DHS' Joint Task Forces 

August 10, 2017 

OIG-17-100 
 

 

 

 

 

DHS OIG HIGHLIGHTS
 

DHS’ Joint Task Forces 

August 10, 2017 

Why We Did 

This Report 

In 2014, DHS created three 

pilot Joint Task Forces 

(JTF) to address challenges 

along the Southern Border. 

We initiated an audit in 

September 2016 to 

determine the Department’s 

progress in implementing 

the JTFs. In December 

2016, Congress passed the 

National Defense 

Authorization Act (NDAA) 

granting the Secretary 

additional authorities to 

establish JTFs headed by a 

presidentially appointed 

Director. 

This report provides our 

views of successes and 

some challenges the JTFs 

face in achieving their 

mission. 

What We 

Recommend 

This report contains no 

recommendations. 

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 of Homeland Security made progress in 

implementing the JTFs since their inception in 2014. 

According to JTF leaders, operational effectiveness and 

efficiency has increased; staff morale has improved; and 

components have successfully worked together to promote 

information sharing and communication. 

Although the JTFs are a step forward for DHS, they face 

challenges, including a need for dedicated funding and 

outcome-based performance measures. Without dedicated 

funding, the JTFs rely on components that may have 

competing or conflicting priorities. Without performance 

metrics, the JTFs cannot show the value they add to 

homeland security operations. 

During our fieldwork, Congress passed the 2017 National 

Defense Authorization Act, which called for establishing JTFs 

within DHS. In view of that legislation, we decided to report 

on our initial observations. Most importantly, we observed a 

commitment among DHS leaders to working together to 

promote and support a strong “unity of effort” within the 

JTFs. Our field visits confirmed those assertions. 

DHS Response 

The Department noted our positive recognition of these 

efforts and that we observed a strong unity of effort and 

commitment among DHS leaders in working together to 

promote and support the JTFs. According to DHS, the JTFs 

have demonstrated initial success at coordinating operations 

in support of Departmental operational priorities, thereby 

improving security along the Southern Border and 

Approaches. This success indicates the potential for 

continued, positive operational impact as planning, 

execution, and coordination processes mature. 

www.oig.dhs.gov OIG-17-100 
OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

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

August 10, 2017 

MEMORANDUM FOR: The Honorable Elaine Duke 

Acting Secretary 

FROM: John Roth ~~'\(oh Inspector General 

SUBJECT: DHS' Joint Task Forces 

For your information is our final report, DHS' Joint Task Forces. It describes 


OHS' progress in implementing the Joint Task Forces (JTF). We incorporated 


the formal comments provided by your office. 


According to JTF leaders, there has been an increase in operational 


effectiveness and efficiency; improved staff morale; and greater cooperation 


among components working together to promote information sharing and 


communication. During our fieldwork, Congress passed the 201 7 National 


Defense Authorization Act, which called for establishing JTFs within DHS. In 


view of that legislation, we decided to report on our initial observations. 


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


provide copies of our report to congressional committees with oversight and 


appropriation responsibility over the Department of Homeland Security. We will 


post the report on our website for public dissemination. 


Please call me with any questions, or your staff may contact Don Bumgardner, 


Deputy Assistant Inspector General for Audits, at (202) 254-4100, or 


Sean Pettersen, Audit Director at (303) 236-2876. 


www.oig.dhs.gov 
 

                                                      

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Background 

In May 2014, the Secretary of the Department of Homeland Security directed 

the creation of the U.S. Southern Border and Approaches Campaign Plan 

(SBACP). The overarching goals of SBACP were to enforce immigration laws and 

interdict individuals seeking to illegally cross our land, sea, and air borders; 

degrade transnational criminal organizations; and decrease the terrorism 

threat to the Nation, all without impeding the flow of lawful trade, travel, and 

commerce. In November 2014, further Secretary guidance directed DHS to 

develop a pilot program to address persistent challenges DHS faces along the 

Southern Border and maritime approaches. Specifically, it created three Joint 

Task Forces (JTF) to conduct integrated investigations and operations within 

joint operating areas.1 The purpose of JTFs is to enhance DHS’ “unity of effort” 

in securing the Southern Border and maritime approaches. Two JTFs have a 

geographic area of responsibility (JTF-East and JTF-West) and the third has a 

functional area of responsibility (JTF–Investigations). 

