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Management Alert -

DHS Needs to Address 

Dangerous Overcrowding 

Among Single Adults at 

El Paso Del Norte 

Processing Center 

(Redacted) 

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CONTAINS PRIVACY ACT INFORMATION - DO NOT DISCLOSE 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Washington, DC 20528 / www.oig.dhs.gov 

May 30, 2019 

MEMORANDUM FOR: The Honorable Kevin K. McAleenan 

Acting Secretary 

Department of Homeland Security 

FROM: John V. Kelly 

Acting Inspector General 

SUBJECT: Management Alert – DHS Needs to Address Dangerous 

Overcrowding Among Single Adults at El Paso Del Norte 

Processing Center 

For your action is our final management alert, Management Alert – DHS Needs 

to Address Dangerous Overcrowding Among Single Adults at El Paso Del Norte 

Processing Center, the purpose of which is to notify you of urgent issues that 

require immediate attention and action. Specifically, we are recommending that 

the Department of Homeland Security (DHS) take immediate steps to alleviate 

dangerous overcrowding at the El Paso Del Norte Processing Center (PDT). 

Issuance of this management alert is consistent with our duties under the 

Inspector General Act of 1978, as amended, to conduct inspections and 

recommend policies to promote economy, efficiency, and effectiveness in DHS 

programs and operations. 

We have incorporated the formal comments provided by your office on the draft 

management alert and appended them verbatim. Your office concurred with the 

recommendation we made to alleviate overcrowding at PDT, but gave a target 

completion date of November 30, 2020. Because DHS’s corrective action is 

critical to the immediate health and safety needs of detainees, who cannot 

continue to be held in standing-room-only conditions for weeks until additional 

tents are constructed, we consider the recommendation open and unresolved. 

We will continue our spot inspections of the southern border facilities and may 

revisit El Paso sector sites to monitor overcrowding. 

Consistent with our responsibility under the Inspector General Act, we will 

provide copies of our alert to congressional committees with oversight and 

appropriation responsibility over DHS. We also will post the alert on our 

website for public dissemination. 

Please call me with any questions, or your staff may contact Diana Shaw, 

Assistant Inspector General for Special Reviews and Evaluations, at 

(202) 981-6000. 

CONTAINS PRIVACY ACT INFORMATION - DO NOT DISCLOSE
 
 

 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Background 

In May 2019, U.S. Customs and Border Protection (CBP) and Border 

Patrol leadership jointly testified before Congress that they are 

experiencing an unprecedented border security and humanitarian crisis 

along the southwest border. According to CBP statistics, the number of 

southwest border migrant apprehensions during the first seven months 

of FY 2019 has in general already surpassed that of the total 

apprehensions for each of the previous four fiscal years. At the sector 

level, El Paso has experienced the sharpest increase in apprehensions 

when comparing the first seven months of FY 2019 to the same period in 

FY 2018. Table 1 shows the total number of apprehensions by category 

and the percent increase for the El Paso sector. 

Table 1. El Paso Sector Border Patrol Apprehensions 

Apprehensions

October 2017 to 

April 2018 

Apprehensions

October 2018 to 

April 2019 

Percent 

Increase 

Unaccompanied Alien 

Children 

2,116 10,027 374% 

Family Units 3,865 74,072 1,816% 

Single Adults 7,665 13,953 82% 

Total 13,646 98,052 619% 

Source: Border Patrol southwest border apprehensions by sector 

During the week of May 6, 2019, we visited five Border Patrol stations 

and two ports of entry in the El Paso area, including greater El Paso and 

eastern New Mexico, as part of our unannounced spot inspections of CBP 

holding facilities. We reviewed compliance with CBP’s Transport, Escort, 

Detention and Search (TEDS) standards,1 which govern CBP’s interaction 

with detained individuals, and observed dangerous holding conditions at 

the El Paso Del Norte Processing Center (PDT) Border Patrol processing 

facility, located at the Paso Del Norte Bridge, that require immediate 

attention. Specifically, PDT does not have the capacity to hold the 

hundreds currently in custody safely, and has held the majority of its 

detainees longer than the 72 hours generally permitted under the TEDS 

standards (TEDS 4.1).2 

1 U.S. Customs and Border Protection, National Standards on Transport, Escort,
 

Detention, and Search, October 2015. 

