Special Report: 

Challenges Facing DHS in 

Its Attempt to Hire 15,000 

Border Patrol Agents and 

Immigration Officers 

July 27, 2017 

OIG-17-98-SR
 
 

 

 

 

 

 

 

DHS OIG SPECIAL REPORT 

Challenges Facing DHS in Its Attempt to Hire 

15,000 Border Patrol Agents and Immigration Officers 

July 27, 2017 

Why We Did 

This Review 

On January 25, 2017, the 

President directed DHS to hire 

an additional 15,000 law 

enforcement officers. Our 

objective was to determine 

whether the Department and 

its components have the 

human capital strategies and 

capabilities to quickly and 

effectively hire a highly 

qualified and diverse 

workforce. 

What We 

Recommend 

While we made no 

recommendations, this report 

provides lessons learned from 

prior DHS OIG, Government 

Accountability Office, and 

DHS departmental reports on 

challenges relating to hiring 

and other important areas of 

human capital management. 

For Further Information: 

Contact our Office of Public Affairs at 

(202) 254-4100, or email us at 

DHS-OIG.OfficePublicAffairs@oig.dhs.gov 

What We Found 

The Department, U.S. Customs and Border 

Protection (CBP), and U.S. Immigration and 

Customs Enforcement (ICE) are facing significant 

challenges in identifying, recruiting, hiring, and 

fielding the number of law enforcement officers 

mandated in the Executive Orders. Neither CBP 

nor ICE could provide complete data to support 

the operational need or deployment strategies for 

the additional 15,000 additional agents and 

officers they were directed to hire. Although DHS 

has established plans and initiated actions to 

begin an aggressive hiring surge, in recent years 

the Department and its components have 

encountered notable difficulties related to long 

hire times, proper allocation of staff, and the 

supply of human resources. 

Proper workforce planning is needed to ensure 

correct staffing levels, ratios, and placements, 

and to guide targeted recruitment campaigns. 

Conversely, inadequate workforce planning will 

likely undermine the ability of CBP and ICE to 

achieve hiring mandates and perform mission 

essential duties and functions. 

www.oig.dhs.gov OIG-17-98-SR 
OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

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


July 27, 20 17 


MEMORANDUM FOR: The Honorable General John F. Kelly 

Secretary 

Department of Homeland Security 

FROM: John Roth ~\;v.....\(.o~ Inspector General 

SUBJECT: Special Report: Challenges Facing DHS in Its Attempt to 

Hire 15, 000 Border Patrol Agents and Immigration 

Officers 

Attached is our final special report, Challenges Facing DHS in Its Attempt to 

Hire 15, 000 Border Patrol Agents and Immigration Officers. This report was 

conducted under the Inspector General Act of 1978, as amended, Section 2-2, 

to provide leadership and coordination and recommend policies for activities 

designed to promote economy, efficiency, and effectiveness in the 

administration of, and to prevent and detect fraud and abuse in, such 

programs and operations. 

As the first report in a series of reviews of DHS' Human Capital Strategies and 

Management Capabilities, this report describes lessons learned from prior DHS 

Office of Inspector General (OIG), Government Accountability Office (GAO), and 

DHS departmental reports on challenges relating to hiring and other important 

areas of human capital management. 

We provided a draft report for your comments. We received the Department's 

response and also received technical comments from CBP. We have included 

the Department's response as an appendix in this report and incorporated the 

technical comments as appropriate. Consistent with our responsibility under 

the Inspector General Act, we will provide copies of this report to appropriate 

congressional committees with oversight and appropriation responsibility over 

the Department of Homeland Security. We will post a version of the report on 

our website for public dissemination. 

Please call me with any questions, or your staff may contact John V. Kelly, 

Deputy Inspector General, at (202) 254-4100. 

Attachment 

www.oig.dhs.gov 
 

 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Background 

On January 25, 2017, the President issued two Executive Orders directing the 

Department of Homeland Security to hire an additional 5,000 Border Patrol 

Agents and 10,000 Immigration Officers. On February 20, 2017, the Secretary 

of Homeland Security issued implementing memoranda in support of the 

Executive Orders. The Secretary directed Customs and Border Protection (CBP) 

and Immigration and Customs Enforcement (ICE) to ensure consistency in 

training and standards while taking action immediately to begin the hiring 

process. The memoranda also provide guidance for CBP and ICE to hire 

mission support staff to assist the 15,000 new agents and officers. 

In response to the President’s Executive Orders, CBP and ICE developed 

staffing estimates spanning human resources (HR), facilities, and information 

technology. CBP estimates it must hire more than 3,000 and ICE estimates it 

must hire more than 6,500 technical and operational support staff. The 

Secretary also directed CBP to hire 500 new Air and Marine Officers. 