A JTF official recently testified before the House Committee on Homeland 

Security, Subcommittee on Border and Maritime Security, that — 

[b]efore the creation of the DHS JTFs, DHS agencies in the 

field regularly worked together to achieve significant 

enforcement results; however, these results frequently relied 

upon a network of informal personal relationships and 

overlapping agency priorities, versus a clear framework that 

directed regional efforts. The JTF construct formalizes 

operational processes between regional and national level 

DHS components, and establishes enduring functional 

relationships between DHS agencies. 

During our fieldwork, Congress passed the 2017 National Defense Authorization 

Act (NDAA), prompting us to modify our report objective. This abbreviated 

report provides our views of successes and some challenges the JTFs face in 

achieving their mission. 

1 The JTFs are a relatively small operation within DHS. Our office is also conducting an audit of 

how DHS fosters collaboration and unity of effort department-wide to enforce and administer 

immigration policy. The review, to be released this summer, will look at the day-to-day 

operations outside of the JTF structures. 

www.oig.dhs.gov 2 OIG-17-100 
 

 

                                                      

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Results of Inspection 

DHS has made progress in implementing the JTFs. According to JTF leaders, 

operational effectiveness and efficiency has increased; staff morale has 

improved; and components have successfully worked together to promote 

information sharing and communication. 

The JTFs have supported or completed important operations. In January 2015, 

JTF-Investigations developed a process for determining the top criminal 

networks impacting homeland security and conducting National Case 

Coordination to eliminate them. This process supports JTF-East and JTF-West. 

From May to August of 2016, JTF-West conducted Operation “All In” to disrupt 

human smuggling activities that affect the Southern Border. According to DHS, 

due to the success of this operation, the Secretary approved it as an “openended, steady-state enforcement effort.” Finally, in fiscal year 2017 JTF-East 

supported Operation “Caribbean Guard,” which resulted in migrant arrests, 

drug interdiction, and seized currency. However, as we note later, because the 

JTFs have not established performance metrics, we are unable to assess their 

effectiveness objectively. 

Although the JTFs are a step forward for DHS, they face challenges, including a 

need for dedicated funding and outcome-based performance measures. 

Without dedicated funding, the JTFs rely on components that may have 

competing or conflicting priorities. Without performance metrics, the JTFs 

cannot show the value they add to homeland security operations. 

On a positive note, the JTFs address the “unity of effort” challenge that we 

identified in our November 2016 report on the Major Management and 

Performance Challenges Facing the Department of Homeland Security.2 We 

observed a strong “unity of effort” and commitment among DHS leaders in 

working together to promote and support the JTFs. The JTF leaders reported 

both an increase in operational effectiveness and efficiency because of 

integration, and improved staff morale. They asserted that JTFs leveraged 

component resources and authorities to target criminal organizations nationwide. In addition, they cited staff from different DHS components working 

together promoted information sharing and better communication. Our visits to 

JTF offices supported those assertions. As an illustration, while at JTFInvestigations, we noted that officials from CBP’s United States Border Patrol 

and the United States Coast Guard (Coast Guard) were dressed in business 

attire, not uniforms. The officials told us that they do not wear their uniforms 

because they are “considered a barrier to communication.” At JTF-West, we 

saw component personnel operated in a large open space and around a 

conference table that they referred to as the “unity table.” Officials we 

2 Major Management and Performance Challenges Facing the Department of Homeland Security 

(OIG-17-08, November 2016). 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

interviewed stated that they were “very proud of the fact that the JTF 

framework is a catalyst of the Unity of Effort movement.” 

JTF Organizations 

Following the issuance of SBACP in January 2015, the DHS Secretary held 

monthly video conferences with component and JTF staff to guide the 

establishment of operational priorities. Currently, the highest SBACP priorities 

are to mitigate the flow of illegal immigration with a focus on special interest 

aliens and to conduct counter-network operations to dismantle priority 

transnational criminal organizations. 

Each task force has a lead agency and is responsible for a specific region or 

function. Table 1 illustrates these designations. 

