ENDGAME Office of Detention and Removal Strategic Plan, 2003 - 2012, Part 2

As the War on Terror continues to be waged, the Special Agents who have been supporting the IRP are being pulled from the program to work other high profile cases related to “homeland security”. These positions and the IRP work left unaccomplished by these special agents are not being backfilled, increasing the risk of releasing criminal aliens into the community.

A population of over 65% criminal, some requiring a maximum-security setting. As an agency, we have had a relatively short period of time and little funding to keep up with the growth and the special needs of this disparate population. 11. September 11 Unfunded Mandates: Since September 11, 2001, policy and activity has subjected DRO to a series of unfunded mandates, taking resources away from the accomplishment of other critical operations. Throughout the past year, the Administration, the Department of Justice and Congress have initiated several programs in response to gaps revealed by September 11 findings. These have forced the program into a reactive role, thereby redirecting our proactive initiatives and planning. Programs such as the Alien Absconder Initiative and the Custody Review Unit, while extremely beneficial in securing America’s borders, have not been resourced to the extent that optimum benefit can be realized.

9. Inadequate Information Technology to
Support DRO Operations: The Deportable Alien Control System (DACS) no longer responds to the demands placed on it in today’s operational environment. Outdated hardware and software, coupled with questionable data quality, render the system difficult and inefficient to use. The integrity of the system has been maintained by years of software patchwork, additions and enhancements. 10. Aging and Inadequate Infrastructure for Detention Operations: Historically, funding for repair, construction, and alteration has not been adequate to support our Service Processing Centers (SPCs). Funding for construction projects has routinely been reduced and/or eliminated over the last several years. This has made it extremely difficult to support our detention operation and to keep up with the technological / design / procedural advancements the "prison" industry affords. While most of our facilities have portions of new construction, our facilities generally need significant physical improvements. This is not to say that any of our facilities are in "poor condition." Our staff goes to great lengths to ensure the health, safety and welfare of the staff, detainees, and general public. Facilities like Florence, El Centro, El Paso, and Port Isabel, when originally constructed years ago, were designed to hold relatively small noncriminal populations for short periods of time. Over the last 5 years, our population has increased by 136%, and the classification of our population has gone from primarily non-criminal to a

12. Lack of Immigration Enforcement Mission Area Plan: As the title of this plan implies DRO provides the final step in the immigration enforcement process. The Department does not yet have, in place, a tool, method or process to ensure that strategies, budgets and operations planned for and executed by other enforcement programs consider the impact to DRO and the ensuing operational implications and resource requirements.
13. Non-detained docket: The Detention and Removal program does not have a program to effectively manage its nondetained docket. The appearance rate of individuals released from ICE custody is estimated to be 15 percent and the program does not have the resources to identify, locate, apprehend and process the remaining 85%.

Situational Assessment

Opportunities DRO is currently working on several short and long-term initiatives that are proving to be excellent opportunities to continue its progress in implementing this plan and achieving its vision and mission. The proper use of information technology is critical to program success and DRO is working with the Office of Information Resource Management (OIRM) to replace the Deportable Alien Control System with the Removal Module (EREM) of the Enforcement Case Tracking System (ENFORCE). The EREM will draw from many more databases and sources than DACS. It is expected that EREM will facilitate the automation and subsequent improvement of many DRO efforts and procedures. Other initiatives include the implementation of the National Fugitive Operations Plan, the reorganization of District DRO operations who control Service Processing Centers (SPCs), unilateral management of the Institutional Removal Program (IRP), revision of the Field Officer’s Manual, an initiative to reengineer the bond management program, development of a central ticketing program to coordinate all escort missions, and implementation of various electronic monitoring programs. All of these initiatives are layers deep and include the creation of training and professional development programs, increased staffing levels and greater stakeholder cooperation and involvement. In addition to these initiatives, other strategies within this plan, current events, political will, and public interest provide the program with an array of opportunities from which it cannot turn away. DRO will exploit every opportunity presented in order to build the capacity to remove all removable aliens. 1. Human Resource Shortfall: The workload per case officer is daunting and the pool of removable aliens continues to grow as other immigration enforcement divisions become more effective, apprehending greater numbers of individuals, and as aliens continue to find ways to enter the country illegally. The detention and removal mission is manpower intensive and very few functions can be automated. Therefore, the success of the mission relies heavily on available human resources and their capabilities. DRO will work diligently to close the gap between its workforce and the demands for services. To ensure that the existing workforce is productive, efficient and effective, DRO will implement strategies to improve training programs, create professional development programs, and build the infrastructure (information technology, transportation, facilities) essential to facilitate the detention and removal process. 2. Institutional Removal Program (IRP): The IRP, as currently executed, is inefficient and less effective than it should be because the responsibility for operational execution lies with the Investigations program (identifying and processing incarcerated aliens) and the responsibility for results lies with the Detention and Removal program (remove criminal aliens). To reduce the inefficiencies in the program, in September 2000 the Office of Field Operations mandated the transition of the IRP from Investigations to Detention and Removal. Consolidation of the IRP will allow senior management to focus on and resolve the program deficiencies identified in the 1997 and 1998 GAO reports. These efficiencies will permit more aliens to be processed while incarcerated, thereby reducing the potential demand for detention space. Overall, improved effectiveness of the IRP will increase the public safety, reduce the potential for future crimes, and enhance the welfare of our society. DRO is working with the Investigations Program to either identify resources to be transferred with the IRP or to acquire additional resources to merge and execute the program.

