Operation End game ICE report

8/14/2019 Operation End game ICE report

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U.S. Department of Homeland SecurityBureau of Immigration and Customs Enforcement

Form M-592 (8/15/03

ENDGAME

Office of Detention and

Removal Strategic Plan,

2003 - 2012

Detention and Removal Strategyfor a Secure Homeland


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ENDGAMEDetent ion and Removal Strategic Plan 2003 2012

Contents

Executive Summary ...................................................................................................... ii

Chapter 1. Introduction...........................................................................................1-1

Situation.................................................................................................................................................1-1 Enforcement Challenge .........................................................................................................................1-1Strategic Framework..............................................................................................................................1-2Stakeholders..........................................................................................................................................1-3 Plan Development .................................................................................................................................1-5Plan Structure ........................................................................................................................................1-6Execution ...............................................................................................................................................1-6

Chapter 2. Situational Assessment .......................................................................2-1

Overview................................................................................................................................................2-1 Situation.................................................................................................................................................2-1

Reorganizations and Demands for Service.......................................................................................2-1

Strengths, Weaknesses, Opportunities, Threats (SWOT).....................................................................2-2Strengths ...........................................................................................................................................2-2Weaknesses ......................................................................................................................................2-4Opportunities .....................................................................................................................................2-7Threats.............................................................................................................................................2-10

Chapter 3. Goals and Objectives ...........................................................................3-1

Goal Relationships.................................................................................................................................3-1Homeland Security to DRO...............................................................................................................3-1

Goal Alignment ......................................................................................................................................3-4Milestones..............................................................................................................................................3-6

Chapter 4. Strategies ..............................................................................................4-1

Strategic Concept ..................................................................................................................................4-1Strategic Fundamentals.........................................................................................................................4-1Foundations for Success .......................................................................................................................4-1General ..................................................................................................................................................4-2Strategic Challenges and Success Factors...........................................................................................4-3

Strategic Challenges .........................................................................................................................4-3Key Success Factors.........................................................................................................................4-3

Strategic Initiatives.................................................................................................................................4-3Strategies...........................................................................................................................................4-4

Execution .............................................................................................................................................4-10Effective...........................................................................................................................................4-10 Plan Maintenance............................................................................................................................4-10Planning Cycle.................................................................................................................................4-10

Glossary..................................................................................................................... G-1

Contents i


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Bureau of Immigration and Customs EnforcementOffice of Detention and Removal

Executive Summary o Building partnerships with criticalstakeholders;

Endgame is the Immigration and CustomsEnforcement (ICE), Office ofDetention andRemoval (DRO) multi-year strategic

enforcement plan. It stresses the effectiveand efficient execution of the critical serviceDRO provides its partners and stakeholdersto enforce the nations immigration andnaturalization laws. The DRO strategic plansets in motion a cohesive enforcementprogram with a ten-year time horizon that willbuild the capacity to remove all removablealiens, eliminate the backlog of unexecutedfinal orderremoval cases, and realize itsvision.

o Developing a professional workforceand the infrastructure to retain it; and

o Employing mission-critical systemsand information technology.

Endgame embodies the core principles foundwithin the National Strategy for HomelandSecurity. The National Strategy forHomeland Security promotes a balanced andintegrated enforcement strategy, whichensures that the probability ofapprehensionand the impact of the consequences aresufficient to deter future illegal activity.Through its operational focus on fugitive

apprehension and developing full capacity toremove all removable aliens, Endgame is akey element in the achievement of thebalanced immigration enforcement strategy.

DROs success as a core element of theimmigration enforcement mission will berealized when the synchronization of itsresources and infrastructure result in theimmediate and effective removal of eachremovable alien. With this strategic plan,DRO strives toward that goal while ensuring

that its services will be provided consistentlyand professionally. The result will beenhanced homeland security through thesuccessful accomplishment of DROsmission.

Endgame is an essential part of an overallstrategic planning process that will integrateoperations with budget development andperformance measurement. The DRO

Strategic Plan Working Group, whichdeveloped this plan, will maintain it and theprocess through a suite of performanceindicators. These will ensure that operationsand accomplishments are appropriatelymeasured and that the plan accuratelyreflects the current and future environment.

Endgame is pro-active in its vision to confrontand overcome the many challenges DROfaces today and will facetomorrow.Throughout the next ten years, DRO willimplement and execute a series of strategiesthat willdevelop the capacity and capability toexecute all final orders of removal. The threethemes listed below are DROs foundationsfor success, the pillars supporting theplatform from which this plan and itsstrategies will be launched:

DRO MISSION

Promote the public safety andnational security by ensuring the

departure from the United States ofall removable aliens through thefair and effective enforcement ofthe nations immigrationlaws.

DRO VISIONWithin ten years, the Detention and

Removal Program will be able to meet allof our commitments to and mandatesfrom the President, Congress, and the

American people.

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Chapter 1. Introduction

Situation

Endgame is the Immigration and

Customs Enforcement (ICE), Office ofDetention and Removal (DRO) multi-yearstrategic enforcement plan. It is part of abroader planning cycle that, when fullyimplemented, will integrate strategic andoperational planning with the budget buildingprocess and performance measurement.Endgame articulates the DRO mission andvision statement, andwill guide thedevelopment andexecution of DRO

operations through afocused set of goals,objectives andstrategies. The planidentifies core detention and removalbusiness functions and key processes withinfive goal areas to accomplish several short-and long-term objectives. Itemphasizes theexecution of key processes within the twocore functions, removals and custodymanagement, recognizing they will remainessentially the same once the Program is

fully integrated into the Department ofHomeland Security (DHS).

Enforcement Challenge

Recent events and political initiatives haveemphasized the significance of DROsmission and the critical need to restore somecertainty to the removal of aliens found to beremovable. DRO will meet the challenge ofthis defining moment in our nations history,clearly demonstrating our critical role in

immigration enforcement and our nationsdomestic security. This plan will guide ourefforts in developing operational plans andresource requirements to achieve ournational immigration law enforcement policyaims. Through cooperative relationships andeffective partnerships with our internal andexternal stakeholders, we will fulfill thedemands of the President, the Congress and

the American people. Building thesepartnerships is fundamental to the success ofthis plan and DROs mission and will result inimprovements that maximize efficiencieswithin the immigration enforcement process.

Our mission is critical to the immigrationenforcement process and provides the finallink in securing Americas borders. Ourplans, operations and resource requests willbe fully integrated with all other immigrationenforcement programs and initiatives.Initiatives to improve border security andprotect the interior of the United States

through an increase inpersonnel andenhanced informationtechnology, as well as

the establishment ofthe DHS, will requiresignificant increases indetention and removal

operations and resources. Our managementand staff will use this plan as a reference toolto develop operations that will be properlyand fully aligned with all immigrationenforcement operations. We will follow thisplan to ensure thatwe manage and maintainan effective detention and removal program,and that we continue to execute our part in

the overall immigration enforcement process.

Endgame is part of a broader planningcycle that, when fully implemented, will

integrate strategic and operational

planning with the budget building processand performance measurement.

On March 1, 2003, DRO officially becamepart of the Bureau of Immigration andCustoms Enforcement (ICE) of the directorateof Border and Transportation Security (BTS)within the Department of Homeland Security(DHS). This transition brings with it newpartners, stakeholders and challenges yet,we must remain diligent in our efforts toprovide the entire DRO program with theappropriate tools and resources required to

accomplish our mission and dailyassignments. Through this team and ourinter-agency and internal partnerships, we willsucceed in meeting our national policymandates.

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Strategic Framework remove all removable aliens. The principlesof that foundation are implicit in threeoverarching strategic themes:The Director for Detention and Removal, in

conjunction with his staff, has developed avision statementto guide the efforts of theprogram for the next ten years. This ten-year

vision is focused on the development of theinfrastructure, resources, personnel andleadership necessary to develop, maintainand sustain a program that will accomplish itsmission efficiently and effectively throughout

the next ten years, and beyond.

o Build partnerships with criticalstakeholders.

o Develop a professional workforce andthe infrastructure to retain it.

o Employ information systems andtechnology.