Table 1: JTF Organizations 

Task Force When Operations 

Began Lead Agency Region or Function 

JTF-East November 2016 Coast Guard Southern maritime border 

and approaches 

JTF-West May 2016 

U.S. Customs and 

Border 

Protection (CBP) 

Southern land border and 

the maritime borders in 

southern California and 

Texas 

JTFInvestigations January 2015 

Immigration and 

Customs Enforcement 

(ICE) 

Investigative support to the 

other two task forces 

Source: U.S. Southern Border and Approaches Campaign Plan 

Although each JTF has a lead agency, the JTFs operate as “Joint Staffs,” 

meaning they draw personnel from multiple DHS components. For example, 

the JTF-West Director is a CBP Border Patrol official; the Deputy Directors are 

from the Coast Guard and ICE Homeland Security Investigations. 

JTF Budget and Staff 

The JTFs do not have a separate budget or permanent staff. Instead, they rely 

on support from DHS components. According to a JTF official, relying solely on 

components to fund JTF expenses is challenging because the components may 

have competing or conflicting priorities. In fiscal year 2016, CBP, ICE, and the 

Coast Guard reported spending almost $17 million for JTF efforts.3 Each DHS 

component is responsible for assigning staff to the JTFs. They typically do on a 

rotational basis with assignments ranging from 18 to 48 months. Table 2 

3 FY 2016 spending includes salaries, temporary duty, services, equipment, supplies, utilities, 

rent, communications, and contract services. 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

shows the amount of money spent on each JTF, their initial staff allocation, 

and the number of staff assigned as of October 2016. Despite the benefits 

derived from the JTFs, they have not yet been fully staffed. 

Table 2: JTF Budget and Staff 

Task Force Amount Spent Initial Staff 

Allocation 

Staff as of October 

2016 

JTF-East $4,422,313 68 44 

JTF-West $5,324,487 80 71 

JTFInvestigations $7,231,540 57 55 

Total $16,978,340 205 170 

Source: DHS information 

JTF Operations 

JTF-Investigations 

In January 2015, JTF-Investigations began supporting the other JTFs by 

prioritizing and supporting criminal investigations, based upon the priorities of 

the Secretary and the JTF Directors. As part of that effort, JTF–Investigations 

developed the DHS Homeland Criminal Organization Target (HOMECORT) 

process for determining the top criminal networks impacting homeland security 

and conducting National Case Coordination to eliminate them. The JTFs and 

other DHS agencies nominate investigations for HOMECORT status. Once 

approved by a panel of DHS and component leadership, HOMECORT 

investigations receive prioritized, dedicated investigative support from an 

integrated team of experienced intelligence analysts, special agents, and other 

officers. JTF-Investigations facilitate the development of a collaborative, casespecific, HOMECORT Action Plan to more comprehensively disrupt and 

dismantle criminal organizations. As of April 2017, JTF-Investigations reported 

it has coordinated and supported the targeting of 14 HOMECORT criminal 

networks and dismantled 11 of these while the other 3 remain active 

investigations. According to JTF-Investigations, it provided more than 3,500 

hours of monthly analytical support to HOMECORT investigations and 

SBACP/JTF priorities. 

According to a Coast Guard official, this type of coordination provided by JTFInvestigations previously did not exist. Before the JTFs, the Coast Guard was 

only aware of cases at an operational level, not at the network level such as 

those of transnational criminal organizations. JTF-Investigations is responsible 

for exposing the Coast Guard to more cases and targeting criminal networks 

more strategically. 

www.oig.dhs.gov 5 OIG-17-100 
 

 

 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

“Before the JTF-West framework 

was in place, intelligence 

information was stuck in a silo 

within a DHS component and 

nothing ever came from it. 

However, when the JTF-West 

framework was established, it 

improved information sharing and 

integrated databases, allowing the 

intelligence to be used successfully 

to bring down a human smuggling 

network.” --Section Chief JTF-West 

JTF-West 

In FY 2016, JTF-West began Operation “All 

In” to disrupt human smuggling activities 

impacting the Southwest border. Operation 

“All In” was a series of short-term 

coordinated enforcement activities, lasting 

from 1 to 2 weeks, referred to as “pulses.” 

Over 90 days between May and August 2016, 

JTF-West conducted three “All In” pulses. 

Personnel from CBP, ICE, the Coast Guard, 

U.S. Citizenship and Immigration Services 

and other Federal and local law enforcement 

partners provided resources and support for 

Operation “All In.” 