Situational Assessment

3. DEO/IEA Reclassification: Creation of the Immigration Enforcement Agent (IEA), with a journeyman-level at GS-9, will make this entry-level position a true foundation for an officer’s career development. This new career position will strengthen the overall professionalism of the DRO workforce and will afford those who are interested with the opportunity to apply for any of the senior officer positions, thereby continuing their career growth within the Division and Department. Establishment of this position will create a corps of nearly 2,400 IEAs with arrest authority and authority to issue detainers. This increased workforce will create a pool of officers that can effectively execute the IRP. If this corps of officers works the IRP 25% of their time (as is expected to meet the requirements of the new classification and grade), we will have, in effect, almost 600 full time equivalent positions (FTE) dedicated to the IRP, which is nearly double the current IEA FTE. By doubling the effective IRP workforce, we can expect a significant increase in criminal removals as more incarcerated removable aliens are processed and deported. This increased effectiveness will also reduce the number of persons placed in ICE detention, thus reducing avoidable detention costs. 4. National Fugitive Operations Program (NFOP)/Absconder Apprehension Initiative (AAI): In response to the terrorist attacks of September 11, 2001, Congress passed legislation providing funding and positions for the role of law enforcement agencies in the war against terrorism. As part of that legislation, DRO was authorized an enhancement of 40 positions solely for the purpose of apprehending fugitive aliens. Seven districts were assigned these positions to create a Fugitive Operations Section for the purpose of implementing the NFOP. The Absconder Apprehension Initiative announced in the Deputy Attorney General’s directive of January 25, 2002,

indicated that there is a backlog of cases with unexecuted orders of removal. The NFOP will target this backlog by facilitating the apprehension and subsequent removal of those fugitives. The goal over the next ten years will be to eliminate this backlog and to ensure that our efforts in terms of apprehension and removal of fugitive cases equals the number of new cases falling into this category. While woefully inadequate to achieve the goal, the creation of 40 positions dedicated to the NFOP is a promising start. 5. Removal Module (EREM) of the ENFORCE: ENFORCE Removal Module (EREM) is a module of the Enforcement Case Tracking System (ENFORCE) that will support detention and removal operations. As such, it is integrated with applications that support other enforcement operations, e.g. apprehensions, investigations and intelligence. ENFORCE will support all enforcement processes and make enforcement data available at all levels of DHS nationwide. ENFORCE will capture data on individuals, entities, and investigative cases, and support case processing from apprehension through final completion. ENFORCE will be used to support field personnel by producing required forms and reports. Finally, ENFORCE will provide intelligence and management information to support decision makers. EREM goals are to: !" Ensure timely, accurate and complete information; !" Obviate redundant data entry across multiple systems; !" Capture information as a part of the operational workflow; !" Produce forms and statistics, and pass information to partners, customers and stakeholders as a byproduct of information capture;