2 TEDS 4.1 provides that “[d]etainees should generally not be held for longer than 72 

hours in CBP hold rooms or holding facilities. Every effort must be made to hold 

detainees for the least amount of time required for their processing, transfer, release, or
 

repatriation as appropriate and as operationally feasible.”
 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Overcrowding and Prolonged Detention at the PDT Border Patrol Facility 

Puts Detainees and DHS Personnel at Risk 

According to PDT Border Patrol processing facility staff, the facility’s 

maximum capacity is 125 detainees. However, on May 7 and 8, 2019, 

Border Patrol’s custody logs indicated that there were approximately 750 

and 900 detainees on site, respectively. TEDS standards provide that 

“under no circumstances should the maximum [cell] occupancy rate, as 

set by the fire marshal, be exceeded” (TEDS 4.7). However, we observed 

dangerous overcrowding at the facility with single adults held in cells 

designed for one-fifth as many detainees (see Figures 1 through 3). 

Specifically, we observed: 

x a cell with a maximum capacity of 12 held 76 detainees (Figure 1); 

x a cell with a maximum capacity of 8 held 41 detainees (Figure 2); and 

x a cell with a maximum capacity of 35 held 155 detainees (Figure 3). 

Figure 1: Overcrowding of Adult Females in PDT Holding Cell Observed by 

OIG on May 8, 2019 

Source: OIG 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Figure 2: Overcrowding of Adult Females in PDT Holding Cell Observed by 

OIG on May 7, 2019 

Source: OIG 

Figure 3: Overcrowding of Adult Males in PDT Holding Cell Observed by 

OIG on May 7, 2019 

Source: OIG 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

PDT’s seven general cells and three small isolation cells are unable to 

accommodate the number of detainees currently being held at the 

processing facility within TEDS standards. Further limiting available 

space is the need to separate detainees with infectious diseases, such as 

chicken pox, scabies, and influenza, from each other and from the 

general population. 

Border Patrol agents told us some of the detainees had been held in 

standing-room-only conditions for days or weeks. According to Border 

Patrol’s custody logs, there were 756 detainees on site when we visited 

PDT on May 7, 2019. Of those, 502 detainees (66 percent) had been held 

at PDT for longer than 72 hours, with 33 detainees (4 percent) held there 

for more than two weeks. On May 8, 2019, we returned to PDT for 

another unannounced spot inspection and observed that some family 

units and adult females had been transferred, but overall numbers were 

even higher as additional detainees had arrived for processing. According 

to Border Patrol staff, on May 8, 2019, the total number on site was 

approximately 900. 

During our visits, we observed the triage of hundreds of detainees 

outside in the PDT parking lot. There were approximately 75 people 

treated for lice, hundreds of family units waiting in the tented area to be 

processed,3 and hundreds of detainees in line to surrender their 

valuables, such as money and phones, to DHS staff.4 Figure 4 depicts 

some of the outdoor lines we observed on May 7, 2019, and May 8, 2019. 

We also observed staff discarding all other detainee property, such as 

backpacks, suitcases, and handbags, in the nearby dumpster (see Figure 

5). Border Patrol personnel told us that these items might be wet, have 

bugs, and be muddy, and, therefore, presented a “biohazard.”5 

3 PDT staff informed us that as of May 11, 2019, PDT no longer holds family units in 

the parking lot. 

4 DHS has detailed CBP Office of Field Operations officers to assist with custody 

management at PDT. 

5 Border Patrol personnel are responsible for ensuring a healthy and safe work 

environment including prompt identification and abatement of hazards related to 

unsafe or unhealthful working conditions as per the CBP Occupational Safety & Health 

Handbook (Office of Human Resources Management, Occupational Safety & Health 

Division: HB 5200-08B, September 2012). 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Figure 4: Family Units and Single Adults in the PDT Parking Lot Observed 

by OIG on May 7 and 8, 2019, Respectively 

Source: OIG 

Figure 5: Dumpster with Detainee Personal Property Observed by OIG on 

May 8, 2019 

Source: OIG 

We are concerned that overcrowding and prolonged detention represent 

an immediate risk to the health and safety not just of the detainees, but 

also DHS agents and officers. Border Patrol management on site said 

there is a high incidence of illness among their staff. Border Patrol 

management at PDT and other sites also raised concerns about employee 

morale and that conditions were elevating anxiety and affecting 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

employees’ personal lives. They noted that some employees eligible for 

retirement had accelerated their retirement dates, while others were 

considering alternative employment opportunities. 

In addition, Border Patrol management on site said there is an ongoing 

concern that rising tensions among detainees could turn violent. We 

observed that staff must enter crowded cells (see Figure 6) or move large 

numbers of detainees for meals, medical care, and cell cleaning. For 

example, at the time of our visit, 140 adult male detainees were crowding 

the hallways and common areas of the facility while their cell was being 

cleaned. We observed staff having difficulty maneuvering around this 

crowd to perform their duties, and were told that staff feel they have 

limited options if detainees decide not to cooperate. 