These three themes influence objectives andstrategies across five goal areas. These fivegoal areas will guide DRO operations andefforts and support ICE strategic goals. Therelationships between DRO goals and those of

ICE and the National Strategy for HomelandSecurity are depicted in the graphic on thefollowing page and described in more detail inChapter 3.

U.S. immigration policy remains fluid to reflectthe ever-changing global and politicalenvironment; however, this ten-year visionwill transcend these changes, as it is foundedin a mission that reflects the core business ofthe Detention and Removal program. TheDRO mission is the cornerstone of this visionand this plan. Over the next ten years,Endgamewill lay the groundwork fordeveloping 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 thePresident, 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, andsupport infrastructure

!" Effective, responsive, and accurate command, control, communication,computers and intelligence (C4I) systems that truly support ourenforcement requirements and improve the way we do business

!" Thoughtful and thorough planning, and effective operational execution

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Figure 1. Relationship between DRO, ICE and DHS Strategic Goals and Objectives

DHS to ICE to DRO Goal Relationships

DHS Strategic Objective :

Ensure functions not directly related to

homeland security are not diminished or

neglected.

DHS Strategic Objective:

Prevent terrorist attacks

within the United States.

DRO Goal 3

Non-Detained

Docket

DRO Goal 4

Info Tech

DRO Goal 5

Human Capital

Mgmt

DRO Goal 2

Custody Mgmt

DRO Goal 1

ICE Strategic Goal (DRAFT):

Deterring, interdicting, & removing

threats; & policing & securing

federal facilities.


Protect America from customs &

immigration violations not directly

linked to terrorism.

Removals

When implemented to its fullest, this plan will

serve as the platform from which strategieswill be initiated, partnerships will be built, andinnovation for continued processimprovement will be fostered. This vision willbe realized, and the mission will beaccomplished, 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, all

critical elements of the immigrationenforcement program.

Stakeholders

In response to national policy, DRO providesthe necessary publicservice of removingunauthorized aliens from the United States.DRO is committed to providing this service in

a professional, effective and efficient manner

while addressing the rights, needs andinterests of all its various stakeholders.DROs primary stakeholders have beenidentified and grouped, as depicted on thefollowing page:

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countless other apprehended aliens cannotall be immediately removed from the country,nor can they all be released into theAmerican community. For that reason, DROresources and expertise are required totransport these aliens from point to point, to

manage them in custody while their cases arebeing processed and, finally, to remove themfrom the country when ordered to do so. Theeffects of other programs enforcement effortsare diminished and their operations areconstrained if DRO cannot execute its missionefficiently and effectively. Therefore, DROmust immerse itself within the immigrationenforcement element of DHS and establish asignificant and collaborative presence with itsservice and enforcement partners andstakeholders.

DRO must maintain cooperative relationshipswith each one of its stakeholders to ensurethat enforcement operations are conductedas efficiently and professionally as possible

and that all stakeholders legitimate interestsare addressed. DRO and the private sectorrely on each other for the services eachdemands and has to offer. While the privatesector relies on DRO to provide national andinternational transportation, or to house andfeed detainees, DRO relies on those sameservices to execute its mission when they arenot available through normal governmentchannels. DRO must also maintain similarcooperative relationships with foreigngovernments in order

to realize and effectremoval. Strongpartnerships andcooperativecoordination betweenDRO, the DHS Officeof InternationalAffairs, the Department of State (DOS),foreign governments, and the alien will

facilitate a smooth and trouble-free transferfrom the United States to the aliens home ofrecord.

While the alien will not necessarily perceiveany benefit from DRO services, he will be

provided with safe and secure confinement indetention facilities, as well as transportationfrom ports and points along the border toother detention facilities or his country oforigin. These services will be provided in aprofessional manner; the alien will bedetained in safe, secure and humaneenvironments; he will be transported safely;and his movement will be fully coordinatedwith his family, legal representative, andcountry of origin, whenever appropriate. Forthese reasons, the alien is as important a

stakeholder as any of the others mentioned.The effects of other programs

enforcement efforts are diminished andtheir operations are constrained if DRO

cannot execute its mission efficiently andeffectively.

This strategic plan and the vision statementhave been developed in consideration of theconcerns of each of our stakeholders. It isdifficult to prioritize DRO efforts to satisfy onestakeholders needs over that of another; yetthe need to satisfy the Americanconstituency, protect their freedoms andsecure their safety remains the overarchingand desired outcome.

Plan Development

On August 3, 1993 the President signed intolaw the Government Performance andResults Act (GPRA). Simply stated, the lawimplements a strategic planning andperformance-measuring process to holdgovernment agencies accountable to theAmerican people for the money they spend.To that end, the law requires government

agencies to developstrategic plans with

measurable programgoals, and to reportannually to Congressand the American publicon their progress. TheOffice of Detention andRemoval now releases

its supporting strategic plan, Endgame,covering the time frame 2003-2012. The plan

Endgame supports national, DHS, andICE-wide policy and initiatives, whilesatisfying the inherent needs of bothits internal and external stakeholders.

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supports national, DHS, and ICE-wide policyand initiatives, while satisfying the inherentneeds of both its internal and externalstakeholders.

The DRO strategic plan and planning process

is the culmination of a nine-monthcollaborative effort of the Strategic PlanWorking Group (SPWG). The SPWG,consisting of 23 individuals from HQDRO, thefield, and other HQ staff elements, waschartered in September 2001. The groupsimmediate task was to develop performancemeasures to be incorporated into the existingsuite of performance indicators for inclusionin the fiscal year 2003 Annual PerformancePlan. Upon completion of that immediateassignment, the group began a systematic,

academic approach to developing a strategicplan that would serve as the cornerstone fordevelopment of the fiscal year 2004 (andfuture) budgets. The group developed themission statement and five goal areas inwhich to focus its operational efforts.Through an analysis of strengths,weaknesses, opportunities, and threats(SWOT), the SPWG identified a set ofstrategic challenges, key success factors,and executable objectives and strategies toaddress and/or overcome its challenges. The

SPWG resolved that all of its key processes(its routine and day-to-day activities) could begrouped 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 Structure

Endgame 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 four

chapters, this plan lays out a set of strategicinitiatives DRO will undertake to accomplishits mission, achieve its goals, overcome itschallenges and satisfy its stakeholders. Theplan does not, however, focus on theimplementation of specific processes in

conducting DRO business. Detailedprocesses and operations will be addressedin a supporting five-year business plan fromwhich the budget, the annual performanceplan and the annual implementation plan willbe built. These appendices support thisstrategic plan and will be updated on arecurring basis.

Execution

This Strategic Plan is effective upon release,and will be maintained by the SPWGthroughout the year. Review of the plan andits critical elements will be conducted inconjunction with budget calls, mid-yearreviews, and the development of Annual

Performance Plans and ImplementationPlans.

In its four chapters, this plan lays out aset of strategic initiatives DRO will

undertake to accomplish its mission,

achieve its goals, overcome itschallenges, and satisfy its stakeholders.

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Chapter 2. Situational

Assessment

Overview

The Detention and Deportation Program, nowthe Office of Detention and Removal (DRO),was established in a 1955 reorganization ofthe INS to carry out a mission first articulatedin the Alien and Sedition Acts of 1798. TheAlien and Sedition Acts included the earliestdeportation legislation, which empowered thePresident to order the departure from theUnited States of all aliens deemeddangerous. Legislation since then hasexpanded the detention and removaloperations and redefined the classes ofaliens to be deported or excluded. The basicmission, however, remains the same:Remove all removable aliens.