!" Make structured decisions on the basis of information on hand and business rules; and !" Provide support for optimal decisionmaking. 6. DRO Reorganization: In May 2003, the Assistant Secretary for ICE announced an interim organization structure for the bureau. Within this structure DRO field elements would be geographically realigned to with that of the investigations program and re-subordinated to report directly to HQ DRO, Field Operations. This reorganization will: !" Create a direct line of authority over all DRO elements; !" Develop and practice consistent operations nationwide; !" Develop and apply uniform detention standards; !" Optimize nationwide utilization of bed space and transportation resources; and !" Mirror and fully support the ICE enforcement field structure. The Director, DRO with direct control over field operations and the program’s detention facilities will be in the best position to influence real changes and the regulation needed to address and resolve historical issues regarding the treatment of population, facility and infrastructure conditions, personnel training, and muchneeded standardization of policy and procedures. 7. Increased Removals: Moving toward a 100% rate of removal for all removable aliens allows ICE to provide the level of immigration enforcement necessary to keep America secure. Without this final step in the process, apprehensions made by other DHS programs (such as the Border Patrol, Inspections, and Investigations) will not provide the deterrent or the enforcement tool necessary to secure America’s borders.

Enhancements to the DRO removals program will directly benefit DHS enforcement initiatives (such as the Student Exchange and Visitor Program (SEVP), the United States Visitor and Immigrant Status Indicator Technology (US-VISIT)) by completing the final step in the enforcement process. Only by apprehending and removing those individuals who choose to disregard immigration law, can the overall program be successful. 8. National Fleet System: A comprehensive National Transportation Plan is necessary in order to maximize the use of DRO’s limited air and ground resources while ensuring efficiency. A contract study will consider all transportation means, current routes, and location of existing facilities and potential sites to maximize a forwardthinking transportation plan. Meanwhile, an ongoing replacement and enhancement of the DRO vehicle fleet program that provides for adequate types and numbers of vehicles is instrumental in carrying out the ICE and DRO missions. Based on the needs of DRO, an adequate annual fleet budget should be dedicated to ensure that staff has adequate numbers and appropriate types of vehicles. 9. Soft Detention: Conducting an initiative to provide “softer” (staff secure) detention settings for special populations, such as asylum seekers and family groups, will allow ICE to fulfill the goal of providing appropriate detention conditions. 10. Alternative Methods to Detention: With limited bed space, there is a need to find alternative detention methods for those aliens who do not pose a threat to society and who are not a serious flight risk. There is also a need to ensure that aliens released from secure custody comply with their conditions of release and appear in court when required. In recent years, DRO has developed and implemented several successful non-traditional detention methods to accomplish these objectives. Current alternatives to detention include housing aliens, appropriately, in halfway houses and family shelters. In Berks County, PA, DRO has a detention facility designed to detain family groups and provide for their unique needs. DRO will continue its research into available technology and methods in order to create and provide safe, secure and humane alternatives to detention. Electronic monitoring will also allow for the management of released individuals, thus making bed space available for those aliens posing greater risks of flight or threats to public safety. With these types of options available, DRO can comply with the law while having the flexibility to manage special cases in an appropriate manner. Through these and other non-traditional detention methods, DRO has set a target to increase the rate of appearance by ten points each year until it reaches 100 percent appearance. 11. Partnerships: a) Executive Office of Immigration Review (EOIR): DRO will work to create greater cooperation and partnership with the EOIR to improve the effectiveness of the removal process. Through combined efforts to share information in an electronic and real-time environment, we can create a seamless process expediting the transfer of an alien from the courts to DRO for immediate removal, if that alien has been issued a final order of removal. b) Non-government organizations (NGO)/Community Based Organizations (CBO): DRO will expand on its community outreach programs and work with NGOs and CBOs to educate the public on the purpose and mission of DRO detention. It is important lawmakers, immigration organizations and the public understand the uniqueness of administrative (DRO) detention vs. the punitive detention administered by the BOP and other custodial agencies. DRO will continue to execute its Detention Management Control Plan and market its success in that area with respect to maintaining safe, secure, and humane detention facilities. 12. Foreign Governments: Another critical external factor that influences DRO operations is foreign government policy on repatriation and issuance of travel documents. Travel document and repatriation policies vary from country to country and within the same country, depending on the government and political environment. Countries may refuse return or repatriation based on factors such as criminal background, bloodline, place of birth and, at times, as a political statement to the United States. These policies have created a population of “long-term” detainees that raises detention costs, reduces throughput, and limits bed availability. Through increased cooperation with the Department of State, the DHS Office of International Affairs, and foreign governments, DRO will work to remove these barriers and to establish and develop protocols and procedures that will facilitate the proper and timely removal of unauthorized aliens. Threats Among the many fiscal and political challenges DRO faces daily, the SPWG identified a set of challenges that must be overcome to accomplish its mission. These are challenges that will only be resolved through the implementation and execution of a series of vigorous and directed strategies. These challenges will not be resolved in the near term; they are issues that have plagued the detention and removal program for many years and will take several years of partnering, cooperation and political support to overcome. These