Memorandum of Understanding
Among
U. S. Department of Homeland Security
and
U. S. Department of the Interior
and
U. S. Department of Agriculture
Regarding
Cooperative National Security and Counterterrorism
Efforts on Federal Lands along the United States' Borders
I.

Purpose and Scope

A. This Memorandum of Understanding (MOU) is made and entered into by the
Department of Homeland Security (DHS), including and on behalf of its constituent
bureau U.S. Customs and Border Protection (CBP) and the CBP Office of Border Patrol
(CBP-BP); the Department of the Interior (DOI), including and on behalf of its
constituent bureaus, the National Park Service (NPS), U.S. Fish and Wildlife Service
(FWS), Bureau of Indian Affairs (BIA), Bureau of Land Management (BLM), and the
Bureau of Reclamation (BOR); and the Department of Agriculture (USDA), including
and on behalf of its constituent agency the U.S. Forest Service (USFS). Throughout this
MOU, these three Departments, including their constituent agencies, may be referred to
as "the Parties." Any reference to a bureau, agency, or constituent component of a Party
shall not be deemed to exclude application to any appropriate bureau or constituent
component of that Party. DHS recognizes that the BIA enters into this agreement only on
its own behalf and not on behalf of any Indian tribe.

B. The geographic and jurisdictional scope of this MOU is nationwide. The
Parties recognize the national security and counterterrorism significance of preventing
illegal entry into the United States by cross-border violators (CBVs), including but not
limited to the following: drug and human smugglers and smuggling organizations,
foreign nationals, and terrorists and terrorist organizations. The Parties further recognize
that damage to DO1 and USDA-managed lands and natural and cultural resources is often
a significant consequence of such illegal entry. The Parties are committed to preventing
illegal entry into the United States, protecting Federal lands and natural and cultural
resources, and - where possible - preventing adverse impacts associated with illegal entry
by CBVs.
C. This MOU is intended to provide consistent goals, principles, and guidance
related to border security, such as law enforcement operations; tactical infrastructure
installation; utilization of roads; minimization andlor prevention of significant impact on
or impairment of natural and cultural resources; implementation of the Wilderness Act,
Endangered Species Act, and other related environmental law, regulation, and policy
across land management agencies; and provide for coordination and sharing information

 on threat assessments and other risks, plans for infrastructure and technology
improvements on Federal lands, and operational and law enforcement staffing changes.
This MOU provides guidance in the development of individual agreements, where
appropriate, between CBP and land management agencies to further the provisions
contained herein.
D. This MOU is entered into pursuant to the governing statutory authorities of
each of the Parties.

E. The Parties acknowledge that CBP operation and construction within the
sixty-foot "Roosevelt Reservation" of May 27, 1907 (along the US-Mexico border) and
the sixty-foot "Taft Reservation" of May 3,1912 (along the US-Canada border) is
consistent with the purpose of those reservations and that any CBP activity (including,
but not limited to, operations and construction) within the sixty-foot reservations is
outside the oversight or control of Federal land managers.

F. This MOU supersedes any conflicting provision of any prior MOU or
Memorandum of Agreement between the Parties or their subordinate bureaus or
components.
11.

Background

A. DHS, through its constituent bureaus (including CBP and its CBP-BP), is
statutorily mandated to control and guard the Nation's borders and boundaries, including
the entirety of the northern and southern land and water borders of the United States.
B. DO1 and USDA, through their constituent bureaus, are statutorily charged as
managers of Federal lands throughout the United States, including DO1 and USDA lands
in the vicinity of international borders that are administered as wilderness areas,
conservation areas, national forests, wildlife refuges, units/irrigation projects of the
Bureau of Reclamation, andlor units of the national park system. Tribal governments
have primary management roles over tribal lands; however, the United States, through the
BIA, may also have a stewardship or law enforcement responsibility over these lands.
Many of these Federal and tribal lands contain natural and cultural resources that are
being degraded by activities related to illegal cross-border movements.
C. The volume of CBVs can and has, in certain areas, overwhelmed the law
enforcement and administrative resources of Federal land managers. In order to more
effectively protect national security, respond to terrorist threats, safeguard human life,
and stop the degradation of the natural and cultural resources on those lands, DOT and
USDA land managers will work cooperatively with CBP to benefit from the enforcement
presence, terrorist and CBV interdiction, and rescue operations of CBP.

 111.