The Immigration and Nationality Act (INA) of1952 expanded the federal expulsion powerto include a wider category of aliens. The INAlisted 19 general classes ofdeportable aliensand provided for exclusion (at the time ofapplication for admission) to the UnitedStates on health, criminal, moral, economic,subversive, and other grounds. The IllegalImmigration Reform and ImmigrantResponsibility Act (IIRIRA) of 1996 expandedthe number of crimes that made peoplesubject to removal. It also eliminated DROsdiscretion to release certain aliens byrequiring that virtually any non-citizen subjectto removal on the basis of a criminalconviction, as well as certain categories ofnon-criminal aliens, be detained withoutbond. As a result of these acts and otherlegislation, DRO is required to detain andremove a much larger and more diverse

population. The current population requiresunique facilities, procedures andmanagement depending on risk, criminalcategory, nationality, health and other specialneeds.

Similarly, operations, policy and legislationthat were developed in response to the

September 11 attacks (such as the BorderSecurity Actand the USA PATRIOT Act)further expanded DROs operational area ofresponsibility. These Acts, in particular, havereprioritized national immigration enforcementefforts and this programs responsibilities and

operations. By implementing this strategicplan and providing a guide to conductoperations, this program is making strides inaltering its operations and resourcerequirements to support both current andfuture immigration related policy, events andactivity.

Situation

Reorganizations and Demands for Service

A) Reorganizations: DRO was integratedinto the Department of HomelandSecuritys Bureau of Immigration andCustoms Enforcement on March 31,2003. Notwithstanding the impact thistransition will have on DRO, theprograms mission and core functions(custody management and removal) willremain the same. The most significantchanges will be seen in the organizationalstructure, chains of command, andhierarchy. This plan is focused on the

programs core business functions andkey processes and will, therefore, not besignificantly impacted by the finalreorganization decisions.

B) Demands for Service: An effectiveenforcement program requires that asignificant risk of apprehension becombined with a high likelihood thatapprehension will result in removal. Withhigh enough risk of apprehension andsufficient likelihood of removal, the

incidence of illegal activities will decline,improving law enforcement effectiveness.The national strategy for law enforcementmust address the priority of removals.

The endgame of immigration lawenforcement is the removal of individuals whohave received final orders of removal. This is

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the essence of DROs mission.Improvements in the operationaleffectiveness of apprehensions will create anincreased requirement for processing andremoving offenders. Therefore, tosuccessfully complete the enforcement

process, the removals program must be asvigorous as other enforcement programs.DRO needs appropriate resources to ensurethat removal does, in fact, result surely fromapprehension. Otherwise, the workloadresulting from enhancements to andincreased efficiencies within other DHSprograms will be made in vain without anequally enhanced detention and removalsprogram.

As part of the DHS immigration and law

enforcement mission, the DRO program hasthe primary responsibility of providingadequate and appropriate custodymanagement (including bed space),supporting removals, facilitating theprocessing of illegal aliens through theimmigration court, and enforcing theirdeparture from the United States. Keyelements in exercising those responsibilitiesinclude: identifying and removing all high-riskillegal alien absconders; ensuring that thosealiens who have already been identified as

criminals are expeditiously removed; anddeveloping and maintaining a robustremovals program with the capacity toremove all final order cases issued annually,thus precluding growth in the illegal alienabsconder populations. Simply stated,DROs ultimate goal is to develop thecapacity to remove all removable aliens.

Integral to making America more secure,DHS detention and removal operationsprovide the final step in the immigration

enforcement process. To accomplish thismission, DRO will be vigorous in its efforts toprovide services commensurate to thedemand from and efforts expended by otherenforcement programs and agencies. DROwill increase its overall number of removalsannually in order to thwart and detercontinued growth in the illegal alienpopulation. Moving toward a 100% rate of

removal for all removable aliens is critical toallow the ICE to provide the level ofimmigration enforcement necessary to keepAmerica secure. Without this final step in theprocess, apprehensions made by other DHSprograms cannot truly contribute to national

security.

Strengths, Weaknesses,Opportunities, Threats (SWOT)

Endgame was developed with both thepositive and negative aspects of the programin mind. DRO will exploit its strengths andminimize its weaknesses in order to capitalizeon available opportunities and overcome thechallenges it faces in pursuit of its mission.

Strengths

DROs success will be attributed to thestrength of its leadership, current andplanned initiatives, the experience anddedication of its workforce and anunquestionable commitment from the entireprogram to execute this plan and the criticalplanning process within which it is a part.The current workforce has the experience,dedication and corporate knowledge needed

to build the foundation from which this planwill be launched and from which the programcapacity will be both built and enhanced.DROs workforce is supported by time-provenprocesses to remove illegal aliens from thecountry and the maintenance of detentionfacilities against standards more stringentthan the national norm.

1. Leadership: DRO leadership believesthat failing to plan is planning to fail andtherefore supports this strategic plan and

a planning process that fully integratesoperations and performance withresource needs. DRO leadership iscommitted to executing this plan and itsstrategies to accomplish the mission andattain the vision by empowering the DROworkforce to think globally, work smarterand take responsibility for executing a

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a) Health Care: DRO is expanding itshealth care delivery system to fitcurrent and future needs in the mostcost-effective way. This includesincreasing the services currentlyprovided by the Public Health Service

(PHS). It also includes an overallupgrade of the Immigration HealthInformation System (IHIS), involvingthe creation of an electronicsurveillance system for communicablediseases that will help to control costsand significantly increaseadministrative efficiency. Thisinitiative will allow PHS to maintainappropriate staff levels needed toprovide requisite detainee health care.It will especially enhance the

movement of detainees to the mostoptimal site based on their healthconditions and will clear them forremoval more quickly.

critical function of the entire immigrationenforcement process.

2. Workforce: The DRO core businessfunctions (custody management andremoval) demand that the DRO officer

corps maintain broad and expertknowledge of all applicableimmigration laws, policy and procedures;they do so. The DRO officer corps hasthe education and experience to manageIICEs unique population whilesimultaneously carrying out properenforcement action. Because of theirdiverse workload and broadimmigration knowledge, DRO officers areoften called on to serve on review panelsthat recommend parole, release or other

relief for aliens in accordance with thelaw. They are also authorized andmandated to discuss and act onimmigration issues with aliens beingprocessed for administrative immigrationviolations. b) Chaplaincy: DRO has requested

positions be created to placechaplains in each of its ServiceProcessing Centers (SPCs) to ensurethat detainees of different faiths areprovided reasonable and equitableopportunities to pursue their

respective religious practices. Thisinitiative will satisfy detentionstandards that allow for the practice ofvarious religions, unique foodprovisions, and spiritual needs duringterminal illness and death. Thechaplain will also be responsible foradvising the Officer in Charge inmatters of religious holidayobservance, religious diets, religiouspersonal property, dress andcontraband.

3. Unique Population and DetentionStandards: The detained alien populationis unique and extremely diverse.Detained aliens are in administrativecustody (versus punitive or correctional)

and are therefore afforded rights andprivileges not gained by prisonersincarcerated in other federal institutions.For this reason, DRO conducts routineinspections of its facilities and operationsto ensure that they are in compliance withapproved standards, that aliens aretreated humanely, and that they are safeand secure. DRO manages its ownDetention Management Control Plan(DMCP) to ensure its facilities complywith American Correctional Association

detention standards and their own morestringent and comprehensive ICEDetention Standards. Through executionof thorough and routine inspectionsoutlined in the DMCP, DRO ensures itsfacilities are operated in a professionalmanner and are compliant withappropriate codes, standards, andregulations.

4. September 11 Awareness: Theunprecedented terrorist attacks onSeptember 11, 2001 heightenedawareness among the public andgovernments worldwide of the criticalimportance of enforcing immigration lawsand sharing information and intelligence.Since then, the U.S. has reviewed its own



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business practices regarding immigrationand homeland defense and, in doing so,has identified critical gaps that are nowbeing addressed and resolved. Thisworldwide focus on immigration providesthe opportunity to develop and enhance

relationships and cooperation with foreigngovernments and, most importantly,among U.S. law enforcement, bordercontrol and defense agencies. Finally, ithas afforded the DRO and the DHS anopportunity to educate the public on thecritical mission and role they play in theimmigration enforcement process.