Figure 6: Armed Border Patrol Agent Verifying Temperature in PDT Single 

Adult Female Holding Cell Observed by OIG on May 7, 2019 

Source: OIG 

The overcrowded conditions also complicate efforts to ensure compliance 

with TEDS standards. For example, CBP was struggling to maintain 

hygienic conditions in the holding cells. With limited access to showers 

and clean clothing, detainees were wearing soiled clothing for days or 

weeks. Although TEDS standards do not require a change of clothing for 

adults, Border Patrol agents said they were nevertheless trying to obtain 

clean clothing for adult females because the lack of clean clothes was 

“wearing down on them.” We also observed detainees standing on toilets 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

in the cells to make room and gain breathing space, thus limiting access 

to the toilets. Border Patrol agents said detainees who were not ill were 

raising medical complaints to obtain temporary release from the cells, 

adding to the medical staff’s burden.6 

DHS Needs a Coordinated Approach to Managing Long-Term Detention 

during Sharp Increase in Apprehensions 

Although CBP headquarters management has been aware of the 

situation at PDT for months and detailed staff to assist with custody 

management, DHS has not identified a process to alleviate issues with 

overcrowding at PDT. Within DHS, providing long-term detention is the 

responsibility of U.S. Immigration and Customs Enforcement (ICE), not 

CBP.7 El Paso sector Border Patrol management said they are able to 

complete immigration processing for most detainees within a few days, 

but have not been able to transfer single adults into ICE custody 

quickly. Border Patrol managers at the stations we visited said they call 

ICE daily to request detention space for single adults. They said in some 

instances ICE officers tell them they cannot take the detainees. In other 

instances, ICE initially agrees to take some adult detainees, but then 

reverses the decision. 

ICE has the infrastructure to transport and detain aliens nationwide, but 

its current ability to do both of these tasks is also strained.8 ICE senior 

managers stated that ICE does not currently have sufficient detention 

bed space to take all of Border Patrol’s adult detainees, and explained 

that Border Patrol has the authority to decide which detainees are the 

highest priority to transfer to ICE custody. ICE managers also stated that 

ICE prioritizes requests from CBP over any other requests for bed space 

and, when possible, uses its national transportation system to fly and 

transport detainees to available detention beds. 

When we discussed the situation at PDT with ICE, ICE officials suggested 

the El Paso sector could develop a single point of contact to better 

prioritize requests for adult detention beds. They said with individual 

Border Patrol stations making requests to ICE, the highest priority 

detainees may not be transferred to ICE. Prioritization could alleviate the 

6 At the time of our visit, contract medical staff had been on site for 3 months to screen 

detainees and treat minor ailments. 

7 See 6 U.S.C. § 211(c)(8)(B). 

8 ICE has detailed 32 officers to assist its local staff with processing aliens apprehended 

in El Paso sector; 24 are assisting with family units, and 8 with single adults. ICE is 

processing family units for release daily, and accepts single adults into ICE detention 

facilities as soon as space becomes available. 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

situation at PDT and in the El Paso sector in the short term, but would 

not contribute to a coordinated DHS approach to managing long-term 

detention during this sharp increase in border apprehensions. 

Recommendations 

We recommend the Acting Secretary of DHS: 

1. Take immediate steps to alleviate the overcrowding at the El 

Paso Del Norte Bridge Processing Center (PDT). 

DHS Management’s Response and OIG Analysis 

DHS management provided written comments on a draft of this alert. We 

included a copy of DHS’ management comments in their entirety in 

appendix A. We also incorporated DHS’ technical comments in the final 

alert, as appropriate. 

DHS Response to Recommendation #1: 

Concur. CBP has constructed a 500-person holding capacity soft-sided 

structure at El Paso Station, will construct an additional tent by July 31, 

2019, and will open a Centralized Processing Center within 18 months. 

CBP will continue to review the number of migrants in custody at Border 

Patrol stations to determine available space and transfer subjects 

accordingly. The Border Patrol, through its single point of contact at El 

Paso Sector, will continue to communicate with ICE to improve the 

migrant transfer process. 

The estimated completion date is November 30, 2020. 

OIG Response: 

We observed conditions at the El Paso Del Norte Processing Center (PDT) 

Border Patrol facility that represent an immediate risk to the health and 

safety of detainees and DHS employees. Specifically, Border Patrol agents 

told us some single adults had been held in standing-room-only 

conditions for days or weeks. Border Patrol management on site said 

there is an ongoing concern that rising tensions among detainees could 

turn violent. Dangerous overcrowding among single adults in PDT 

requires immediate action. 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

While we consider the actions outlined in DHS’ response to be partially 

responsive to the recommendation, the recommendation will remain 

unresolved and open until DHS offers an immediate corrective action 

plan to address the dangerous overcrowding at PDT. 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix A 

DHS’s Management Comments to the Draft Management Alert 

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encountered over I 03,000 illegal border crossers and inadmissible aliens. In April 2019, 

that number exceeded I 09,000-the highest monthly levels in more than a decade. 