Common Findings and Affirmation of the Parties

A. The Parties to this MOU recognize that CBP-BP access to Federal lands can
facilitate rescue of CBVs on Federal lands, protect those lands from environmental
damage, have a role in protecting the wilderness and cultural values and wildlife
resources of these lands, and is necessary for the security of the United States.
Accordingly, the Parties understand that CBP-BP, consistent with applicable Federal laws
and regulations, may access public lands and waterways, including access for purposes of
tracking, surveillance, interdiction, establishment of observation points, and installation
of remote detection systems.

B. The Parties recognize that DO1 and USDA have responsibility for enforcing
Federal laws relating to land management, resource protection, and other such functions
on Federal lands under their jurisdiction.

IV.

Responsibilities and Terms of Agreement
A. The Parties A ~ r e eto the Following Common Goals, Policies. and Principles:

1. The Parties enter into this MOU in a cooperative spirit with the goals
of securing the borders of the United States, addressing emergencies
involving human health and safety, and preventing or minimizing
environmental damage arising from CBV illegal entry on public lands;
2. The Parties will strive to both resolve conflicts at and delegate
resolution authority to the lowest field operational level possible while
applying the principles of this MOU in such manner as will be
consistent with the spirit and intent of this MOU;

3. The Parties will develop and consistently utilize an efficient
communication protocol respecting the chain of command for each of
the Parties that will result in the consistent application of the goals,
policies, and principles articulated in this MOU, and provide a
mechanism that will, if necessary, facilitate the resolution of any
conflicts among the Parties. If resolution of conflict does not occur at
the local level, then the issue will be elevated first to the
regionallsector office; if not resolved at the regionallsector level, then
the issue will be elevated to the headquarters level for resolution;
4. The Parties will cooperate with each other to complete, in an expedited

manner, all compliance that is required by applicable Federal laws not
otherwise waived in fktherance of this MOU. If such activities are
authorized by a local agreement as described in sub-article 1V.B
below, then the DOI, USDA, and CBP will complete the required
compliance before executing the agreement;

 5. The Parties will cooperate with each other to identify methods, routes,
and locations for CBP-BP operations that will minimize impacts to
natural, cultural, and wilderness resources resulting from CBP-BP
operations while facilitating needed CBP-BP access;

6 The Parties will, as necessary, plan and conduct joint local law
enforcement operations consistent with all Parties' legal authorities;

7. The Parties will establish a framework by which threat assessments
and other intelligence information may be exchanged, including
intelligence training to be conducted by all parties so that the
intelligence requirements of each may be identified and facilitated;
8. The Parties will establish forums and meet as needed at the local,
regional, and national levels to facilitate working relationships and
communication between all Parties;
9. The Parties will develop and share joint operational strategies at the
local, regional, and national levels, includingjoint requests for
infrastructure and other shared areas of responsibility;

10. The Parties will share the cost of environmental and cultural awareness
training unless otherwise agreed; and
11. The Parties will, as appropriate, enter into specific reimbursable
agreements pursuant to the Economy Act, 3 1 U.S.C. $1535 when one
party is to furnish materials or perform work or provide a service on
behalf of another party.
B. Res~onsibilitiesand Terms Specific to DO1 and USDA. The DO1 and the
USDA hereby recognize that, pursuant to applicable law, CBP-BP is authorized to access
the Federal lands under DO1 and USDA administrativejurisdiction, including areas
designated by Congress as wilderness, recommended as wilderness, andor wilderness
study areas, and will do so in accordance with the following conditions and existing
authorities:
1. CBP-BP agents on foot or on horseback may patrol, or pursue, or
apprehend suspected CBVs off-road at any time on any Federal lands
administered by the Parties;

2. CBP-BP may operate motor vehicles on existing public and
administrative roads andor trails and in areas previously designated by
the land management agency for off-road vehicle use at any time,
provided that such use is consistent with presently authorized public or
administrative use. At CBP-BP's request, the DO1 and the USDA will
provide CBP-BP with keys, combinations, or other means necessary to

 access secured administrative roadsltrails. CBP-BP may drag existing
public and administrative roads that are unpaved for the purpose of
cutting sign, subject to compliance with conditions that are mutually
agreed upon by the local Federal land manager and the CBP-BP Sector
Chief. For purposes of this MOU, "existing public roadsltrails" are
those existing roadsltrails, paved or unpaved, on which the land
management agency allows members of the general public to operate
motor vehicles, and "existing administrative roadsltrails" are those
existing roadsltrails, paved or unpaved, on which the land management
agency allows persons specially authorized by the agency, but not
members of the general public, to operate motor vehicles;
3

