Department of Homeland Security
 

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DHS Needs to Manage Its 


Radio Communication Program Better 


OIG-13-113 August 2013
 
Washington, DC 20528/ www.oig.dhs.gov 

August 29, 2013

MEMORANDUM FOR: The Honorable Rafael Borras 

Under Secretary for Management 

FROM: Charles K. Edwards 

Deputy Inspector General 

SUBJECT: DHS Needs to Manage Its Radio Communication Program 

Better 

Attached for your action is our final report, DHS Needs to Manage Its Radio 

Communication Program Better. We incorporated the formal comments from the 

Department in the final report. 

The report contains two recommendations aimed at improving the Department's overall 

management of radio communication equipment and supporting infrastructure. Your 

office concurred with both recommendations. Based on information provided in your 

response to the draft report, we consider the recommendations resolved. Once your 

office has fully implemented the recommendations, please submit a formal closeout 

letter to us within 30 days so that we may close the recommendations. The 

memorandum should be accompanied by evidence of completion of agreed-upon 

corrective actions and of the disposition of any monetary amounts. Please email a 

signed PDF copy of all responses and closeout requests to 

OIGAuditsFollowup@oig.dhs.gov. 

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

copies of our report to appropriate 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 Anne L. Richards, Assistant 

Inspector General for Audits, at (202) 254-4100. 

Attachment 
 

 OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Table of Contents

Executive Summary............................................................................................................. 1 

Background ........................................................................................................................ 2 

Results of Audit................................................................................................................... 3 

Department-wide Inventory ................................................................................... 3 

Radio Communication Program Governance ......................................................... 6 

Utilization of Radio Equipment............................................................................... 7 

Portfolio Management Approach........................................................................... 9 

Recommendations ............................................................................................... 11 

Management Comment and OIG Analysis ........................................................... 11 

Appendixes 

Appendix A: Objectives, Scope, and Methodology ........................................... 13 

Appendix B: Management Comments to the Draft Report .............................. 15 

Appendix C: DHS Radio Equipment and Infrastructure Value .......................... 18 

Appendix D: Analysis of DHS Component Inventory Data Elements ................ 19 

Appendix E: CBP New Radio Equipment Items Stored at Hi-Tech Facility ........ 20 

Appendix F: Major Contributors to This Report ............................................... 21 

Appendix G: Report Distribution ....................................................................... 22 

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Abbreviations 

CBP Customs and Border Protection 

CIO Chief Information Officer 

DHS Department of Homeland Security 

ESC Executive Steering Committee 

FEMA Federal Emergency Management Agency

FLETC Federal Law Enforcement Training Center

GAO Government Accountability Office 

ICE Immigration and Customs Enforcement 

JWPMO Joint Wireless Program Management Office 

OBP Office of Border Patrol 

OIG Office of Inspector General

RPIS Real Property Inventory System

TacNet Tactical Communications Network 

TSA Transportation Security Administration

USCG United States Coast Guard 

USSS United States Secret Service 

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Executive Summary

The Department of Homeland Security (DHS) operates and maintains 20 land mobile 

radio networks serving more than 120,000 frontline agents and officers. These users 

rely on radio systems for primary communications, officer safety, and mission success. 

DHS manages about 197,000 radio equipment items and 3,500 infrastructure sites, with 

a reported value of more than $1 billion. Many of these systems have exceeded their 

service-life and urgently need to be modernized to meet Federal and DHS mandates. 

DHS has estimated that full modernization of its existing end-of-life radio systems would 

require a $3.2 billion investment. The audit objective was to determine whether DHS is 

managing its radio program and related inventory in a cost-effective manner to prevent 

waste of taxpayer dollars. 

DHS is unable to make sound investment decisions for radio equipment and supporting 

infrastructure because the Department is not effectively managing its radio 

communication program. DHS does not have reliable Department-wide inventory data 

or an effective governance structure to guide investment decision-making. As a result, 

DHS risks wasting taxpayer funds on equipment purchases and radio system 

investments that are not needed, sustainable, supportable, or affordable. Two 

Components we visited stored more than 8,000 radio equipment items valued at 

$28 million for a year or longer at their maintenance and warehouse facilities, while 

some programs faced critical equipment shortages. Portfolio management is central to 

making informed decisions about how to best allocate available equipment to ensure 

the right equipment is in place at the right locations and in the quantities needed to 

conduct mission operations. 