Weaknesses

1. Lack of Empirical Models: The DRO

mission cannot be accomplished withoutappropriate human resources, yet theprogram does not have reliable models todetermine what the true workload-to-personnel ratio should be. Although anew financial management system, theFederal Financial Management System(FFMS), is being fielded that will enhancethe management of current fiscalresources, DRO does not have thecapability to conduct detailed financialanalysis and resource identification

utilizing the current system. Also lackingis a documented business model andaccurate cost data to support futurebudgetary planning, resource allocation,cost optimization, and GPRArequirements.

2. Human Resource Shortfall: The programexperienced relatively gradual growth inkey areas from 1998 to 2001 (end of year2002 numbers were not available whiledrafting this plan). The DRO staff grew

by only three percent, which was slightlyslower than the four percent growth in thedocket or caseload. While the program ismaking progress, increasing removals by11 percent, staff growth is only barelykeeping pace with the growing docket.Staff growth must exceed docket growth ifthe program is going to begin making

progress on diminishing and eliminatingthe existing backlog.Detention andRemoval resources have not kept pacewith the increased number ofapprehensions generated by explosivegrowth in Border Patrol and Inspections

since 1996. Since that time, theseapprehension resources have increasedby 64 percent while DRO forces haveincreased by only 37 percent. While DROdoes not have empirical models to showthe optimal ratio of DRO forces toapprehension assets, it is clear that thisasymmetrical growth has put severestrains on the program. Its ability tofollow up on apprehensions, to effectivelymanage the processing of cases throughthe immigration courts, and to remove

those ordered removed has beenhindered.

3. Standardization: The current fieldstructure, coupled with a lack of unifiednational operations plans, has resulted indiversified and inconsistent interpretationof policy and guidance within andbetween regions and districts.Additionally, the current performancemeasurement system creates anatmosphere of territoriality rather than a

unified, cooperative, effective, andefficient operation. DRO acknowledgesthat nationwide operations cannot beconducted consistently without unifiedoperations plans and clear guidance tothe field. Developing a national fugitiveoperations policy, a national custodymanagement plan and a nationaltransportation system are the programsgreatest challenges and will prove to beamong its greatest recentaccomplishments when complete.

Development and deployment of thesenational plans, as envisioned, will havesignificant positive impact on DROoperations across the board. Thesenational plans will not solve all programdeficiencies but will significantly reduceand minimize the gaps. Standard staffingguidelines and staffing levels are alsoabsent from the DRO personnel



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management system. Staff make-upsvary widely among and between likeoffices throughout the country. Arguably,offices should reflect the particular needsof their locale, but the discrepancy instaffing levels and ratios, officer grade,

and employee roles and responsibilitiescreates anomalies in missionaccomplishment and unfair advantagesand disadvantages to those competing forlike jobs.

4. National Fleet System: Lacking a NationalTransportation Strategy and efficientcoordination, DRO spends millions ofdollars annually for air and groundtransportation in order to manage thedetention population and effect timely

removals. Likewise, as staffing levels inother programs have increased, the DROprogram has experienced an increasedworkload without the necessary increasein vehicles. Consequently, the lack ofadequate types and numbers of vehiclesand a central movement control centerhandicaps DRO in carrying out its missionas effectively and efficiently as it could.

5. Alternatives to Detention: The DROdetained population has grown in both

numbers and diversity in recent years, yetdetention methods needed to satisfyunique demands have not kept pace. Forexample, family groups are often held inhotels because there are not adequatefacilities available to house both adultsand juveniles together.

6. DHS Enforcement Initiatives: The DHS iscurrently implementing and making plansto implement several enforcementinitiatives and programs that, when fully

operational, will generate increaseddemands on DRO. Unfortunately, theseincreased demands do not come withincreased DRO resources. DRO cannotfully support these programs, and theywill not be as effective as intended,without a commensurate increase inpersonnel and infrastructure. These

programs are the Student Exchange andVisitor Program (SEVP) and the UnitedStates Visitor and Immigrant StatusIndicator Technology (US-VISIT).

7. Workforce Development: The DHS

operates and maintains an intensivecourse of instruction for new officers andrecruits. The academies provide 11-, 16-,and 21-week courses designed to provideofficers with the core competenciesneeded to begin their work at their dutylocation. The officers do, however,require a period of on-the-job trainingbefore they are fully effective in theirassigned duties. Unfortunately, DROdoes not have an advanced orprofessional development program of

equal caliber. Officers do not have acareer advancement template to followand, due to the operational tempo andshortfall in human resources, officers areoften not relieved from duty to attendprofessional development training. This,along with several other factors, has hada detrimental affect on retention rateswithin the DRO officer corps. The lowretention rate is further exacerbated, asthe hiring and training process isextremely slow and cumbersome; officers

are not trained and put in place beforeexisting staff is burnt out and eventuallyleaves the program.

8. Institutional Removal Program (IRP): TheIRP, as currently executed, is inefficientand less effective than it should bebecause the responsibility for operationalexecution lies with the Investigationsprogram (identifying and processingincarcerated aliens) and the responsibilityfor results lies with the Detention and

Removal program (removing criminalaliens). Even at authorized staffinglevels, the Government Accounting Office(GAO) and the Office of the InspectorGeneral have clearly cited a workforceshortfall to handle the significantworkload. As the War on Terrorcontinues to be waged, the SpecialAgents who have been supporting the



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IRP are being pulled from the program towork other high profile cases related tohomeland security. These positions andthe IRP work left unaccomplished bythese special agents are not beingbackfilled, increasing the risk of releasing

criminal aliens into the community.

9. Inadequate Information Technology toSupport DRO Operations: TheDeportable Alien Control System (DACS)no longer responds to the demandsplaced on it in todays operationalenvironment. Outdated hardware andsoftware, coupled with questionable dataquality, render the system difficult andinefficient to use. The integrity of thesystem has been maintained by years of

software patchwork, additions andenhancements.

10. Aging and Inadequate Infrastructure forDetention Operations: Historically,funding for repair, construction, andalteration has not been adequate tosupport our Service Processing Centers(SPCs). Funding for construction projectshas routinely been reduced and/oreliminated over the last several years.This has made it extremely difficult to

support our detention operation and tokeep up with the technological / design /procedural advancements the "prison"industry affords. While most of ourfacilities have portions of newconstruction, our facilities generally needsignificant physical improvements. This isnot to say that any of our facilities are in"poor condition." Our staff goes to greatlengths to ensure the health, safety andwelfare of the staff, detainees, andgeneral public. Facilities like Florence, El

Centro, El Paso, and Port Isabel, whenoriginally constructed years ago, weredesigned to hold relatively small non-criminal populations for short periods oftime. Over the last 5 years, ourpopulation has increased by 136%, andthe classification of our population hasgone from primarily non-criminal to a

population of over 65% criminal, somerequiring a maximum-security setting. Asan agency, we have had a relatively shortperiod of time and little funding to keep upwith the growth and the special needs ofthis disparate population.

11. September 11 Unfunded Mandates:Since September 11, 2001, policy andactivity has subjected DRO to a series ofunfunded mandates, taking resourcesaway from the accomplishment of othercritical operations. Throughout the pastyear, the Administration, the Departmentof Justice and Congress have initiatedseveral programs in response to gapsrevealed by September 11 findings.These have forced the program into a

reactive role, thereby redirecting ourproactive initiatives and planning.Programs such as the Alien AbsconderInitiative and the Custody Review Unit,while extremely beneficial in securingAmericas borders, have not beenresourced to the extent that optimumbenefit can be realized.

12.Lack of Immigration Enforcement MissionArea Plan: As the title of this planimplies DRO provides the final step in

the immigration enforcement process.The Department does not yet have, inplace, a tool, method or process toensure that strategies, budgets andoperations planned for and executedby other enforcement programsconsider the impact to DRO and theensuing operational implications andresource requirements.

13. Non-detained docket: The Detention and

Removal program does not have aprogram to effectively manage its non-detained docket. The appearance rate ofindividuals released from ICE custody isestimated to be 15 percent and theprogram does not have the resources toidentify, locate, apprehend and processthe remaining 85%.