strategic challenges are: 1. Growth in Disparity in Detention Workload: Growth in both numbers and diversity in the detention population has created demands for varied and appropriate facilities. In the early 1990s, the majority of ICE detainees were housed in ICE Service Processing Centers (SPCs), private contract facilities, or Bureau of Prisons (BOP) institutions. Today, the majority of detainees are housed in county and local institutions through inter-governmental service agreements (IGSAs). Because DRO does not own these facilities, they have less control over mixing criminal vs. noncriminal populations and ensuring compliance with other jail standards that affect detention. Further exacerbating the problem has been unprecedented slow growth in the detention officer corps over the last 10 years, which is relatively disparate to the growth of the detention population. For example, the rate of detainees per officer grew from 6.7 to 9.0 from 1995 to 1999. This shortfall of DRO officers slows case management and removals processes, increases bed days and further heightens the probability of multiple types of significant incidents that could place detainees, employees and the public in danger. 2. Unique Population: DRO detainees are all held for administrative, not criminal law, violations. They are awaiting the adjudication of their immigration status cases, and are not being held subject to a criminal conviction. This detained population is inherently unique, requiring specialized knowledge and processes to safely and humanely hold in appropriate facilities and meet all operational demands. The DRO detained population includes illegal economic migrants, aliens who have committed criminal acts, asylum-seekers (required to be detained by law) or potential terrorists. These persons can be male, female, unaccompanied juveniles of either gender, or families. Even the detention by DRO of those with criminal convictions (“criminal aliens”) is strictly administrative in nature, not punitive. This necessitates different environments, standards, and population management within DRO facilities than that of other federal, state, county, or local correctional facilities. DRO detainees have unknown lengths of stay in custody because they are dependant on the speed of immigration court hearings, appeal review or removal processing. !" DRO must house adults, juveniles, and families. The separate detention requirements for juveniles and families can be costly. Juvenile detention, in particular, requires “sight and sound” separation from adults, as well as education, recreation, and counseling. !" The co-mingling of criminal and noncriminal detainees is a real concern. The majority of detainees have criminal histories and separating them from non-criminals is important. The DRO classification system was set up to identify and place individuals accordingly. !" Cultural and political rivalries can lead to violence between nationalities. Separating detainees by nationality is often required to keep problems from arising. !" DRO has a large number of detainees with extended lengths of stay. They can be disruptive and are a special security concern in DRO detention because they have no finite detention period. 3. High Detention Throughput and Turnover: DRO detention facilities have a much higher throughput than other DOJ detention providers. Because aliens are being held to facilitate their case processing and potential removal, the lengths of stay in DRO detention vary widely. They are driven by a number of variables including the court’s efficiency in case review and adjudication, the alien’s ability to obtain travel documents and so forth. This creates a fast-paced detention environment with high throughput. The special nature of the DRO detained population requires unique detention procedures and the manpower to process, house, and transport aliens almost continually. DRO’S detention management standards go well beyond the normal "health and humane treatment" issues addressed in BOP and USMS facilities using the core DOJ standards. In order to achieve our goals, DRO follows access standards (access to lawyers, phones, consulates, rights presentations, law libraries) that are all geared to facilitate a rapid and fair processing of aliens' cases. 4. Facilities: The demand for DRO detention has grown much faster than available federal bed space, causing an increased reliance on local jails to house detainees. Reliance on local jails reduces the number of detainees who are under direct DRO supervision and control. Utilizing a variety of small local jails increases cost and transportation needs, and places DRO in direct competition for scarce bed space with other federal and local entities. This factor is particularly critical because DRO has more stringent jail standards than other entities, which limits the number of jails that it can use. 5. Immigration Emergencies: Detention can be affected by unforeseen events occurring in other countries, such as natural disasters (i.e., earthquakes, hurricanes, etc.), war, and economic/political crises. These events can produce a “shock” to DRO detention. Such shocks can produce large numbers of illegal aliens, additional detention needs, and the inability to remove aliens from the U.S. back to countries in crisis. Though these immigration emergencies are relatively short-term in nature, they can have a drastic and enduring impact on available detention space. 6. Alien Population: As of the year 2000, the Immigration and Naturalization Service, in conjunction with the Census Bureau, estimated the size of the nation’s illegal resident population at between eight and eleven million residents (in the country for at least a year). The INS estimated that the illegal immigrant population was rising a net amount of 275,000 per year while the Census Bureau estimated the increase to be 225,000 per year. The INS estimated in 1998 that about two-fifths of the resident illegal alien population entered legally and then lost their legal status by overstaying their authorized visit and/or by illegally taking jobs. Ultimately, this constant unaccounted flow into the country adds to the pool of removable aliens. 7. U.S. Policy: As mentioned at the beginning of this chapter, DRO operations have been and continue to be impacted by changes in U.S. immigration and immigration enforcement policy. Unfortunately, more often than not, these changes are directed in the form of unfunded mandates that force the program to redirect resources from daily operations to current crises, special projects and immediate needs. DRO will continue to serve the President, the Congress and the American people; however, our mission – “to remove all removable aliens” – grows continually more difficult without a commensurate increase in staff, funding, and infrastructure.