On April 5, 2017, the Office of Personnel Management (OPM) granted Direct 

Hire Authority to DHS to meet the critical hiring need created by the 

requirements of the Executive Orders.1 The Direct Hire Authority is authorized 

for: 

CBP to direct hire 8,721 personnel to fill mission critical 

positions at various grade levels at all geographic locations 

along the Southern Border as well as Florida and Caribbean 

duty stations; and ICE to direct hire 10,393 personnel to fill 

mission critical positions at various grade levels nationwide. 

The Direct Hire Authority will expire on April 5, 2019. No new appointments 

may be made after this expiration date and all new employees must enter on 

duty on or before April 5, 2019. 

Although DHS has established plans and initiated actions to begin the hiring 

surge, in recent years the Department and its components have encountered 

difficulties related to long hire times, proper allocation of staff, and the supply 

1 A Direct Hire Authority is an appointing (hiring) authority that the Office of Personnel 

Management can give to Federal agencies for filling vacancies when a critical hiring need or 

severe shortage of candidates exists. A Direct Hire Authority enables an agency to hire, after 

public notice is given, any qualified applicant without regard to 5 United States Code 3309-

3318, 5 Code of Federal Regulation (CFR) part 211, or 5 CFR part 337, subpart A. A Direct Hire 

Authority expedites hiring by eliminating competitive rating and ranking, veterans' preference, 

and "rule of three" procedures. When using the numerical ranking process, OPM’s “rule of 

three” means selections must be made from the three highest ranked applicants. 

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OFFICE OF INSPECTOR GENERAL 

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of human resources. In October 2016, OIG reported that additional steps in the 

DHS hiring process for law enforcement applicants contribute to lengthy hiring 

times, and that components did not have the human resources staff or 

comprehensive automated systems needed to hire personnel as efficiently as 

possible.2 

In December 2016, the DHS Office of the Chief Human Capital Officer issued 

the Human Capital Accountability Plan (plan). This plan was designed to ensure 

Department and component level human capital programs, policies, and 

services align with mission accomplishment and operate efficiently and 

effectively. Among other things, the plan helps to ensure human capital 

management activities are guided by results-oriented, data-driven processes. 

The same office also issued the DHS Workforce Planning Guide (guide) in 2012. 

This guide outlines steps, tools, and resources to plan for current and future 

organizational and workforce needs. 

To better inform and prepare the Department as it embarks on this large scale 

hiring effort, this report highlights human capital management approaches (or 

fundamentals) necessary to achieve successful workforce planning. The report 

is intended to help DHS, ICE, and CBP meet aggressive hiring goals while 

avoiding pitfalls that could lead to improper need determinations, poor hiring 

choices, inadequate operational implementation, and excessive cost 

inefficiencies. 

Fundamentals Necessary to Achieve 

Successful Workforce Planning Key Elements for 

Successful Workforce 

Planning The Department, CBP, and ICE are facing 

significant challenges in identifying, recruiting, x Using a Workforce 

hiring, and fielding the number of law enforcement Staffing Model 

officers mandated in the Executive Orders. Proper x Defining operational 

workforce planning is needed to ensure correct needs and deployment 

strategies staffing levels, ratios, and placements, and to guide x Ensuring adequate targeted recruitment campaigns. human resources 

staffing 

Conversely, inadequate workforce planning will x Developing Recruitment 

likely undermine the ability of CBP and ICE to and Retention Strategies 

achieve hiring mandates and perform mission 

Source: OIG Analysis essential duties and functions. 

Without proper human capital needs analysis, CBP 

2 DHS Is Slow to Hire Law Enforcement Personnel (OIG-17-05; October 2016) 

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OFFICE OF INSPECTOR GENERAL 

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and ICE are not able to identify clearly the number and type of employees 

required, positions that must be filled, or where to deploy employees for 

greatest impact. Additionally, without enough sufficiently trained HR staff and 

comprehensive recruiting strategies to attract qualified candidates, even the 

best workforce staffing plans cannot be completed. 