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Opportunities

DRO is currently working on several short-and long-term initiatives that are proving to beexcellent opportunities to continue itsprogress in implementing this plan andachieving its vision and mission. The properuse of information technology is critical toprogram success and DRO is working withthe Office of Information ResourceManagement (OIRM) to replace theDeportable Alien Control System with theRemoval Module (EREM) of the EnforcementCase Tracking System (ENFORCE). TheEREM will draw from many more databasesand sources than DACS. It is expected thatEREM will facilitate the automation andsubsequent improvement of many DROefforts and procedures. Other initiativesinclude the implementation of the NationalFugitive Operations Plan, the reorganizationof District DRO operations who controlService Processing Centers (SPCs),unilateral management of the InstitutionalRemoval Program (IRP), revision of the FieldOfficers Manual, an initiative to reengineerthe bond management program, developmentof a central ticketing program to coordinate allescort missions, and implementation ofvarious electronic monitoring programs. All of

these initiatives are layers deep and includethe creation of training and professionaldevelopment programs, increased staffinglevels and greater stakeholder cooperationand involvement.

In addition to these initiatives, other strategieswithin this plan, current events, political will,and public interest provide the program withan array of opportunities from which it cannotturn away. DRO will exploit every opportunitypresented in order to build the capacity to

remove all removable aliens.

1. Human Resource Shortfall: The workloadper case officer is daunting and the poolof removable aliens continues to grow asother immigration enforcement divisionsbecome more effective, apprehendinggreater numbers of individuals, and as

aliens continue to find ways to enter thecountry illegally. The detention andremoval mission is manpower intensiveand very few functions can be automated.Therefore, the success of the missionrelies heavily on available human

resources and their capabilities. DRO willwork diligently to close the gap betweenits workforce and the demands forservices. To ensure that the existingworkforce is productive, efficient andeffective, DRO will implement strategiesto improve training programs, createprofessional development programs, andbuild the infrastructure (informationtechnology, transportation, facilities)essential to facilitate the detention andremoval process.

2. Institutional Removal Program (IRP): TheIRP, as currently executed, is inefficientand less effective than it should bebecause the responsibility for operationalexecution lies with the Investigationsprogram (identifying and processingincarcerated aliens) and the responsibilityfor results lies with the Detention andRemoval program (remove criminalaliens). To reduce the inefficiencies inthe program, in September 2000 the

Office of Field Operations mandated thetransition of the IRP from Investigations toDetention and Removal. Consolidation ofthe IRP will allow senior management tofocus on and resolve the programdeficiencies identified in the 1997 and1998 GAO reports. These efficiencies willpermit more aliens to be processed whileincarcerated, thereby reducing thepotential demand for detention space.Overall, improved effectiveness of theIRP will increase the public safety, reduce

the potential for future crimes, andenhance the welfare of our society. DROis working with the InvestigationsProgram to either identify resources to betransferred with the IRP or to acquireadditional resources to merge andexecute the program.



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3. DEO/IEA Reclassification: Creation ofthe Immigration Enforcement Agent (IEA),with a journeyman-level at GS-9, willmake this entry-level position a truefoundation for an officers careerdevelopment. This new career position

will strengthen the overall professionalismof the DRO workforce and will affordthose who are interested with theopportunity to apply for any of the seniorofficer positions, thereby continuing theircareer growth within the Division andDepartment. Establishment of thisposition will create a corps of nearly 2,400IEAs with arrest authority and authority toissue detainers. This increasedworkforce will create a pool of officers thatcan effectively execute the IRP. If this

corps of officers works the IRP 25% oftheir time (as is expected to meet therequirements of the new classification andgrade), we will have, in effect, almost 600full time equivalent positions (FTE)dedicated to the IRP, which is nearlydouble the current IEA FTE. By doublingthe effective IRP workforce, we canexpect a significant increase in criminalremovals as more incarceratedremovable aliens are processed anddeported. This increased effectiveness

will also reduce the number of personsplaced in ICE detention, thus reducingavoidable detention costs.

4. National Fugitive Operations Program(NFOP)/Absconder ApprehensionInitiative (AAI): In response to theterrorist attacks of September 11, 2001,Congress passed legislation providingfunding and positions for the role of lawenforcement agencies in the war againstterrorism. As part of that legislation, DRO

was authorized an enhancement of 40positions solely for the purpose ofapprehending fugitive aliens. Sevendistricts were assigned these positions tocreate a Fugitive Operations Section forthe purpose of implementing the NFOP.The Absconder Apprehension Initiativeannounced in the Deputy AttorneyGenerals directive of January 25, 2002,

indicated that there is a backlog of caseswith unexecuted orders of removal. TheNFOP will target this backlog byfacilitating the apprehension andsubsequent removal of those fugitives.The goal over the next ten years will be to

eliminate this backlog and to ensure thatour efforts in terms of apprehension andremoval of fugitive cases equals thenumber of new cases falling into thiscategory. While woefully inadequate toachieve the goal, the creation of 40positions dedicated to the NFOP is apromising start.

5. Removal Module (EREM) of theENFORCE: ENFORCE Removal Module(EREM) is a module of the Enforcement

Case Tracking System (ENFORCE) thatwill support detention and removaloperations. As such, it is integrated withapplications that support otherenforcement operations, e.g.apprehensions, investigations andintelligence. ENFORCE will support allenforcement processes and makeenforcement data available at all levels ofDHS nationwide. ENFORCE will capturedata on individuals, entities, andinvestigative cases, and support case

processing from apprehension throughfinal completion. ENFORCE will be usedto support field personnel by producingrequired forms and reports. Finally,ENFORCE will provide intelligence andmanagement information to supportdecision makers. EREM goals are to:

!" Ensure timely, accurate andcomplete information;

!" Obviate redundant data entry acrossmultiple systems;

!" Capture information as a part of theoperational workflow;

!" Produce forms and statistics, andpass information to partners,customers and stakeholders as a by-product of information capture;



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!" Make structured decisions on thebasis of information on hand andbusiness rules; and

!" Provide support for optimal decision-making.

6. DRO Reorganization: In May 2003, theAssistant Secretary for ICE announced aninterim organization structure for thebureau. Within this structure DRO fieldelements would be geographicallyrealigned to with that of the investigationsprogram and re-subordinated to reportdirectly to HQ DRO, Field Operations.This reorganization will:

!" Create a direct line of authorityover all DRO elements;

!" Develop and practice consistentoperations nationwide;

!" Develop and apply uniformdetention standards;

!" Optimize nationwide utilization ofbed space and transportationresources; and

!" Mirror and fully support the ICEenforcement field structure.

The Director, DRO with direct control overfield operations and the programsdetention facilities will be in the bestposition to influence real changes and theregulation needed to address and resolvehistorical issues regarding the treatmentof population, facility and infrastructureconditions, personnel training, and much-needed standardization of policy andprocedures.

7. Increased Removals: Moving toward a100% rate of removal for all removablealiens allows ICE to provide the level ofimmigration enforcement necessary tokeep America secure. Without this finalstep in the process, apprehensions madeby other DHS programs (such as theBorder Patrol, Inspections, andInvestigations) will not provide thedeterrent or the enforcement toolnecessary to secure Americas borders.

Enhancements to the DRO removalsprogram will directly benefit DHSenforcement initiatives(such as theStudent Exchange and Visitor Program(SEVP), the United States Visitor andImmigrant Status Indicator Technology

(US-VISIT)) by completing the final stepin the enforcement process. Only byapprehending and removing thoseindividuals who choose to disregardimmigration law, can the overall programbe successful.

8. National Fleet System: A comprehensiveNational Transportation Plan is necessaryin order to maximize the use of DROslimited air and ground resources whileensuring efficiency. A contract study will

consider all transportation means, currentroutes, and location of existing facilitiesand potential sites to maximize a forward-thinking transportation plan. Meanwhile,an ongoing replacement andenhancement of the DRO vehicle fleetprogram that provides for adequate typesand numbers of vehicles is instrumental incarrying out the ICE and DRO missions.Based on the needs of DRO, an adequateannual fleet budget should be dedicatedto ensure that staff has adequate

numbers and appropriate types ofvehicles.