Chapter 3. Goals and Objectives

Goal Relationships

DRO developed five strategic goals to guide the program’s operational efforts and resource requirements towards accomplishing its mission and meeting its ultimate objective: remove all removable aliens. Three operational goals are directly aligned with and support the ICE mission and the second of its five (DRAFT) strategic goals and can be further aligned with strategic objectives identified in the National Strategy for Homeland Security. The remaining two goals support ICE’s fourth strategic goal as well as administrative elements within the President’s Management Agenda. These last two are essential to building the infrastructure and capacity to carry out the DRO mission. Homeland Security to DRO The purpose of the National Strategy for Homeland Security “is to mobilize and organize our Nation to secure the U.S. homeland from terrorist attacks.” 2 The original strategy, dated July 2002, identified three strategic objectives for meeting this purpose that were later supplemented with another two during the FY2005-2009 budget development cycle. The plan then aligns its functions essential to achieving these objectives into six critical mission areas. A. DHS Strategic Objectives 1. Prevent terrorist attacks within the United States; 2. Reduce America’s vulnerability to terrorism; 3. Minimize the damage and recover from attacks that do occur;

4. Ensure functions not directly related to homeland security are not diminished or neglected; and 5. Monitor and sever connections between illegal drug trafficking and terrorism; and conduct other efforts to interdict illegal drug trafficking. 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 law enforcement coordination. !" Facilitate apprehension of potential terrorists. 4. Protecting critical infrastructure; 5. Defending against catastrophic terrorism; and 6. Emergency preparedness and response. The critical mission area, Border and Transportation Security, envisions that “federal law enforcement agencies will take swift action against those who…. or violate terms of entry and pose threats to the American people.” 3 Specifically stated within the initiative to create smart borders, “the Department would enter into national law enforcement databases the names of high-risk aliens who remain in the United States longer than authorized and, when warranted, deport illegal aliens.” 4 This statement is the Strategy’s direct link to DRO’s mission: “Remove all removable aliens.” A second element in this mission area is to reform immigration services, and DRO has already completed a step in this process. In May 2003, the Assistant Secretary for ICE announced an interim organization structure for the bureau. Within this structure DRO field elements would be geographically realigned with that of the investigations program and re-subordinated to report directly to HQ DRO, Field Operations Division. This reorganization will: !" Create a direct line of authority over all DRO elements; !" Develop and practice consistent operations nationwide; !" Develop and apply uniform detention standards; !" Optimize nationwide utilization of bed space and transportation resources; and !" Mirror and fully support the ICE enforcement field structure. The Director, DRO with direct control over field operations and the program’s detention facilities will be in the best position to influence real changes and the regulation needed to address and resolve historical issues regarding the treatment of population, facility and infrastructure conditions, personnel training, and much-needed standardization of policy and procedures. The critical mission area, Domestic Counterterrorism, envisions that “we will prosecute or bring immigration or other civil charges against such individuals where appropriate and will utilize the full range of our legal authorities.” DRO operations and goals are linked to this mission area’s first two major initiatives. DRO will work with the FBI on Joint Task Forces and has a lead role in registering over 400,000 fugitive aliens in the FBI’s National Crime Information Center (NCIC). Specific DRO strategies include the development and execution of National Fugitive Operations Plans, which provide the guidance Deportation Officers will need to apprehend those aliens registered in the NCIC for processing and ultimate removal. DHS strategic objectives 1 and 4 flow through the border and transportation security critical mission area into the Department’s directorate of Border and Transportation Security and further down to the Bureau of Customs and Immigration Enforcement (ICE). Through this channel ICE developed a mission statement and (DRAFT) strategic goals to support the DHS objectives. ICE to DRO A. ICE Mission To protect the United States and its people by deterring, interdicting, and investigation threats arising from the movement of people and goods into and out of the United States; and by policing and securing federal facilities across the nation. B. ICE (DRAFT) Strategic Goals 1. Investigating threats, crimes, and administrative violations; 2. Deterring, interdicting, and removing threats; and policing and securing federal facilities; 3. Provide air and marine support to minimize the damage, and assist in the recovery from terrorist attacks; 4. Protect America from customs and immigration violations not directly linked to terrorism; 5. Investigate money laundering and drug operations to disrupt and dismantle their organizations, especially where terrorist related. ICE strategic goals are then aligned with ICE programs. The DRO mission is directly aligned with ICE strategic goals 2 and 4 and Figure 3 below illustrates the complete flow from top to bottom.