We made two recommendations that, if implemented, will improve the Department’s 

overall management of radio communication equipment and supporting infrastructure. 

The Department concurred with our recommendations. 

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Background

DHS radio systems are comprised of various personal property and real property items. 

Personal property items include equipment installed at fixed infrastructure sites, 

equipment located at dispatch operation centers or in government buildings, mobile 

radios installed in vehicles, and portable hand-held radios. Real property items include 

land, the tower structure, equipment shelters, and communication and power lines. 

DHS manages an estimated 197,000 radio equipment items and 3,500 radio infrastructure

sites with a reported value of more than $1 billion as presented in appendix C.1

Customs and Border Protection (CBP), Immigration and Customs Enforcement (ICE), and 

the United States Secret Service (USSS) held 93 percent of the total $558.5 million of the 

radio equipment inventories. 

DHS operates more than 20 private national radio systems serving more than 120,000 

agents and officers. Each Component owns and operates its own radio system(s). Most 

of the infrastructure for these systems was placed in service in the late 1980s, has

exceeded its service-life, and does not provide sufficient coverage in remote areas. 

Some of this infrastructure also does not meet Federal mandates for security (i.e., 

encryption) and efficiency (narrow-banding), or interoperability standards (P-25).2

Much of the wide-band, analog radios and equipment operating on or composing these 

radio systems are no longer produced or supported by the manufacturer, and 

cannibalization of existing equipment and spare inventories is cited as the only option 

for maintaining these networks and equipment. 

DHS has estimated that full modernization of its existing end-of-life radio systems would 

require a $3.2 billion investment. DHS awarded a $3 billion Department-wide strategic 

sourcing contract in March 2012 to acquire equipment and services needed to maintain, 

upgrade, and modernize its legacy radio systems. As of September 2012, DHS has spent 

more than $33 million on this contract. 3

The Government Accountability Office (GAO) recognizes portfolio management as a best 

practice in making investment decisions.4 Portfolio management addresses an 

1

 The Transportation Security Administration and United States Coast Guard provided data that did not include any 

reported values or costs for the equipment items listed. Therefore, the total amount presented in appendix C is 

understated. 

2 Project 25 (P-25) is a manufacturing standard that was developed to improve interoperable radio communications in 

the public safety community.
 3 A strategic sourcing contract vehicle is a contract or agreement that has been established for use by multiple DHS 

Components to acquire goods or services. Strategic sourcing helps to achieve improvements in price, performance,
 

total cost of ownership, and overall business efficiency.
 4 GAO-07-388, Best Practices: An Integrated Portfolio Management Approach to Weapon System Investments Could 

Improve DOD’s Acquisition Outcomes, March 2007.
 

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organization’s investments collectively at the enterprise level. It requires that items are 

inventoried and classified together in a portfolio. This approach provides information to 

prioritize and allocate resources to meet the agency’s needs in an affordable manner. 

Portfolio management requires a strong governance structure with adequate authority 

and clearly defined roles and responsibilities in order to be effective. 

Results of Audit 

DHS is unable to make sound investment decisions for radio equipment and supporting 

infrastructure because the Department is not effectively managing its radio 

communication program. DHS does not have reliable Department-wide inventory data 

or an effective governance structure to guide investment decision-making. As a result, 

DHS risks wasting taxpayer funds on equipment purchases and radio system 

investments that are not needed, sustainable, supportable, or affordable. Two DHS 

Components we visited stored more than 8,000 radio equipment items valued at $28 

million for a year or longer at their maintenance and warehouse facilities, while some 

programs faced critical equipment shortages. A portfolio management approach is key 

to achieving a balanced mix of executable programs and ensuring a good return on 

investments when determining needs and allocating fiscal resources. Portfolio 

management is also central to making informed decisions about the best way to allocate 

available equipment to ensure the right equipment is at the right locations and in the 

quantities needed to conduct mission operations. 