CBP and ICE Must Use a Comprehensive Workforce Staffing Model 

According to OPM, workforce planning serves as the foundation for managing 

an organization's human capital. Workforce plans enable organizations to 

strategically meet current and future workforce needs and prevent unnecessary 

disruptions in maintaining a steady-state workforce. Workforce plans assist 

organizations to fill positions with the right employees, with the necessary 

competencies, and meet future organizational goals and objectives. The more 

effective the workforce plan, the better the organization can leverage its human 

capital to accomplish its strategic goals. OPM lists five key components to an 

effective workforce plan: 

• Set Strategic Direction 

• Analyze Workforce, Identify Skill Gaps 

• Develop Action Plan 

• Implement the Plan 

• Monitor, Evaluate and Revise the Plan 

Without a comprehensive workforce model, DHS will continue to struggle to 

accomplish its missions in a cost-effective manner. For example, in April 2016 

we determined CBP did not: 1) properly assess the major duties its criminal 

investigators perform, 2) conduct an adequate analysis of its staffing needs, or 

3) develop performance measures to assess the effectiveness of its investigative 

operations.3 Without a comprehensive process and analysis, CBP may have 

improperly spent approximately $3.1 million and as much as $22.6 million 

over 5 years for questionable Law Enforcement Availability Pay. 

Likewise, in July 2014, OIG reported that CBP’s Office of Field Operations’ 

Workforce Staffing Model results may not be accurate because CBP did not 

ensure that the data entered into the model was reliable.4

 Improving data 

reliability and strengthening internal controls over the Workload Staffing Model 

would ensure that CBP is efficiently allocating staffing resources and 

submitting budget requests that accurately reflect staffing needs. 

3 CBP Needs Better Data to Justify Its Criminal Investigator Staffing (OIG-16-75; April 2016) 4 U.S. Customs and Border Protection’s Workload Staffing Model (OIG-14-117; July 2014) 

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Proper workforce staffing processes include, but are not limited to, identifying 

mission-critical occupations and competencies to achieve strategic goals. These 

processes systematically define the size of the workforce needed to meet 

organizational goals; and use workforce planning reports, studies, and 

benchmarks to determine the most effective work levels, workloads, and 

resources for efficient operations. Completing these actions first is necessary to 

ensure DHS and its components identify and clearly define their operational 

needs, deployment strategies, and mission support personnel required for 

success. This approach also creates the foundation for building realistic, factbased cost estimates to fulfill the Department’s mission. 

CBP and ICE Must Determine Operational Needs and Develop Deployment 

Strategies 

DHS struggles to identify and align its components’ operational needs and 

deployment strategies to achieve the most efficient, effective, and economical 

operational outcomes. An operational needs assessment identifies and 

characterizes gaps in existing capabilities that are significant impediments to 

achieving the mission area objectives. In our fiscal year 2016 report on Federal 

Protective Service Fleet Management,5 we determined that the Federal 

Protective Service did not justify its operational need when procuring vehicles 

for its officers. As a result, it was not operating the most efficient fleet and was 

missing opportunities to save the government more than $2.5 million in 

FY 2014. 

Deployment strategies ensure management decisions are aligned with 

organizational goals and objectives. CBP and ICE have developed estimates 

regarding potential future deployment locations for the mandated agents and 

officers. CBP plans to initially send all 5,000 agents to the Southwest Border to 

various stations, and then at some future time, move 1,650 to other locations, 

including the Northern and Coastal borders, CBP’s special operations group, 

and Border Patrol headquarters. ICE, on the other hand, plans to immediately 

disperse the majority of its 10,000 newly hired officers nationally to its various 

regions over the next 5 years. 

According to our FY 2014 report, Transportation Security Administration’s 

Deployment and Use of Advanced Imaging Technology,6 TSA would have 

benefited from using a strategic deployment plan to guide its placement of 

Advanced Imaging Technology screening equipment. Similarly, staffing 

deployment plans for the current DHS hiring surge would provide CBP and ICE 

5 The FPS Vehicle Fleet Is Not Managed Effectively (OIG-16-02; October 2015)
 6 Transportation Security Administration’s Deployment and Use of Advanced Imaging Technology
 

(OIG-13-120 (Revised); March 2014) 

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OFFICE OF INSPECTOR GENERAL 

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a baseline to respond to and plan for evolving threats, goals, and priorities. By 

using deployment strategies for the current hiring surge, CBP and ICE would 

ensure both existing and newly hired personnel are aligned with DHS’s highest 

priority areas. 

The consequences of a lack of an effective workforce deployment strategy can 

be seen in our recent inspection report on ICE deportation operations.7 We 

found that the deportation workloads in various ICE field offices was uneven, 

resulting in some deportation officers being overwhelmed with their caseloads. 

ICE could not adequately explain the reasons for the workload differences at 

the locations we visited. Many of those working with non-detained aliens 

reported they had difficulty fulfilling all their responsibilities, such as working 

with embassies and consulates to obtain travel documents necessary for 

deportation, interviewing aliens under their supervision, and running criminal 

checks on aliens in their docket. Yet, ICE has not collected or analyzed 

workload data to determine the time and effort Deportation Officers need to 

adequately supervise and facilitate the deportation of non-detained aliens. 