9. Soft Detention: Conducting an initiative toprovide softer (staff secure) detentionsettings for special populations, such asasylum seekers and family groups, willallow ICE to fulfill the goal of providingappropriate detention conditions.

10. Alternative Methods to Detention: Withlimited bed space, there is a need to find

alternative detention methods for thosealiens who do not pose a threat to societyand who are not a serious flight risk.There is also a need to ensure that aliensreleased from secure custody comply withtheir conditions of release and appear incourt when required. In recent years,DRO has developed and implemented



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several successful non-traditionaldetention methods to accomplish theseobjectives. Current alternatives todetention include housing aliens,appropriately, in halfway houses andfamily shelters. In Berks County, PA,

DRO has a detention facility designed todetain family groups and provide for theirunique needs. DRO will continue itsresearch into available technology andmethods in order to create and providesafe, secure and humane alternatives todetention. Electronic monitoring will alsoallow for the management of releasedindividuals, thus making bed spaceavailable for those aliens posing greaterrisks of flight or threats to public safety.With these types of options available,

DRO can comply with the law whilehaving the flexibility to manage specialcases in an appropriate manner. Throughthese and other non-traditional detentionmethods, DRO has set a target toincrease the rate of appearance by tenpoints each year until it reaches 100percent appearance.

11. Partnerships:

a) Executive Office of Immigration

Review (EOIR): DRO will work tocreate greater cooperation andpartnership with the EOIR to improvethe effectiveness of the removalprocess. Through combined efforts toshare information in an electronic andreal-time environment, we can createa seamless process expediting thetransfer of an alien from the courts toDRO for immediate removal, if thatalien has been issued a final order ofremoval.

b) Non-government organizations(NGO)/Community BasedOrganizations (CBO): DRO willexpand on its community outreachprograms and work with NGOs andCBOs to educate the public on thepurpose and mission of DROdetention. It is important that

lawmakers, immigration organizationsand the public understand theuniqueness of administrative (DRO)detention vs. the punitive detentionadministered by the BOP and othercustodial agencies. DRO will continue

to execute its Detention ManagementControl Plan and market its success inthat area with respect to maintainingsafe, secure, and humane detentionfacilities.

12. Foreign Governments: Another criticalexternal factor that influences DROoperations is foreign government policyon repatriation and issuance of traveldocuments. Travel document andrepatriation policies vary from country to

country and within the same country,depending on the government andpolitical environment. Countries mayrefuse return or repatriation based onfactors such as criminal background,bloodline, place of birth and, at times, asa political statement to the United States.These policies have created a populationof long-term detainees that raisesdetention costs, reduces throughput, andlimits bed availability. Through increasedcooperation with the Department of State,

the DHS Office of International Affairs,and foreign governments, DRO will workto remove these barriers and to establishand develop protocols and proceduresthat will facilitate the proper and timelyremoval of unauthorized aliens.

Threats

Among the many fiscal and politicalchallenges DRO faces daily, the SPWGidentified a set of challenges that must be

overcome to accomplish its mission. Theseare challenges that will only be resolvedthrough the implementation and execution ofa series of vigorous and directed strategies.These challenges will not be resolved in thenear term; they are issues that have plaguedthe detention and removal program for manyyears and will take several years of



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partnering, cooperation and political supportto overcome. These strategic challenges are:

1. Growth in Disparity in DetentionWorkload: Growth in both numbers anddiversity in the detention population has

created demands for varied andappropriate facilities. In the early 1990s,the majority of ICE detainees werehoused in ICE Service ProcessingCenters (SPCs), private contract facilities,orBureau of Prisons (BOP) institutions.Today, the majority of detainees arehoused in county and local institutionsthrough inter-governmental serviceagreements (IGSAs). Because DROdoes not own these facilities, they haveless control over mixing criminal vs. non-

criminal populations and ensuringcompliance with other jail standards thataffect detention. Further exacerbating theproblem has been unprecedented slowgrowth in the detention officer corps overthe last 10 years, which is relativelydisparate to the growth of the detentionpopulation. For example, the rate ofdetainees per officer grew from 6.7 to 9.0from 1995 to 1999. This shortfall of DROofficers slows case management andremovals processes, increases bed days

and further heightens the probability ofmultiple types of significant incidents thatcould place detainees, employees andthe public in danger.

2. Unique Population: DRO detainees areall held for administrative, not criminallaw, violations. They are awaiting theadjudication of their immigration statuscases, and are not being held subject to acriminal conviction. This detainedpopulation is inherently unique, requiring

specialized knowledge and processes tosafely and humanely hold in appropriatefacilities and meet all operationaldemands. The DRO detained populationincludes illegal economic migrants, alienswho have committed criminal acts,asylum-seekers (required to be detainedby law) or potential terrorists. Thesepersons can be male, female,

unaccompanied juveniles of eithergender, or families. Even the detention byDRO of those with criminal convictions(criminal aliens) is strictly administrativein nature, not punitive. This necessitatesdifferent environments, standards, and

population management within DROfacilities than that of other federal, state,county, or local correctional facilities.DRO detainees have unknown lengths ofstay in custody because they aredependant on the speed of immigrationcourt hearings, appeal review or removalprocessing.

!" DRO must house adults, juveniles,and families. The separate detentionrequirements for juveniles and

families can be costly. Juveniledetention, in particular, requires sightand sound separation from adults, aswell as education, recreation, andcounseling.

!" The co-mingling of criminal and non-criminal detainees is a real concern.The majority of detainees havecriminal histories and separating themfrom non-criminals is important. TheDRO classification system was set upto identify and place individuals

accordingly.!" Cultural and political rivalries can lead

to violence between nationalities.Separating detainees by nationality isoften required to keep problems fromarising.

!" DRO has a large number of detaineeswith extended lengths of stay. Theycan be disruptive and are a specialsecurity concern in DRO detentionbecause they have no finite detentionperiod.

3. High Detention Throughput and Turnover:DRO detention facilities have a muchhigher throughput than other DOJdetention providers. Because aliens arebeing held to facilitate their caseprocessing and potential removal, thelengths of stay in DRO detention vary



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widely. They are driven by a number ofvariables including the courts efficiency incase review and adjudication, the aliensability to obtain travel documents and soforth. This creates a fast-paced detentionenvironment with high throughput. The

special nature of the DRO detainedpopulation requires unique detentionprocedures and the manpower toprocess, house, and transport aliensalmost continually. DROS detentionmanagement standards go well beyondthe normal "health and humanetreatment" issues addressed in BOP andUSMS facilities using the core DOJstandards. In order to achieve our goals,DRO follows access standards (access tolawyers, phones, consulates, rights

presentations, law libraries) that are allgeared to facilitate a rapid and fairprocessing of aliens' cases.

4. Facilities: The demand for DRO detentionhas grown much faster than availablefederal bed space, causing an increasedreliance on local jails to house detainees.Reliance on local jails reduces thenumber of detainees who are under directDRO supervision and control. Utilizing avariety of small local jails increases cost

and transportation needs, and placesDRO in direct competition for scarce bedspace with other federal and local entities.This factor is particularly critical becauseDRO has more stringent jail standardsthan other entities, which limits thenumber of jails that it can use.

5. Immigration Emergencies: Detention canbe affected by unforeseen eventsoccurring in other countries, such asnatural disasters (i.e., earthquakes,

hurricanes, etc.), war, andeconomic/political crises. These eventscan produce a shock to DRO detention.Such shocks can produce large numbersof illegal aliens, additional detentionneeds, and the inability to remove aliensfrom the U.S. back to countries in crisis.Though these immigration emergencies

are relatively short-term in nature, theycan have a drastic and enduring impacton available detention space.