Department-wide Inventory 

DHS does not have reliable Department-wide personal and real property radio 

equipment inventory data. DHS Components use different systems to record 

and manage their radio personal property inventory. DHS has not established 

Department-wide polices prescribing common data elements, standardized 

definitions, and requirements for the management of personal property 

inventory. Components use their agency-specific personal property manuals to 

record inventory in their data systems while the DHS Office of the Chief 

Administrative Officer’s Personal Property Asset Management Manual has 

remained in draft since 2010. As a result, DHS Components do not record 

consistent, accurate, and complete radio equipment and infrastructure inventory 

data. 

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Personal Property Data 

DHS Components use different systems to record and manage personal property 

inventory data, including radio equipment. Table 1 reflects the personal 

property systems Components currently use to report and manage personal 

property inventory. 

Table 1. Component Personal Property Inventory Systems 

Component System(s) Used 

CBP Systems, Applications, and Products in Data Processing 

FEMA Logistics Information Management System and 

Sunflower Asset Management System 

FLETC Momentum

ICE Sunflower Asset Management System 

TSA Sunflower Asset Management System 

USCG Multiple disparate inventory databases 

USSS Enterprise Financial Management System and

Sunflower Asset Management System 

Source: DHS-OIG

Components’ inventory data indicates they do not record radio equipment 

consistently into their respective personal property systems. For example, six 

Components did not record the condition of their radio equipment (e.g., new, 

scrap, etc.). Two Components did not record the current status or availability of 

their radio equipment. Two Components did not identify the category or type of 

asset, such as distinguishing radio equipment from weapons. Appendix D 

summarizes our analysis of the Components’ personal property data elements 

recorded in their inventory system. 

Our analysis and onsite testing of CBP, ICE, and USSS radio equipment 

inventories at technical maintenance facilities/warehouses indicated the

inventories were inaccurate or incomplete. For example, an analysis of ICE 

inventory records disclosed that 1,740 equipment items, valued at $6.6 million, 

were listed as “in service;” however, ICE was actually storing these items at its 

Technical Maintenance Facility in Largo, MD, some for at least 17 months.5

Similarly, CBP inventory records reflected 6,306 equipment items, valued at 

$21.5 million, were stored at the Hi-Tech maintenance facility in Orlando, FL for 

5

 ICE reported the Technical Maintenance Facility in Largo, MD has since been closed and equipment from 

the facility transferred to the field, CBP, or moved to Mt. Weather. 

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16 months or longer. Of these items, 6,147 were recorded in the system as 

“active.” The activity terms “in service” or “active” may give a false impression 

to decision makers that someone is currently using the equipment. As such, they 

may believe this equipment is not available for issuance to field users when in 

fact the items are sitting idle in a maintenance facility/warehouse. 

USSS and CBP also did not record new radio equipment in their inventory 

systems. Specifically, USSS did not record 35 brand new repeaters valued at 

$389,380 in its inventory system until 2 years after their acquisition in March 

2010. As of February 2013, CBP had not recorded 58 brand new repeaters, 

valued at $435,503, which its Orlando, FL facility received and stored in early 

2012. 

Real Property Data 

DHS maintains real property inventory data in the Real Property Inventory 

System (RPIS); however, the data the system captures is not sufficient to manage 

the DHS radio communication program. The DHS Real Property Manual specifies 

the real property data elements that DHS Components are required to report in 

the RPIS. While the RPIS contains basic data fields for capturing elements

needed to manage real property, it does not capture the comprehensive data 

needed to manage radio programs. Managing radio programs and infrastructure 

is not limited to real property information, but also includes knowing the 

network, the backhaul (how the signal is transmitted), operating frequencies, 

and the type of equipment installed at each radio site. The DHS Office of 

Emergency Communications’ System Lifecycle Planning Guide, dated August 

2011, points out the importance of capturing this type of information in 

managing a radio system. 

Four DHS Components we reviewed did not report infrastructure real property 

inventory data consistently in RPIS. CBP was the only Component to report any 

land associated with its radio infrastructure. The United States Coast Guard 

(USCG) and USSS were the only Components to report any information regarding 

the date acquired or the length of time its radio infrastructure has been in 

service.