Without workload data, ICE cannot ensure its caseload distribution is balanced 

and that non-detained workloads are achievable. ICE also cannot measure 

performance and apply lessons learned to ensure effective and efficient 

supervision and deportation of aliens. 

Neither CBP nor ICE could provide complete data to support the operational 

need or deployment strategies for the additional 15,000 agents and officers 

they were directed to hire. CBP officials explained they had been working for 3 

to 4 years already, but are still 3 to 4 more years away from implementing a 

process to obtain and analyze accurate operational needs and deployment 

data. Without well-defined operational needs and comprehensive deployment 

strategies, DHS may not be able to achieve the correct number, type, and 

placement of personnel. 

Border Patrol Agents Are Not Always on the Border 

CBP officials provided the Border Patrol’s Table of Organization to show which 

sectors and duties the 21,370 authorized Border Patrol Agents are assigned. 

CBP officials also provided the Border Patrol’s Staffing Structure, which lists the 

planned number and percentage of workforce to be assigned to leadership and 

staff positions. As shown in figure 1, as of April 1, 2017, approximately 4,704 

(24 percent) of the 19,565 active duty agents were assigned to leadership or 

administration duties in the Southwest Border Region. This leaves about 

12,013 (61 percent) assigned to directly engage in conducting apprehensions 

7 ICE Deportation Operations (OIG-17-51; April 2017) 

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OFFICE OF INSPECTOR GENERAL 

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and arrests on the Southwest Border. The remaining 2,848 agents (15 percent) 

are assigned to the North and Coastal borders, headquarters, or other nonborder missions. 

Moreover, this may actually understate the number of agents doing leadership 

and administrative work, because not all Border Patrol agents are completing 

their duties in accordance with the Table of Organization. For example, Border 

Patrol officials stated the Border Patrol has 1,074 billets specifically designated 

for intelligence positions for agents. However, Border Patrol headquarters 

officials conducted analysis and discovered that senior management in the field 

are detailing agents to intelligence positions (as many as 2,000) without 

properly notifying headquarters. This means about 900 Border Patrol Agents 

are conducting intelligence duties contrary to their assigned duties in the Table 

of Organization. 

Figure 1. Location and Organizational Assignments of 

Border Patrol Agents (as of April 1, 2017) 

Source: OIG estimates based on CBP data. Note: “Assigned leadership 

and administration at Southwest Region” positions include Supervisory 

Border Patrol Agents that also operate in the field. 

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CBP Uses Border Patrol Agents to Conduct Intelligence Work 

Workforce planning includes an analysis of which workforce is best suited to 

perform the work. This analysis is an important workforce planning activity. 

CBP currently does not follow proper workforce planning and management 

processes. A simple comparison illustrates this point. 

ICE currently has 673 Intelligence Specialists (GS-132) in its workforce, 

equating to approximately 1 Intelligence Specialist for every 20 ICE officers and 

agents. CBP has 205 Intelligence Specialists, equating to approximately 1 

Intelligence Specialist for every 233 CBP officers and agents.8 However, Border 

Patrol officials estimated 2,000 Border Patrol Agents are actually performing 

intelligence work, which brings its ratio down to 1 employee conducting 

intelligence work for every 21 CBP officers and agents (see table 1). 

Table 1. Comparison of Intelligence Specialists Supporting Law 

Enforcement, and Law Enforcement Performing Intelligence Work 

CBP Ratios 

1 Intelligence Specialist 

for every 233 

CBP officers and agents 

1 to 233 

CBP estimates it has 2,000 Border 

Patrol Agents performing 

intelligence work... 

1 employee 

conducting 

intelligence work 

for every 21 

CBP officers and agents 

1 to 21 

ICE Ratios 

1 to 20 

1 Intelligence Specialist 

for every 20 

ICE officers and agents 

ICE has no other officers and 

agents conducting intelligence 

work, so ICE’s ratio stays same... 

1 to 20 

1 Intelligence Specialist 

for every 20 

ICE officers and agents 

Source: OIG estimation based on OPM’s FedScope Employee Data (March 2017), 

and CBP and ICE statements 

The use of Border Patrol Agents performing duties not directly tied to “ensuring 

complete operational control of the border” calls into question the Department’s 

8 Based on OPM’s FedScope (as of March 26, 2017), which houses all status and dynamic data 

submitted by the agencies from their own separate personnel systems. 