C. Indirect Relationships DRO goals can be indirectly linked to the remaining ICE objectives through the service it provides its other immigration enforcement partners. Immigration and homeland security efforts and operations conducted under the remaining ICE goals often yield outputs that result in DRO inputs. That is, DRO is responsible for the detention, processing and removal of aliens apprehended by other immigration and law enforcement partners. DRO does not, however, have control over these enforcement efforts and must rely on its partners to provide estimated service and support needs and resource requirements.

ICE Strategic Goal: Deterring, Interdicting, and Removing Threats; and Policing and Securing Federal Facilities

DRO’s mission is an integral part of the immigration enforcement process and equally critical to protecting our homeland. DRO will support this goal through participation in various task forces, information sharing and any other required law enforcement support. DRO Goal Two – Custody Management: Provide for the safe, secure, and humane confinement of persons detained in accordance with immigration law. !" Objective 2.1 – Provide safe, secure and humane detention facilities and methods. !" Objective 2.2 – Optimize detention space/system. !" Objective 2.3 – Provide alternative ICE detention settings and methods. DRO will develop and implement several strategies and programs to ensure the most cost effective and efficient use of bed space throughout the country while meeting the needs of its unique and very diverse population. DRO will work with other federal detention agencies as roles and responsibilities are redefined to ensure these objectives remain, are not lost in the shuffle, and continue to be supported.

All five of DRO’s goals directly affect the successful execution and accomplishment of this goal. Over the next ten years, through execution of this plan, DRO will build the capacity to remove all removable aliens. DRO’s short-term focus until that capacity is built will be on the identification, location, apprehension, processing, and removal of the criminal element of the illegal alien population.

DRO Goal One – Removals: Promote the integrity of the immigration removals process, deter immigration violations, and reduce recidivism through the implementation of cohesive enforcement strategies in conjunction with other programs facilitating the location, apprehension, processing of illegal aliens, and especially criminals, to ultimately effect appropriate action to include prosecution, detention and/or removal.

DRO Goal Three- Non-Detained Docket: Provide effective control of persons released into the community during immigration proceedings or while awaiting removal. !" Objective 3.1 - Ensure that released individuals comply with the conditions of their release. !" Objective 3.2 – Enhance partnerships with EOIR and immigration judges to correct deficiencies in the system and facilitate the removal process. DHS Strategic Objective: Ensure functions not directly related to homeland security are not diminished or neglected