According to JTF-West officials, Operation “All In” identified and encountered 

204 individuals with widespread ties to human smuggling networks. According 

to the JTF-West after action assessment of this operation, “JTF-West is now 

able to plan, coordinate and execute integrated counter network operations 

beyond traditional DHS component operational capabilities and the immediate 

border.” In addition, the goals of the JTF-West Strategic Communication Plan 

included demonstrating that DHS’ unified operations to target human and drug 

smuggling networks are the “new norm” for DHS enforcement operations. 

During our field visit, we discussed the collaboration efforts at JTF-West and 

saw where component personnel operated in a large open space and around a 

conference table that they referred to as the “unity table.” 

According to DHS, due to the success of Operation “All In,” the Secretary 

approved the concept as an “open-ended, steady-state enforcement effort.” 

JTF-East 

In November 2016, JTF-East coordinated a surge of resources to Puerto Rico in 

support of the Caribbean Border Interagency Group’s Operation “Caribbean 

Guard.” The surge focused on enhancing unity of effort among DHS 

components toward a specific operational goal: Targeting special interest aliens 

and the transportation of contraband, including narcotics, weapons, and 

money. According to the JTF-East after action report, in developing the surge, 

JTF-East and regional partners created a consolidated, interagency resource 

request to address emerging threats. Using the Eastern Caribbean Regional 

Integrating Group as the primary conduit, JTF-East received and validated 

resource requests from the Coast Guard, ICE’s Homeland Security 

Investigations and Enforcement and Removal Operations, CBP’s Air and Marine 

Operations and U.S. Border Patrol, and other partners. This enabled JTF-East 

www.oig.dhs.gov 6 OIG-17-100 
 

                                                      

 

  

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

to facilitate broader discussions with components, garnering the reallocation of 

resources stationed outside of Puerto Rico to meet the operational 

requirements of this surge. The additional resources included a CBP aircraft, 

USNORTHCOM linguist support, and the extension of two Maritime Safety and 

Security Team deployments. JTF-East also initiated discussions with Joint 

Interagency Task Force-South (JIATF-S) to refine prioritization and processes 

for critical movement alerts to better leverage operational and intelligence 

support from JIATF-S. 

According to JTF-East, over a 13-day period, this Operation achieved 

operational goals and resulted in 13 arrests, 70 migrants intercepted ashore, 

and 18 migrants interdicted at sea. It also resulted in the seizure of more than 

500 kilograms of cocaine and 28 kilograms of marijuana, over $77,000 in bulk 

cash, and two vessels. JTF East considers this success a foundation from 

which to build future joint operations. Nevertheless, we were unable to 

determine whether the success of this operation would have occurred without 

the JTF structure. 

JTF Challenges and Congressional Action 

Although the task forces are a step forward for DHS, they face challenges. We 

identified challenges including a need for dedicated funding and full staffing. 

The JTFs would also benefit from outcome-based performance measures so 

that the Secretary can objectively assess the JTFs effectiveness. The 

performance measures need to demonstrate that no single component could 

get the same results. DHS is in the process of identifying performance 

measures for the JTFs. 

In December 2016, Congress passed the 2017 NDAA, which addresses some of 

the challenges we identified. It provides the Secretary with the authority to 

establish JTFs and requires DHS and its components to: 

 establish outcome-based and other appropriate performance metrics to 

evaluate the effectiveness of each JTF; and 

 provide sufficient resources and the authority necessary to carry out the 

missions and responsibilities of the JTFs. 

Also according to the 2017 NDAA, each JTF will have a director appointed by 

the President.4 As of May 2017, no new directors have been appointed. 

4 An individual serving as a Director of a Joint Task Force of the Department of Homeland 

Security in existence on the day before the date of the enactment of the NDAA may serve as the 

Director of such Joint Task Force on and after such date of enactment until a Director of such 

Joint Task Force is appointed. All three current Directors were in service before the NDAA was 

enacted and therefore have not been appointed by the President. 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Conclusion 

DHS made progress in implementing the JTFs since their inception in 2014. 

According to JTF leaders, there has been increased operational effectiveness 

and efficiency, improved staff morale, and greater cooperation among 

components working together to promote information sharing and 

communication. While a lack of performance measures makes it difficult to 

quantify any increase in operational effectiveness, our field visits did 

anecdotally reveal greater cooperation among components to promote 

information sharing and communication. 