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OFFICE OF INSPECTOR GENERAL 

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operational need for 5,000 new agents. As discussed previously, proper 

workforce planning uses ratios to determine how many support personnel are 

required for every operational employee. Without a balanced workforce fulfilling 

the proper functions, components will not be able to use their employees’ skills 

in the most efficient, effective, or economical manner. 

Further, if a significant portion of the approximately 12,000 Border Patrol 

Agents CBP assigned to conduct missions on the Southwest Border are 

actually conducting intelligence or non-direct law enforcement work, CBP 

should consider deploying current Border Patrol Agents serving in alternate 

roles to the border to address the perceived imminent need for increased border 

security. By doing so, CBP can then discern better the need for additional 

personnel to perform non law-enforcement functions. Similar to what we 

identified in our report Transportation Security Administration Office of 

Inspection’s Efforts to Enhance Transportation Security,9 CBP may be incurring 

increased expenses for using law enforcement officers when other employees 

may be able to perform the same work at a lower cost. We plan to conduct a 

separate audit on DHS’ use of law enforcement officers. 

Border Apprehensions 

In addition to examining current employee skills and placements, DHS 

workforce staffing models should factor in operational trends and anticipated 

future requirements. As shown in figure 2, CBP reported the number of Border 

Patrol Agents decreased by 7 percent from FYs 2012 to 2016; and 

apprehensions increased by 15 percent. However, in March 2017, U.S. Border 

Patrol Agents apprehended 12,193 individuals between ports of entry along the 

Southwest Border, compared to 18,754 in February 2017 (35% decrease) and 

31,577 in January 2017 (61% decrease). These trends may impact the number 

of new Border Patrol Agents needed. 

9 Transportation Security Administration Office of Inspection’s Efforts To Enhance Transportation 

Security (OIG-13-123, September 2013). 

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Figure 2. Southwest Border Patrol Agents and 

Apprehension, FYs 2007 – 2017 

* FY17 Apprehensions were extrapolated based on the total number of Border Patrol 

Agents’ apprehensions for the year as of May 31, 2017; FY17 Border Patrol Agents on 

duty as of May 31, 2017. Source: OIG compilation of U.S. Border Patrol data 

DHS defines an apprehension as the arrest of a removable alien. Each 

apprehension of the same alien in a fiscal year is counted separately. 

Since CBP does not track or account for the total number of monthly illegal 

border crossings, a direct correlation between staffing levels and apprehensions 

is not possible. In February 2017, we reported that although CBP had 

implemented many new programs to address border security issues, it had 

struggled to develop measures of effectiveness.10 Both OIG and GAO have 

found that using apprehension numbers to measure performance is a flawed 

approach. It limits accountability, whether to DHS or Members of Congress, 

and does not show actual program results. 

10 CBP’s Border Security Efforts – An Analysis of Southwest Border Security between 

the Ports of Entry (OIG 17-39; February 27, 2017). 

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The decrease in apprehensions is an element to consider in developing both 

short- and long-term operational needs documents and deployment strategies. 

Regardless, Border Patrol officials should continually reassess their staffing 

levels based on a broader portfolio of long-range threat assessments. 

DHS Must Have Sufficient Human Resources Staffing to Support the 

Hiring Surge 

The Department needs to ensure it has sufficient, well-trained HR staff to 

complete the hiring surge. In October 2016, we reported that while additional 

steps in the hiring process for law enforcement applicants contribute to lengthy 

hiring times, DHS components do not have the staff or comprehensive 

automated systems needed to hire personnel as efficiently as possible.11 

Similarly, GAO reported that DHS' HR administrative environment includes 

fragmented systems, duplicative and paper-based processes, and little 

uniformity of data management practices. DHS recognized that these problems 

inhibited its ability to perform basic workforce management functions.12 

DHS’ Office of the Chief Human Capital Officer (OCHCO) 2016 

Accomplishment’s Report outlined that HR offices are understaffed. The attrition 

rate for DHS’ HR occupations was 11.8 percent, and the Department’s HR 

servicing ratio ranked last among all large Federal agencies: 1 to 148 – 1 HR 

position for every 148 employees vs. the broader average of 1 to 94. Further, 

most DHS HR staffing and classification personnel had not received the 

necessary training to become more knowledgeable of available resources to 

support their customers. 

Upon release of the Executive Orders, both CBP and ICE reviewed their current 

HR staffing and determined that both components needed HR staff to support 

the hiring surge. CBP determined it will need 160 additional HR positions to 

expand its Human Resource Management hiring capacity. ICE determined it 

will need to hire 200 additional HR personnel. 