CBP-BP may request, in writing, that the land management agency
grant additional access to Federal lands (for example, to areas not
previously designated by the land management agency for off-road use)
administered by the DO1 or the USDA for such purposes as routine
patrols, non-emergency operational access, and establishment of
temporary camps or other operational activities. The request will
describe the specific lands andlor routes that the CBP-BP wishes to
access and the specific means of access desired. After receiving a
written request, the local Federal land manager will meet promptly with
the CBP-BP Sector Chief to begin discussing the request and
negotiating the terms and conditions of an agreement with the local
land management agency that authorizes access to the extent permitted
by the laws applicable to the particular Federal lands. In each
agreement between CBP-BP and the local land management agency,
the CBP-BP should be required to use the lowest impact mode of travel
and operational setup reasonable and practicable to accomplish its
mission. The CBP-BP should also be required to operate all motorized
vehicles and temporary operational activities in such a manner as will
minimize the adverse impacts on threatened or endangered species and
on the resources and values of the particular Federal lands. However, at
no time should officer safety be compromised when selecting the least
impactful conveyance or operational activity. Recognizing the
importance of this matter to the Nation's security, the CBP-BP Sector
Chief and the local Federal land manager will devote to this endeavor
the resources necessary to complete required compliance measures in
order to execute the local agreement within ninety (90) days after the
Federal land manager has received the written request for access.
Nothing in this paragraph is intended to limit the exercise of applicable
emergency authorities for access prior to the execution of the local
agreement. The Secretaries of the Interior, Agriculture, and Homeland
Security expect that, absent compelling justification, each local
agreement will be executed within that time frame and provide the
maximum amount of access requested by the CBP-BP and allowed by
law;

 4. Nothing in this MOU is intended to prevent CBP-BP agents from
exercising existing exigedemergency authorities to access lands,
including authority to conduct motorized off-road pursuit of suspected
CBVs at any time, including in areas designated or recommended as
wilderness, or in wilderness study areas when, in their professional
judgment based on articulated facts, there is a specific
exigencylemergency involving human life, health, safety of persons
within the area, or posing a threat to national security, and they
conclude that such motorized off-road pursuit is reasonably expected
to result in the apprehension of the suspected CBVs. Articulated facts
include, but are not limited to, visual observation; information
received from a remote sensor, video camera, scope, or other
technological source; fresh "sign" or other physical indication; canine
alert; or classified or unclassified intelligence. For each such
motorized off-road pursuit, CBP-BP will use the least intrusive or
damaging motorized vehicle readily available, without compromising
agent or officer safety. In accordance with paragraph IV.C.4, as soon
as practicable after each such motorized off-road pursuit, CBP-BP will
provide the local Federal land manager with a brief report;
5. If motorized pursuits in wilderness areas, areas recommended for
wilderness designation, wilderness study areas, or off-road in an area
not designated for such use are causing significant impact on the
resources, or if other significant issues warrant consultation, then the
Federal land manager and the CBP-BP will immediately meet to
resolve the issues subject to paragraphs IV.A.2 and IV.A.3 of this
MOU;

6. CBP may request, in writing, that the land management agency
authorize installation or construction of tactical infrastructure for
detection of CBVs (including, but not limited to, observation points,
remote video surveillance systems, motion sensors, vehicle barriers,
fences, roads, and detection devices) on land under the local land
management agency's administrativejurisdiction. In areas not
designated as wilderness, the local Federal land manager will
expeditiously authorize CBP to install such infrastructure subject to
such terms and conditions that are mutually developed and articulated
in the authorization issued by the land management agency. In areas
designated or managed as wilderness, the local Federal land manager,
in consultation with CBP, will promptly conduct a "minimum
requirement," "minimum tool," or other appropriate analysis. If
supported by such analysis, the local Federal land manager will
expeditiously authorize CBP to install such infrastructure subject to
such terms and conditions that are mutually developed and articulated
in the authorization issued by the land management agency;

 7. The DO1 and USDA will provide CBP-BP agents with appropriate
environmental and cultural awareness training formatted to meet CBPBP operational constraints. The DO1 and USDA will work with CBPBP in the development and production of maps for use or reference by
CBP-BP agents including, as appropriate, site-specific and resourcespecific maps that will identify specific wildlife and environmentally
or culturally sensitive areas;

8. The DO1 and USDA will, as applicable, provide CBP-BP with all
assessments and studies done by or on behalf of DO1 or USDA on the
effects of CBVs on Federal lands and native species to better analyze
the value of preventative enforcement actions;
9. The DO1 and USDA will assist CBP-BP in search and rescue
operations on lands within the respective land managers'
administration when requested;
10. The CBP-BP and land management agencies may cross-deputize or
cross-designate their agents as law enforcement officers under each
other agency's statutory authority. Such cross-deputation or crossdesignation agreements entered into by the local land management
agency and the field operations manager for the CBP-BP shall be
pursuant to the policies and procedures of each agency; and
1 1. DO1 and USDA will work at the field operations level with affected
local CBP-BP stations to establish protocols for notifying CBP-BP
agents when DO1 or USDA law enforcement personnel are conducting
law enforcement operations in an area where CBP-BP and DOIIUSDA
operations can or will overlap.

