. For example, in San Diego, an automated
fingerprinting identification system (AFIS) is operational. We will now be able to track an
apprehended illegal alien and establish an historical record of attempted entries. In other sectors
different systems are being developed and used to gauge those who are getting away allowing
us to measure the flow and our effectiYeness in controlling the border. Incorporating external
measurements by other agencies and immigration specialists will validate our success.
INS must be committed to dedicating adequate resources to fully equip, train, and support
Border Patrol agent personnel as well as monitor resource requirements to adjust to shifts in
illegal traffic. This strategy can be accomplished through a combination of staffing efficiencies
and targeting new resources for agents, support staff, and technology. The Border Patrol must
continually assess the appropriate mix of technology and personnel. Also, we must closely
monitor established measures of effectiveness.
To date, nine Southwest Border Patrol Sectors have developed, with the assistance of
consultants with planning expertise, their individual strategic plans consistent with the national
plan. All sector strategies focus first on -the urban areas, concentrate resources on the line and
checkpoints and maintain a paseline staffing level. The sector strategies address the unique
enforcement environment and challenges within their areas of responsibility. Each sector plan
is flexible to allow for adjustments and continual assessment of the resource needs and the
impact of new technology. As the sectors refine and implement valid measures of effectiveness,
utilize new and/or expanded technology, and observe changing or shifting illegal migration
patterns, resource adjustments will be necessary. This measured, flexible long-term, phased
method of border control will prove to be efficient, cost effective, and more resource productive
than previous approaches to border control.
The Border Patrol strategy provides a clear sense of direction and facilitates opportunities
for employees to succeed as they achieve program goals and gain a broader perspective of the
INS challenges. It promotes a professional work environment that encompasses a sense of pride
and accomplishment, the highest ethical standards, and upholds public trust and international
respect for the United States immigration laws.

14

 BORDER PATROL STRATEGIC PLAN
1994 AND BEYOND
PHASE II

PHASE I

PHASE Ill

PHASE IV

Reassess Strategy

Reassess Strategy

JUNE

SECTOR II
ALL
SECTORS

1994

Deve_I_O:P' Determine Measure'·s<::_:,,.=·_,'
Strategy·

Reassess Strategy
of Effectiveness
(Reviewed by Na((S(l~)instituie ~I Justice)

>

'.•.
Maintain Baseline Leve Is

II Maintain Baseline Levels

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APPROVED: [Lat/L a 

Doris Meissner
Commissioner

1.1-

,k AUG 8 199A
EATE:

 

ENFORCE (PHASE I)
San Diego Border Patrol Pilot
Status Report
December 9, 1994

The Enforce (Phase I) System Pilot at San Diego was implemented at the Border Patrol
Sector (4 sites) on June 1.
As of December 9, 1994, 645 agents in the San Diego Sector have processed:
151,961
2,385
1,226

Voluntary Deportations to Mexico
Administrative Imm. Violation Cases (Other Than Mexicans)
Smuggling Cases (Aliens and/or Contraband)
Included in the 1,226 Smuggling cases were the following types of
individuals:
190
682
11
160

Deportable Aliens
Non-Deportable Aliens (Legal Permanent Residents)
Parolees
U. S. Citizens