To meet the DHS HR personnel shortage, OCHCO officials stated they have 

been working with OPM and other Executive Agencies to detail HR personnel to 

DHS. Although this may help temporarily, DHS needs a more permanent plan 

to ensure a sufficient number of fully trained HR specialists. 

11 DHS Is Slow to Hire Law Enforcement Personnel (OIG-17-05; October 2016)
 12 Oversight of Neglected Human Resources Information Technology Investment Is Needed (GAO16-253; February 2016)
 

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DHS Must Address Recruitment and Retention Challenges 

As we have previously reported, DHS’ inability to hire personnel in a timely 

manner has led to staffing shortfalls, which can affect productivity and morale, 

and disrupt mission critical operations.13 OCHCO recognizes this challenge, 

and on April 5, 2017, the Office of Personnel Management approved the 

Department's request for direct hiring authority for a number of positions 

having critical hiring needs at DHS, including CBP Border Patrol Agents and 

Human Resource Specialists, as well as ICE Deportation Officers, Criminal 

Investigators, and Human Resource Specialists. In addition, DHS needs to 

continue to improve its background investigations, screening, and polygraph 

processes to hire people more quickly for certain positions.14 

DHS has adopted the OPM Staffing Indicators Worksheet to organize, 

document, and analyze data on staffing, including: 

x Recruitment Indicators (e.g., hiring rate, time to hire data, etc.); 

x Retention Indicators (e.g., separation rate, employee viewpoint survey 

data, etc.); and 

x Environmental Condition Indicators (e.g., market demand for occupation, 

etc.).15 

Collected data indicated that CBP will not be able to hire to its operational need 

and a large number of applicants are still unable to meet CBP’s employment 

requirements, such as successful completion of the polygraph exam. 

Additionally, CBP must compete with Federal, state, and local law enforcement 

organizations for applicants, including the concurrent hiring effort at ICE. CBP 

is concerned that the more desirable duty locations, lack of a polygraph 

mandate, and higher compensation at ICE will greatly hinder its hiring efforts. 

DHS needs to gather better data on attrition and understand why employees 

are leaving so it can potentially improve the use of incentives, both monetary 

and nonmonetary, for human resource and law enforcement positions. CBP 

projects an annualized attrition rate of 6 percent (approximately 1,380 losses 

per year) for CBP law enforcement positions while ICE projects a rate of 4 

percent (approximately 795 losses per year) for ICE law enforcement positions. 

Entry requirements for law enforcement occupations are intentionally rigorous. 

Individuals typically must pass an entrance exam, qualifications review, 

interview, medical exam, drug screening, physical fitness test, polygraph 

examination, and background investigation. While these requirements are 

13 DHS Is Slow to Hire Law Enforcement Personnel (OIG-17-05; October 2016) 14 We are currently conducting a separate audit on DHS use of polygraphs. 

15 DHS Workforce Planning Guide (November 2012) 

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important to securing well-qualified individuals, they make recruitment and 

hiring inherently challenging and complicated. 

Based on CBP and ICE’s current hiring and attrition rates, table 2 shows the 

estimated number of applicants necessary to meet Executive Order hiring 

goals. 

Table 2. Number of Applicants Necessary to Meet Executive Order 

Hiring Goals 

For ... ... to increase by: ...the component 

will need about: 

CBP 5,000 Border Patrol Agents 750,000 applicants 

ICE 10,000 Immigration Officers 501,750 applicants 

Sources: OIG compilation of CBP and ICE data 

Developing Sound Recruitment Strategies 

Following the issuance of the Executive Orders, components planned or 

initiated various recruitment strategies including: 

x CBP’s collaboration with Department of Defense (DOD) to 

1. expedite the hiring of veterans by waiving the preemployment polygraph examination for those who left 

military service with security clearances in good 

standing, and 

2. increase recruitment at military installations. 

x CBP’s piloting of its 2015-2016 “Hiring Hub” program to 

compress multiple steps in the hiring process. 

x ICE’s “Super One Stop” hiring events to accept applications 

without linkage to a specific vacancy announcement. ICE 

plans to perform qualifications analysis, interview, and issue 

tentative selection letters all on site. 

Although these recruitment strategies may offer a good start, DHS has 

not evaluated whether they will ultimately address retention challenges 

as well as the new hiring mandates. 

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Conclusion 

As DHS attempts to hire 15,000 Border Patrol Agents and ICE Officers 

in combination with almost 9,600 technical and operational support 

staff, it must address proactively significant historical and current 

challenges. CBP officials determined CBP needs to be able to reduce 

attrition and increase the overall number of applicants, which in light of 

ICE's simultaneous hiring efforts, would require significant 

enhancements to CBP’s recruitment and retention efforts. Further, CBP 

officials estimated to reach full Border Patrol Agent staffing calls for a 

25 percent increase in applicants, and a 10 percent decrease in 

attrition. Lastly, CBP stated that pay parity with ICE will be essential as 

well as enhanced mobility for CBP personnel. 