6. Alien Population: As of the year 2000, theImmigration and Naturalization Service, in

conjunction with the Census Bureau,estimated the size of the nations illegalresident population at between eight andeleven million residents (in the country forat least a year). The INS estimated thatthe illegal immigrant population was risinga net amount of 275,000 per year whilethe Census Bureau estimated theincrease to be 225,000 per year. The INSestimated in 1998 that about two-fifths ofthe resident illegal alien populationentered legally and then lost their legal

status by overstaying their authorized visitand/or by illegally taking jobs. Ultimately,this constant unaccounted flow into thecountry adds to the pool of removablealiens.

7. U.S. Policy: As mentioned at thebeginning of this chapter, DRO operationshave been and continue to be impactedby changes in U.S. immigration andimmigration enforcement policy.Unfortunately, more often than not, these

changes are directed in the form ofunfunded mandates that force theprogram to redirect resources from dailyoperations to current crises, specialprojects and immediate needs. DRO willcontinue to serve the President, theCongress and the American people;however, our mission to remove allremovable aliens grows continuallymore difficult without a commensurateincrease in staff, funding, andinfrastructure.



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Chapter 3. Goals and Objectives 4. Ensure functions not directlyrelated to homeland security arenot diminished or neglected; and

Goal Relationships 5. Monitor and sever connectionsbetween illegal drug trafficking andterrorism; and conduct other efforts

to interdict illegal drug trafficking.

DRO developed five strategic goals to guide

the programs operational efforts andresource requirements towardsaccomplishing its mission and meeting itsultimate objective: remove all removablealiens. Three operational goals are directlyaligned with and support the ICE missionand the second of its five (DRAFT) strategicgoals and can be further aligned withstrategic objectives identified in the NationalStrategy for Homeland Security. Theremaining two goals support ICEs fourthstrategic goal as well as administrative

elements within the PresidentsManagement Agenda. These last two areessential to building the infrastructure andcapacity to carry out the DRO mission.

B. DHS Critical Mission Areas

1. Intelligence and warning;2. Border and transportation

security

!" Create smart borders

!" Reform immigration services.3. Domestic counter-terrorism;

!" Improve intergovernmental lawenforcement coordination.

!" Facilitate apprehension ofpotential terrorists.

4. Protecting critical infrastructure;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 andorganize our Nation to secure the U.S.homeland from terrorist attacks. 2 Theoriginal strategy, dated July 2002, identified

three strategic objectives for meeting thispurpose that were later supplemented withanother two during the FY2005-2009 budgetdevelopment cycle. The plan then aligns itsfunctions essential to achieving theseobjectives into six critical mission areas.

The critical mission area, Border andTransportation Security, envisions thatfederal law enforcement agencies willtake swift action against those who.

or violate terms of entry and posethreats to the American people. 3Specifically stated within the initiative tocreate smart borders, the Departmentwould enter into national lawenforcement databases the names ofhigh-risk aliens who remain in theUnited States longer than authorizedand, when warranted, deport illegalaliens. 4 This statement is theStrategys direct link to DROs mission:Remove all removable aliens.

A. DHS Strategic Objectives

1. Prevent terrorist attacks withinthe United States;

2. Reduce Americas vulnerability to

terrorism;3. Minimize the damage and recover

from attacks that do occur;A second element in this mission areais to reform immigration services, andDRO has already completed a step inthis process. In May 2003, theAssistant Secretary for ICE announced

2National Strategy for Homeland Security, Office of

Homeland Security, Executive Office of the President;(July 2002), p. vii.

3Ibid, pg 22

4Ibid, pg 23

Goals and Objectives 3-1


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an interim organization structure for thebureau. Within this structure DRO fieldelements would be geographicallyrealigned with that of the investigationsprogram and re-subordinated to reportdirectly to HQ DRO, Field Operations

Division. This reorganization will:

!" Create a direct line of authorityover all DRO elements;

!" Develop and practice consistentoperations nationwide;

!" Develop and apply uniformdetention standards;

!" Optimize nationwide utilization ofbed space and transportationresources; and

!" Mirror and fully support the ICEenforcement field structure.

The Director, DRO with direct controlover field operations and the programsdetention facilities will be in the bestposition to influence real changes andthe regulation needed to address andresolve historical issues regarding thetreatment of population, facility andinfrastructure conditions, personneltraining, and much-neededstandardization of policy and

procedures.

The critical mission area, DomesticCounterterrorism, envisions that wewill prosecute or bring immigration orother civil charges against suchindividuals where appropriate and willutilize the full range of our legalauthorities. DRO operations and goalsare linked to this mission areas firsttwo major initiatives. DRO will workwith the FBI on Joint Task Forces and

has a lead role in registering over400,000 fugitive aliens in the FBIsNational Crime Information Center(NCIC). Specific DRO strategiesinclude the development and executionof National Fugitive Operations Plans,which provide the guidance DeportationOfficers will need to apprehend those

aliens registered in the NCIC forprocessing and ultimate removal.

DHS strategic objectives 1 and 4 flowthrough the border and transportationsecurity critical mission area into the

Departments directorate of Border andTransportation Security and further down tothe Bureau of Customs and ImmigrationEnforcement (ICE). Through this channelICE developed a mission statement and(DRAFT) strategic goals to support the DHSobjectives.

ICE to DRO

A. ICE Mission

To protect the United States and itspeople by deterring, interdicting, andinvestigation threats arising from themovement of people and goods into andout of the United States; and by policingand securing federal facilities across thenation.

B. ICE (DRAFT) Strategic Goals

1. Investigating threats, crimes, andadministrative violations;

2. Deterring, interdicting, andremoving threats; and policingand securing federal facilities;

3. Provide air and marine support tominimize the damage, and assist inthe recovery from terrorist attacks;

4. Protect America from customsand immigration violations notdirectly linked to terrorism;

5. Investigate money laundering anddrug operations to disrupt anddismantle their organizations,

especially where terrorist related.

ICE strategic goals are then aligned withICE programs. The DRO mission isdirectly aligned with ICE strategic goals2 and 4 and Figure 3 below illustratesthe complete flow from top to bottom.

Goals and Objectives3-2


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is, DRO is responsible for the detention,processing and removal of aliensapprehended by other immigration andlaw enforcement partners. DRO doesnot, however, have control over theseenforcement efforts and must rely on its

partners to provide estimated serviceand support needs and resourcerequirements.

C. Indirect RelationshipsDRO goals can be indirectly linked tothe remaining ICE objectives throughthe service it provides its otherimmigration enforcement partners.Immigration and homeland security

efforts and operations conducted underthe remaining ICE goals often yieldoutputs that result in DRO inputs. That

Figure 3. Relationship between the Department of Homeland Security, Immigration and Customs

Enforcement, and Detention and Removal Operations

DHS to ICE to DRO Goal Relationships

DHS Strategic Objective :

Ensure functions not directly related to

homeland security are not diminished or

neglected.



within the United States.

DRO Goal 3

Non-Detained

Docket

DRO Goal 4

Info Tech

DRO Goal 5

Human Capital

Mgmt

DRO Goal 2

Custody Mgmt

DRO Goal 1


Deterring, interdicting, & removing

threats; & policing & securing

federal facilities.


Protect America from customs &

immigration violations not directly

linked to terrorism.

Removals



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Goal Alignment !" Objective 1.1 - Promote public safetyand combat immigration-related crimesby removing individuals, especiallycriminals and other threats to publicsafety, who are unlawfully present in theUnited States.



within the United States.!" Objective 1.2 Support DHS efforts

to deter illegal migration.

!DROs mission is an integral part of theimmigration enforcement process andequally critical to protecting ourhomeland. DRO will support this goalthrough participation in various taskforces, information sharing and any otherrequired law enforcement support.

ICE Strategic Goal:

Deterring, Interdicting, andRemoving Threats; andPolicing and Securing

Federal FacilitiesDRO Goal Two CustodyManagement: Provide for the safe,secure, and humane confinement ofpersons detained in accordance withimmigration law.

!

All five of DROs goals directly affectthe successful execution andaccomplishment of this goal. Overthe next ten years, through executionof this plan, DRO will build thecapacity to remove all removablealiens. DROs short-term focus untilthatcapacity is built will be on theidentification, location, apprehension,processing, and removal of thecriminal element of the illegal alienpopulation.