!" Objective 4.3 – Develop fully automated management information systems. !" Objective 4.4 – Maximize the capability to collect and disseminate intelligence data and trends on a real-time basis to support ICE enforcement objectives. The overarching theme expressed throughout this plan and DRO’s vision statement is the development of the infrastructure and capacity to remove all removable aliens. DRO has created its own information technology and human capital management goals with supporting objectives and strategies to build and maintain a 100% removal capacity. DRO will accomplish its mission when it has the right levels of the right resources and the real property and technology needed to sustain the workforce. DRO Goal 5 – Human Capital Management: Recruit, train and retain adequate numbers of professionals to maximize service-wide performance. !" Objective 5.1 – Develop and implement a uniform staffing model to meet broad program needs. !" Objective 5.2 – Maintain peak performance through continuous staff development. !" Objective 5.3 – Provide an environment for successful retention of DRO employees. !" Objective 5.4 – Maintain peak performance through continuous organizational analysis.

ICE Strategic Goal:

Protect America from customs and immigration violations not directly linked to terrorism

DRO Goal Four – Information Technology: Develop and implement a comprehensive integrated information technology system that provides operational and managerial data and supports all levels of DRO activities. !" Objective 4.1 – Enhance existing data management systems. !" Objective 4.2 – Develop fully automated and integrated case management system.

Milestones

In the next ten years, DRO will secure the resources necessary to implement this plan, execute its strategies and accomplish its mission as a viable and critical partner in the immigration enforcement program. DRO must meet the following milestones to reach its ten-year vision: !" As expeditiously as practicable, DRO will obtain American Corrections Association (ACA) accreditation for all of its owned and contracted detention facilities. !" Within three years, DRO will develop and implement a uniform staffing model and career development program. !" Within three years, DRO will be able to conduct budgetary planning, resource allocation, and cost optimization utilizing a tailored business model with standard costing. !" Within five years, DRO will develop and implement the ability to process removals equal to the number of final orders of removal issued, eliminating the growth of the fugitive alien population. !" Within five years, DRO will implement effective controls to monitor and track aliens under immigration proceedings but not in ICE custody. !" Within five years, all DRO detention facilities will meet or exceed ICE Detention Standards. !" Within five years, DRO will implement a national custody management plan and a national transportation management plan to optimize the use of available bed space and increase removal effectiveness.

!" Within ten years, DRO will eliminate the backlog of fugitive aliens, focusing on criminals first.

Chapter 4. Strategies

Strategic Concept

Endgame sets in motion a cohesive enforcement program to build the capacity to “remove all removable aliens” and eliminate the backlog of unexecuted final order removal cases within the next ten years. The strategies herein have been developed to achieve the program’s goals and objectives, which have been constructed to meet the requirements of the ICE, the DHS, the President, Congress, and the American people. This plan emphasizes the development of a professional workforce, trained and supported with the infrastructure and technology necessary to execute its key processes as efficiently and effectively as possible. It also reinforces the need to develop and sustain an effective case management system as a premier enabling process in both core functions. DRO’s efforts to implement these strategies will be measured through a suite of performance indicators fully defined in the DRO Business Plan, the Annual Performance Plan, and the Implementation Plan.

!" Build partnerships with critical stakeholders; !" Develop a professional workforce and the infrastructure to retain it; and !" Employ mission critical systems and information technology. A. Build Partnerships - DRO will enter into a “partnering” campaign to enhance existing partnerships and create new ones. DRO relies heavily on the support it receives from many of its stakeholders and it is imperative that open and professional cooperation be maintained so that all parties realize positive benefits. Partnerships built on cooperation, and on-time information sharing and data base integration can expand and strengthen the effective management of both the detained and non-detained docket. DRO must maintain active partnerships with other law enforcement agencies and bar officials to ensure that individuals released into the community comply with court orders, appear for hearings, and depart or are removed from the country within specified timelines. DRO will also enter into a public affairs campaign to educate all its stakeholders on this plan and to garner support wherever it can. DRO will maintain a Program Description, for public release, that provides the reader an up-to-date and accurate description of the DRO mission and the procedures it practices to accomplish it. B. Strategic Human Capital Management The "services" DRO offers can only be provided with human resources. Therefore, DRO will direct considerable energies to attracting and retaining a workforce that is professional and well trained, a workforce that does the right things and does them right. DRO seeks to maximize service-wide performance through the accomplishment of four objectives: 1) develop staffing models to meet program needs, 2) maintain peak day-in and day-out, DRO field personnel work to identify, locate, apprehend, process, and remove aliens who are unlawfully present in the United States. These are the five key processes within which the DRO workload can be categorized. The DRO workload can be more generally divided into two core business functions: 1) removal; and 2) custody management. Having laid this foundation, the Strategic Plan Working Group developed five goals with supporting objectives to guide effective and efficient execution of its five key processes.