Without comprehensive staffing models, operational needs analyses, 

and deployment strategies, CBP and ICE will not be able to identify 

clearly the correct number and type of employees required, what 

positions must be filled, or where to deploy those employees. Finally, 

without enough sufficiently trained HR staff and comprehensive 

recruiting strategies to attract qualified candidates, even the best 

workforce staffing plans cannot be completed. 

OIG Analysis of Management Comments 

We obtained written comments on a draft of this report from the 

Director of the Departmental GAO-OIG Liaison Office. We have included 

a copy of the comments in their entirety in appendix A. In its 

comments, DHS stated that it is committed to ensuring correct staffing 

levels, ratios, and placements to guide targeted recruitment campaigns 

for priority mission critical occupations. DHS also discussed actions 

that the U.S. Border Patrol and the Office of the Chief Human Capital 

Officer are taking to improve workforce planning models throughout the 

Department. 

Scope and Methodology 

On January 25, 2017, the President issued Executive Order 13767 - Border 

Security and Immigration Enforcement Improvements and Executive Order 

13768 – Enhancing Public Safety in the Interior of the United States. 

We reviewed: 

The Secretary’s memoranda, Implementing the President's Border 

Security and Immigration Enforcement Improvements Policies and 

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x
 

 

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Enforcement of the Immigration Laws to Serve the National Interest issued 

on February 20, 2017; 

x DHS’ Human Capital Strategic Plan Fiscal Years 2015–2019; 

x DHS Office of the Chief Human Capital Officer’s 2016 Accomplishments 

Report, and the FY 2017 DHS Human Capital Operational Plan; 

x CBP’s memo, Hiring Challenges in Frontline Law Enforcement 

Occupations (February 15, 2017), and the Commissioner’s memo, 

Request for Approval: Executive Order Hiring Surge (February 17, 2017); 

and 

x ICE Executive Order Hiring Plan (February 7, 2017). 

We also examined human capital strategy documents issued by the Office of 

Personnel Management, GAO, and DHS OCHCO. 

To identify historical examples where DHS experienced similar challenges, we 

reviewed relevant DHS OIG and GAO reports for lessons learned. A full listing 

of these reports is included in appendix B. We interviewed the DHS Chief 

Human Capital Officer; CBP and ICE Human Resource Officers; CBP U.S. 

Border Patrol personnel; and personnel at ICE’s Office of the Chief Financial 

Officer. 

We conducted this OIG Special Report review from February to April 2017. 

DHS Office of Inspector General was established by the Homeland Security Act 

of 2002 (Public Law 107–296) by amendment to the Inspector General Act of 

1978. Under Article 2, clause 2 of the Inspector General Act, this Special Report 

is for the purpose of providing leadership and coordination and recommending 

policies for activities designed to promote economy, efficiency, and effectiveness 

in the administration of, and to prevent and detect fraud and abuse in, such 

programs and operations. Our review focused on determining whether the 

Department and its components have the human capital strategies and 

capabilities to quickly and effectively hire a highly qualified and diverse 

workforce. The work performed in this review does not constitute an audit in 

accordance with generally accepted government auditing standards. 

www.oig.dhs.gov 15 OIG-17-98-SR 
 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix A 

Management Comments 

www.oig.dhs.gov 16 OIG-17-98-SR 
 

 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix B 

Relevant DHS OIG and GAO Reports 

DHS OIG 

x ICE Deportation Operations – (OIG-17-51; April 2017) 

https://www.oig.dhs.gov/assets/Mgmt/2017/OIG-17-51-Apr17.pdf 

x CBP’s Border Security Efforts – An Analysis of Southwest Border Security 

Between the Ports of Entry – (OIG-17-39; February 2017) 

https://www.oig.dhs.gov/assets/Mgmt/2017/OIG-17-39-Feb17.pdf 

x DHS Drug Interdiction Efforts Need Improvement (OIG-17-09; November 

2016) https://www.oig.dhs.gov/assets/Mgmt/2017/OIG-17-09-

Nov16.pdf 

x Major Management and Performance Challenges Facing DHS (OIG-17-08; 