C. Responsibilities and Terms Specific to the CBP. DHS hereby agrees as
follows:
I . Consistent with the Border Patrol Strategic Plan, CBP-BP will strive to
interdict CBVs as close to the United States' international borders as is
operationally practical, with the long-term goal of establishing
operational control along the immediate borders;

2. If the CBP-BP drag any unpaved roads for the purpose of cutting sign
under provision IV.B.2 above, then CBP-BP will maintain or repair
such roads to the extent that they are damaged by CBP-BP's use or
activities;
3. If CBP-BP agents pursue or apprehend suspected CBVs in wilderness
areas or off-road in an area not designated for such use under

 paragraph IV.B.5, then the CBP-BP will use the lowest impact mode
of travel practicable to accomplish its mission and operate all
motorized vehicles in such a manner as will minimize the adverse
impacts on threatened or endangered species and on the resources and
values of the particular Federal lands, provided officer safety is not
compromised by the type of conveyance selected;

.. CBP-BP will notify the local Federal land manager of any motorized
emergency pursuit, apprehension, or incursion in a wilderness area or
off-road in an area not designated for such use as soon as is
practicable. A verbal report is sufficient unless either CBP-BP or the
land managing agency determines that significant impacts resulted, in
which case a written report will be necessary;
5. If motorized pursuits in wilderness areas, areas recommended for
wilderness designation, wilderness study areas, or off-road in an area
not designated for such use are causing significant impact on the
resources as determined by a land manager, or if other significant
issues warrant consultation, then the CBP-BP and Federal land
manager will immediately meet to resolve the issues subject to
paragraphs IV.A.2 and IV.A.3 of this MOU;
6. CBP will consult with land managers to coordinate the placement and
maintenance of tactical infrastructure, permanent and temporary video,
seismic and other remote sensing sites in order to limit resource
damage while maintaining operational efficiency;

7. CBP-BP will ensure that current and incoming CBP-BP agents attend
environmental and cultural awareness training to be provided by the
land management agencies;

8. CBP-BP will provide land management agencies with appropriate and
relevant releasable statistics of monthly CBV apprehensions, search
and rescue actions, casualties, vehicles seized, drug seizures and
arrests, weapons seizures and arrests, and other significant statistics
regarding occurrences on the lands managed by the land manager;
9. CBP-BP will consult with land managers in the development of CBPBP' s annual Operational-Requirements Based Budgeting Program to
ensure affected land managers can provide input and are, in the early
stages of planning, made aware what personnel, infrastructure, and
technology the CBP-BP would like to deploy along the border within
their area of operation; and
10. CBP-BP will work at the field operations manager level with affected

local land management agencies to establish protocols for notifying

 land management agency law enforcement officers when BP is
conducting special operations or non-routine activities in a particular
area.

V.

Miscellaneous Provisions

A. Nothing in this MOU may be construed to obligate the agencies or the United
States to any current or future expenditure of hnds in advance of the availability of
appropriations, nor does this MOU obligate the agencies or the United States to spend
h d s for any particular project or purpose, even if hnds are available.

B. Nothing in this MOU will be construed as affecting the authority of the Parties
in carrying out their statutory responsibilities.
C. This MOU may be modified or amended in writing upon consent of all
Parties, and other affected Federal agencies may seek to become a Party to this MOU.

D. The Parties shall retain all applicable legal responsibility for their respective
personnel working pursuant to this MOU with respect to, inter alia, pay, personnel
benefits, injuries, accidents, losses, damages, and civil liability. This MOU is not
intended to change in any way the individual employee status or the liability or
responsibility of any Party under Federal law.
E. The Parties agree to participate in this MOU until its termination. Any Party
wishing to terminate its participation in this MOU shall provide sixty (60) days written
notice to all other Parties.
F. This document is an intra-governmental agreement among the Parties and does
not create or confer any rights, privileges, or benefits upon any person, party, or entity.
This MOU is not and shall not be construed as a rule or regulation.

 In witness whereof, the Parties hereto have caused this Memorandum of
Understanding to be executed and effective as of the date of the last signature below.

Date:

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