Management Comments and OIG Analysis 

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

Appendix A. DHS also provided technical comments to our report. We made 

changes to incorporate these comments, as appropriate. 

The Department noted our positive recognition of these efforts and that we 

observed a strong unity of effort and commitment among DHS leaders in 

working together to promote and support the JTFs. According to DHS, the JTFs 

have demonstrated initial success at coordinating operations in support of 

Departmental operational priorities, thereby improving security along the 

Southern Border and Approaches. This success indicates the potential for 

continued, positive operational impact as planning, execution, and 

coordination processes mature. 

Objective, Scope, and Methodology 

The Department of Homeland Security (DHS) Office of Inspector General (OIG) 

was established by the Homeland Security Act of 2002 (Public Law 107−296) by 

amendment to the Inspector General Act of 1978. This is one of a series of 

audit, inspection, and special reports prepared as part of our oversight 

responsibilities to promote economy, efficiency, and effectiveness within the 

Department. 

We conducted this review to determine whether DHS has made progress in 

implementing JTFs. To answer our objective, we performed the following: 

• Reviewed and analyzed the DHS Campaign Plan for Securing the U.S. 

Southern Border and Approaches; 

• Obtained and reviewed departmental policies, procedures, and guidance 

relevant to the JTF framework; 

• Reviewed and analyzed the National Defense Authorization Act for Fiscal 

Year 2017 to determine the impact on the DHS JTFs; 

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OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

• Reviewed JTF-West, JTF-East, and JTF-Investigations Operational Plans 

and Priorities for FYs 2016–2017; 

• Determined the FY 2016 operating costs for DHS JTF-West, JTF-East, and 

JTF-Investigations. The costs included overhead, facility, personnel costs, 

and equipment; 

• Interviewed: 

o	 DHS officials in Washington, DC, from the Office of Policy, Southern 

Borders and Approaches Coordination Cell, and Office of Strategy, 

Plans, Analysis, and Risk group; 

o	 DHS component officials to discuss impacts of providing resources 

to support the DHS JTFs; 

o	 Deputy Director of the Organized Crime Drug Enforcement Task 

Forces (OCDETF) Program to discuss best practices and challenges; 

o	 DHS advisors from Department of Defense U.S. Northern Command 

and U.S. Southern Command to obtain a better understanding of 

the Department of Defense’s (DOD) involvement in the planning and 

creation of the DHS JTFs, as well as DOD JTF Best Practices; and 

• Conducted site-visits and interviewed JTF-Investigations in Washington, 

DC; JTF-West in San Antonio, Texas; and JTF-East in Portsmouth, 

Virginia. We also conducted site-visits to JTF-West corridors in San Diego, 

California; Tucson, Arizona; El Paso and Edinburg, Texas. 

We conducted this review between September 2016 and April 2017 pursuant to 

the Inspector General Act of 1978, as amended, and according to the Quality 

Standards for Inspection and Evaluation issued by the Council of the Inspectors 

General on Integrity and Efficiency. 

The Office of Audits major contributors to this report are: Christine Haynes, 

Director; Sean Pettersen, Director; Peter Christopher, Auditor-in-Charge; Darvy 

Khun, Program Analyst; Jeanne Garcia, Program Analyst; Mike Brunelle, 

Program Analyst; Ellen Gallagher, Communications Analyst; and Thomas 

Bobrowski, Independent Referencer. 

www.oig.dhs.gov 9	 OIG-17-100 
 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix A 

DHS Comments to the Draft Report 

www.oig.dhs.gov 10 OIG-17-100 
 

OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix B 

Report Distribution 

Department of Homeland Security 

Secretary 

Deputy Secretary 

Chief of Staff 

General Counsel 

Executive Secretary 

Chief Human Capital Officer 

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 

Assistant Secretary, Immigration and Customs Enforcement 

Commandant, United States Coast Guard 

Commissioner, U. S. Customs and Border Protection 

Office of Management and Budget 

Chief, Homeland Security Branch 

DHS OIG Budget Examiner 

Congress 

Congressional Oversight and Appropriations Committees 

www.oig.dhs.gov 11 OIG-17-100 
 

 

 

 

 

 

 

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