November 2016) https://www.oig.dhs.gov/assets/Mgmt/2017/OIG-17-

08-Nov16.pdf 

x DHS Is Slow to Hire Law Enforcement Personnel (OIG-17-05; October 

2016) https://www.oig.dhs.gov/assets/Mgmt/2017/OIG-17-05-

Oct16.pdf 

x DHS’ Oversight of Its Workforce Training Needs Improvement (OIG-16-19; 

January 2016) https://www.oig.dhs.gov/assets/Mgmt/2016/OIG-16-

19-Jan16.pdf 

x The FPS Vehicle Fleet Is Not Managed Effectively (OIG-16-02; October 

2015) https://www.oig.dhs.gov/assets/Mgmt/2016/OIG-16-02-

Oct15.pdf 

x ICE Air Transportation of Detainees Could Be More Effective (OIG-15-57; 

April 2015) https://www.oig.dhs.gov/assets/Mgmt/2015/OIG_15-

57_Apr15.pdf 

x Evaluation of Alleged AUO Misuse by U.S. Border Patrol Agents Engaged 

as CrossFit Instructors (OIG-15-20; January 2015) 

https://www.oig.dhs.gov/assets/Mgmt/2015/OIG_15-20_Jan15.pdf 

x U.S. Customs and Border Protection’s Unmanned Aircraft System Program 

Does Not Achieve Intended Results or Recognize All Costs of Operations 

(OIG-15-17; December 2014) 

https://www.oig.dhs.gov/assets/Mgmt/2015/OIG_15-17_Dec14.pdf 

www.oig.dhs.gov 17 OIG-17-98-SR 
 

 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

x Evaluation of Alleged AUO Misuse at U.S. Border Patrol, Ysleta Station 

(OIG-15-07; November 2014) 

https://www.oig.dhs.gov/assets/Mgmt/2015/OIG_15-07_Nov14.pdf 

x Evaluation of Alleged AUO Misuse at U.S. Border Patrol Headquarters 

(OIG-14-144; September 2014) 

https://www.oig.dhs.gov/assets/Mgmt/2014/OIG_14-144_Sep14.pdf 

x CBP Did Not Effectively Plan and Manage Employee Housing in Ajo, 

Arizona (OIG-14-131 (Revised); October 2014) 

https://www.oig.dhs.gov/assets/Mgmt/2014/OIG_14-131_Sep14.pdf 

x DHS Does Not Adequately Manage or Have Enforcement Authority Over Its 

Components’ Vehicle Fleet Operations (OIG-14-126; August 2014) 

https://www.oig.dhs.gov/assets/Mgmt/2014/OIG_14-126_Aug14.pdf 

x U.S. Customs and Border Protection’s Advanced Training Center 

Acquisition (OIG-14-47; February 2014) 

https://www.oig.dhs.gov/assets/Mgmt/2014/OIG_14-47_Feb14.pdf 

x Transportation Security Administration’s Deployment and Use of Advanced 

Imaging Technology (Revised) (OIG-13-120; March 2014) 

https://www.oig.dhs.gov/assets/Mgmt/2013/OIG_13-120_Mar14.pdf 

x CBP Use of Force Training and Actions To Address Use of Force Incidents 

(Redacted) (OIG-13-114; September 2013) 

https://www.oig.dhs.gov/assets/Mgmt/2013/OIG_13-114_Sep13.pdf 

x DHS’ H-60 Helicopter Programs (OIG-13-89; May 2013) 

https://www.oig.dhs.gov/assets/Mgmt/2013/OIG_13-89_May13.pdf 

GAO Reports 

x	 Oversight of Neglected Human Resources Information Technology 

Investment Is Needed (GAO-16-253; February 2016) 

http://www.gao.gov/products/GAO-16-253 

x	 Strategies to Help Agencies Meet Their Missions in an Era of Highly 

Constrained Resources (GAO-14-168, May 2014) 

https://www.gao.gov/products/GAO-14-168 

www.oig.dhs.gov 18	 OIG-17-98-SR 
OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix C 

Report Distribution 

Department of Homeland Security 

Secretary 

Deputy Secretary 

Chief of Staff 

General Counsel 

Executive Secretary 

Director, GAO/OIG Liaison Office 

Assistant Secretary for Office of Policy 

Assistant Secretary for Office of Public Affairs 

Assistant Secretary for Office of Legislative Affairs 

Commissioner, U.S. Customs and Border Protection 

Director, Immigration and Customs Enforcement 

CBP Audit Liaison 

ICE Audit Liaison 

Office of Management and Budget 

Chief, Homeland Security Branch 

DHS OIG Budget Examiner 

Congress 

Congressional Oversight and Appropriations Committees 

www.oig.dhs.gov 19 OIG-17-98-SR 
 

 

 

 

 

 

 

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