Foundations for Success

DRO will accomplish its mission and attain its vision by executing a series of strategies and implementing robust programs that will: performance through continuous staff development, 3) provide an environment to retain these valuable human resources, and 4) maintain peak performance through continuous organizational analysis. DRO has begun, with the development of the Immigration Enforcement Agent, to create career development programs affording its officers and staff opportunities for career growth and advancement. In the coming year, DRO will conduct a review to identify disparities in staffing, structure and grades within and between all its facilities. In the year following completion of this review and coincident with the development of professional development and career programs, staffing models will be published to create consistency throughout the workforce. These staffing models will also facilitate accurate resource requirements planning. C. Information Technology – DRO will work with other HQ programs to develop and implement a comprehensive integrated information technology system that provides operational and managerial data and supports all levels of DRO activities. DRO is currently engaged in the development of a removals module that will be integrated into the existing ENFORCE system. The enhanced ENFORCE package will offer greater integration and support than the previous one. Information technology support will not stop at the development of operations databases and systems. DRO will continue to equip itself with office automation assets that follow the industry standards and afford the staff the capabilities to perform their daily routines in the most efficient ways possible.

successful accomplishment of DRO’s core function (removal), the efforts of other immigration enforcement programs have limited impact. For what purpose does it serve to apprehend illegal aliens if the only consequence to their apprehension is being released and never found again to be deported? Therefore, DRO’s strategic plan, Endgame, will supplement and support the ICE enforcement strategy and will guide DRO through its role in the process. This chapter provides the strategies the program will undertake as it moves forward in building the capacity to remove all removable aliens and to complete the enforcement process. The key to sustained success is the development of a sound and logical planning process that will drive operations and ultimately resource requirements.

Personnel from top to bottom must be well trained and retained; the leadership must be visionary; operations must be guided by standard policy, efficient procedures and logical planning; and the program must maintain the physical infrastructure (transportation, detention space, work environment) essential to carrying out the mission. Finally, such infrastructure must be supported with state-of-the-art information technology to facilitate effective and efficient management and operation. In the near term, and beginning with the publication and distribution of this plan, DRO will enter into a cyclical planning process and develop a five-year business plan that will integrate resource requirements with operational demands. This planning process will challenge DRO staff to build its future and prepare to provide services for known and unknown demands. With this system in place, DRO will position itself and develop the flexibilities needed to refocus, redirect and reallocate resources to address and Strategic Challenges and Success Factors.

Strategic Challenges Endgame outlines both short- and long-term strategies that, when implemented, will facilitate realization of its vision. Some strategies can and will be implemented immediately, while others will require time to plan and develop. In pursuit of accomplishing the mission professionally, efficiently and effectively, these strategies will address the many known and unknown challenges DRO faces and expects to face during the same time frame. Some of those strategic challenges have been identified as: !" The number of aliens to remove !" Limited resources (both human and fiscal) !" The education of stakeholders !" Political will !" Foreign governments !" Non-removable aliens !" An efficient and effective removal process !" The optimization of the detention system and its process at both national and local levels. Key Success Factors Key success factors address the issues raised by these challenges and guide further development of goals, objectives and performance standards and measures. Efforts must be expended in these areas to address and overcome the strategic challenges and to accomplish the DRO mission. The key success factors are: !" Percent of removals related to final orders issued !" Timeliness of removal !" Increased identification and apprehension of absconders !" Expedient receipt of travel documents !" Minimized incident rates in removals !" Minimized error rates in removals !" Enough space to detain all “referrals” !" Safe and secure custody management and transportation through compliance with standards !" Minimized length of alien case processing through EOIR !" Length of stay in ICE detention !" Optimized cost effectiveness !" Reductions in recidivism and crime

DRO’s ultimate goal is to develop the capacity to remove all removable aliens. This plan identifies several strategies the program will undertake and milestones it must accomplish to reach that goal. The program must implement and execute a series of strategies sequentially and simultaneously in order to achieve the following milestones: !" Reduce the absconder backlog. !"