DHS has taken steps to ensure an elevated standard of care in response to the current 

humanitarian crisis and has directed additional personnel and resources to the border. 

CBP has constructed a weatherproof and climate-controlled soft-sided structure in the El 

Paso Sector. The structure will allow Border Patrol agents to expedite, process, and 

transpo11 migrants to ICE or the U.S. Department of Health and Human Services. The 

structure provides areas for eating, sleeping, recreation, and personal hygiene for up to 

500 peojple. There are also separate areas for processing, medical evaluations, bathroom 

facilities, laundry, trailers, sleeping mats, kitchen equipment, personal property storage 

boxes, office space, television, and lockers. 

Additionally, a modular facility that is capable of holding up to 800 people is projected to 

be in use by July 2019. Construction of a permanent Centralized Processing Center 

(CPC) in El Paso is planned to further alleviate overcrowding. The CPC is expected to 

be operational in approximately 18 months, with a holding capacity of approximately 

1,800. Congress can also help by working on targeted solutions to restore integrity to our 

immigration system and remove the incentives for families and children to cross om 

border illegally. 

The draft report contained one recommendation, with which the Department concurs. 

Attached find our detailed response to the recommendation. Technical comments were 

previously provided under separate cover. 

Again, thank you for the opportunity to review and comment on this draft report. Please 

feel free to contact me if you have any questions. We look forward to working with you 

again in the future. 

Attachment 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

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Attachment: Management Response to Recommendation 

Contained in 19-039-SRE-CBP 

The OIG recommended that the Acting Secretary of DHS: 

Recommendation I: Take immediate steps to alleviate the overcrowding at El Paso Del 

Norte Processing Center (PDT). 

Response: Concur. In an effort to alleviate the overcrowding at the PDT brought on by 

the unprecedented increase in the number of families and children arriving at the 

Southwest Border, CSP has implemented a multi-layered approach. 

CBP has constructed a 500 holding capacity soft-sided structure at El Paso Station that 

has been operational since May 2, 20 l 9. CBP will construct an 800 holding capacity 

modular facility at El Paso Station to be operational by July 3 I, 20 I 9. In addition, a 

permanent CPC with a holding capacity of approximately 1,800 is planned to further 

alleviate overcrowding in El Paso. It is scheduled to be operational withjn 18 months. 

CBP will continue to review the number of migrants in custody at USBP stations within 

El Paso Sector to determine available space and transfer subjects accordingly. USBP, 

through its single point-of-contact at El Paso Sector, will continue to communicate with 

ICE's Enforcement and Removal Operations to improve the migrant transfer process. 

In an effort to supplement staff, CBP will continue to temporarily detail Border Patrol 

Agents and CBP Surge Force personnel to El Paso Sector, as well as utilize personnel 

from the U.S. Department of Defense. 

Due to capacity issues, USBP will continue processing non-criminal family units for 

immediate release under an order of recognizance. 

Estimated Completion Date: November 30, 2020. 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix B 

Management Alert Distribution 

Department of Homeland Security 

Secretary 

Deputy Secretary 

Chief of Staff 

General Counsel 

Executive Secretary 

Director, GAO/OIG Liaison Office 

Under Secretary Office of Strategy, Policy, and Plans 

Assistant Secretary for Office of Public Affairs 

Assistant Secretary for Office of Legislative Affairs 

Commissioner, CBP 

CBP Component Liaison 

Office of Management and Budget 

Chief, Homeland Security Branch 

DHS OIG Budget Examiner 

Congress 

Congressional Oversight and Appropriations Committees 

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ADDITIONAL INFORMATION AND COPIES 

To view this and any of our other reports, please visit our website at: 

www.oig.dhs.gov. 

For further information or questions, please contact Office of Inspector General 

Public Affairs at: DHS-OIG.OfficePublicAffairs@oig.dhs.gov. 

Follow us on Twitter at: @dhsoig. 

OIG HOTLINE 

To report fraud, waste, or abuse, visit our website at www.oig.dhs.gov and click 

on the red "Hotline" tab. If you cannot access our website, call our hotline at 

(800) 323-8603, fax our hotline at (202) 254-4297, or write to us at: 

Department of Homeland Security 

Office of Inspector General, Mail Stop 0305 

Attention: Hotline 

245 Murray Drive, SW 

Washington, DC 20528-0305 

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