!" Objective 2.1 Provide safe, secureand humane detention facilities andmethods.

!" Objective 2.2 Optimize detentionspace/system.

!" Objective 2.3 Provide alternativeICE detention settings and methods.

DRO will develop and implement severalstrategies and programs to ensure themost cost effective and efficient use ofbed space throughout the country whilemeeting the needs of its unique and verydiverse population.

!

DRO Goal One Removals: Promotethe integrity of the immigration removalsprocess, deter immigration violations,and reduce recidivism through the

implementation of cohesive enforcementstrategies in conjunction with otherprograms facilitating the location,apprehension, processing of illegalaliens, and especially criminals, toultimately effect appropriate action toinclude prosecution, detention and/orremoval.

DRO will work with other federaldetention agencies as roles andresponsibilities are redefined to

ensure these objectives remain, arenot lost in the shuffle, and continue to

be supported.



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DRO Goal Three- Non-Detained Docket: !" Objective 4.3 Develop fullyautomated management informationsystems.

Provide effective control of personsreleased into the community duringimmigration proceedings or while awaitingremoval. !" Objective 4.4 Maximize the

capability to collect and disseminate

intelligence data and trends on areal-time basis to support ICEenforcement objectives.

!" Objective 3.1 - Ensure that releasedindividuals comply with the conditions oftheir release.

The overarching theme expressedthroughout this plan and DROs visionstatement is the development of theinfrastructure and capacity to remove allremovable aliens. DRO has created itsown information technology and humancapital management goals withsupporting objectives and strategies to

build and maintain a 100% removalcapacity.

!" Objective 3.2 Enhance partnershipswith EOIR and immigration judges tocorrect deficiencies in the system andfacilitate the removal process.


Ensure functions notdirectly related to homelandsecurity are not diminished

or neglectedDRO will accomplish its mission when

it has the right levels of the rightresources and the real property and

technology needed to sustain theworkforce.

!

ICE Strategic Goal:

Protect America from

customs and immigrationviolations not directly

linked to terrorism

DRO Goal 5 Human CapitalManagement: Recruit, train and retain

adequate numbers of professionals tomaximize service-wide performance.

!" Objective 5.1 Develop and implementa uniform staffing model to meet broadprogram needs.

!

DRO Goal Four InformationTechnology: Develop and implement acomprehensive integrated informationtechnology system that providesoperational and managerial data andsupports all levels of DRO activities.

!" Objective 5.2 Maintain peakperformance through continuous staffdevelopment.

!" Objective 5.3 Provide an environmentfor successful retention of DROemployees.!" Objective 4.1 Enhance existing data

management systems.!" Objective 5.4 Maintain peak

performance through continuousorganizational analysis.

!" Objective 4.2 Develop fully automatedand integrated case managementsystem.



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!" Within ten years, DRO will eliminate thebacklog of fugitive aliens, focusing oncriminals first.

Milestones

In the next ten years, DRO will secure theresources necessary to implement this plan,execute its strategies and accomplish its

mission as a viable and critical partner inthe immigration enforcement program.DRO must meet the following milestones toreach its ten-year vision:

!" As expeditiously as practicable, DROwill obtain American CorrectionsAssociation (ACA) accreditation for all ofits owned and contracted detentionfacilities.

!" Within three years, DRO will developand implement a uniform staffing modeland career development program.

!" Within three years, DRO will be able toconduct budgetary planning, resourceallocation, and cost optimization utilizinga tailored business model with standardcosting.

!" Within five years, DRO will develop andimplement the ability to processremovals equal to the number of finalorders of removal issued, eliminating thegrowth of the fugitive alien population.

!" Within five years, DRO will implementeffective controls to monitor and trackaliens under immigration proceedingsbut not in ICE custody.

!" Within five years, all DRO detentionfacilities will meet or exceed ICEDetention Standards.

!" Within five years, DRO will implement anational custody management plan anda national transportation managementplan to optimize the use of available bedspace and increase removaleffectiveness.



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Chapter 4. Strategies !" Build partnerships with criticalstakeholders;

Strategic Concept!" Develop a professional workforce

and the infrastructure to retain it; andEndgame sets in motion a cohesive

enforcement program to build thecapacity to remove all removablealiens and eliminate the backlog ofunexecuted final order removal caseswithin the next ten years. The strategiesherein have been developed to achieve theprograms goals and objectives, which havebeen constructed to meet the requirementsof the ICE, the DHS, the President,Congress, and the American people. Thisplan emphasizes the development of aprofessional workforce, trained and

supported with the infrastructure andtechnology necessary to execute its keyprocesses as efficiently and effectively aspossible. It also reinforces the need todevelop and sustain an effective casemanagement system as a premier enablingprocess in both core functions. DROsefforts to implement these strategies will bemeasured through a suite of performanceindicators fully defined in the DRO BusinessPlan, the Annual Performance Plan, and theImplementation Plan.

!" Employ mission critical systems andinformation technology.

A. Build Partnerships - DRO will enter intoa partnering campaign to enhanceexisting partnerships and create newones. DRO relies heavily on the supportit receives from many of its stakeholdersand it is imperative that open andprofessional cooperation be maintainedso that all parties realize positivebenefits. Partnerships built oncooperation, and on-time informationsharing and data base integration canexpand and strengthen the effectivemanagement of both the detained andnon-detained docket. DRO mustmaintain active partnerships with otherlaw enforcement agencies and barofficials to ensure that individualsreleased into the community complywith court orders, appear for hearings,and depart or are removed from thecountry within specified timelines. DRO

will also enter into a public affairscampaign to educate all its stakeholderson this plan and to garner supportwherever it can. DRO will maintain aProgram Description, for public release,that provides the reader an up-to-dateand accurate description of the DROmission and the procedures it practicesto accomplish it.

Strategic Fundamentals

Day-in and day-out, DRO field personnelwork to identify, locate, apprehend, process,and remove aliens who are unlawfullypresent in the United States. These are thefive key processes within which the DROworkload can be categorized. The DROworkload can be more generally divided intotwo core business functions: 1) removal; and2) custody management. Having laid this

foundation, the Strategic Plan WorkingGroup developed five goals with supportingobjectives to guide effective and efficientexecution of its five key processes.

B. Strategic Human Capital Management -The "services" DRO offers can only be

provided with human resources.Therefore, DRO will direct considerableenergies to attracting and retaining aworkforce that is professional and welltrained, a workforce that does the rightthings and does them right. DRO seeksto maximize service-wide performancethrough the accomplishment of fourobjectives: 1) develop staffing models tomeet program needs, 2) maintain peak

Foundations for Success

DRO will accomplish its mission and attainits vision by executing a series of strategiesand implementing robust programs that will:

Strategies 4-1


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performance through continuous staffdevelopment, 3) provide an environmentto retain these valuable humanresources, and 4) maintain peakperformance through continuousorganizational analysis. DRO has

begun, with the development of theImmigration Enforcement Agent, tocreate career development programsaffording its officers and staffopportunities for career growth andadvancement. In the coming year, DROwill conduct a review to identifydisparities in staffing, structure andgrades within and between all itsfacilities. In the year followingcompletion of this review and coincidentwith the development of professional

development and career programs,staffing models will be published tocreate consistency throughout theworkforce. These staffing models willalso facilitate accurate resourcerequirements planning.

C. Information Technology DRO will workwith other HQ programs to develop andimplement a comprehensive integratedinformation technology system thatprovides operational and managerial

data and supports all levels of DROactivities. DRO is currently engaged inthe development of a removals modulethat will be integrated into the existingENFORCE system. The enhancedENFORCE package will offer greaterintegration and support than theprevious one. Information technologysupport will not stop at the developmentof operations databases and systems.DRO will continue to equip itself withoffice automation assets that follow the

industry standards and afford the staffthe capabilities to perform their dailyroutines in the most efficient wayspossible.

General

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Operation End game ICE report

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