The four Components also reported incomplete and inaccurate infrastructure 

real property data, which RPIS requires. We requested and obtained 

infrastructure lease data from CBP, ICE, USSS, and USCG. We compared the radio 

infrastructure lease data for these four Components to the infrastructure real 

property information reported in the RPIS. We noted: 

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•	 Of the 930 CBP leases, 236 (25 percent), with annual costs of $1.3 million, 

were not recorded in the RPIS. 

•	 None of the 212 USSS leases, with an annual cost of about $2.1 million, 

were recorded in the RPIS. 

•	 Of the 126 ICE leases, 125 (99 percent), with an annual cost of $1.5 

million, could not be verified to the RPIS data because there was no 

consistent unique identifier between the two sources of information. 

•	 Of the 215 USCG infrastructure leases, 112 (52 percent), with annual 

costs of $3.8 million, were not recorded in the RPIS. 

Radio Communication Program Governance 

DHS does not have an effective governance structure over its radio 

communication program. Specifically, DHS has not implemented a governance 

structure with authority to establish policy, budget and allocate resources, and 

hold Components accountable for managing radio programs and related 

inventory. During a prior audit of oversight of radio communication 

interoperability, DHS said that it established a structure with authority to ensure 

Components achieve radio communications interoperability.6 However, that 

authority is limited to the acquisition and management of future communication 

networks. Components are independently managing their current radio 

programs with no formal coordination from the Department. As a result, 

management and investment decisions for the current DHS radio communication 

program are made using inconsistent, incomplete, and inaccurate real and 

personal property data. 

CBP operates and maintains one of the largest radio networks within DHS and 

the Federal Government. CBP has been working to modernize its radio systems 

since as early as 2007. In 2011, DHS directed CBP to establish Tactical 

Communications Network (TacNet) as a Department-wide project under the 

governance of an Executive Steering Committee (ESC) and the Joint Wireless 

Program Management Office (JWPMO).7 TacNet is a new acquisition program 

that seeks to leverage commercial networks to develop a single network capable 

of supporting voice, video, and data. 

6 OIG-13-06, DHS’ Oversight of Interoperable Communications, November 2012. 7 The JWPMO is composed of staff from CBP’s Wireless System Program Office and the DHS Office of the Chief 

Information Officer’s Wireless Services Branch, as well as staff representatives from DHS components. Each of the 

Components contributes resources and defines their level of participation in accordance with a Memorandum of 

Agreement.

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DHS directed the ESC to create a charter for the JWPMO and provide 

governance, review, and oversight to the JWPMO. The authority granted in the 

ESC charter is limited to the acquisition of future communication networks and 

does not establish it as a policy-making body for DHS’ current radio 

communication program. Although the JWPMO is required to serve as a central 

point of coordination for the Department’s acquisition of future radio systems, 

its charter does not establish it as a policy-making body for DHS’ current radio 

communication program. 

JWPMO cannot develop a realistic budget for future radio communication 

resources because of unreliable Department-wide radio inventory data. For 

example, a Wireless Asset Inventory Integrated Project Team has been chartered 

under the JWPMO to develop a common database for DHS-wide infrastructure 

and frequency assignments. Components are to provide information to the 

JWPMO because the radio system inventory information needed is housed in 

multiple, disparate systems with no common site name or identifier. A JWPMO 

official said that Components routinely have not responded to requests for data 

because the JWPMO lacks authority over them for the Department’s current 

radio communication program. 

Unreliable Department-wide radio inventory data has also made it difficult for 

DHS officials to identify radio infrastructure and other resources that 

Components could share to achieve cost savings or address critical shortages. 

For example, DHS is trying to identify opportunities for sharing resources in 

Florida, where there are insufficient radio frequencies to support future upgrade 

and expansion of both CBP and ICE radio systems. In 2012, DHS formed the 

Collaborative Enterprise TACCOM Integration – Florida project under the

JWPMO. The project's purpose is to identify opportunities for meeting CBP and 

ICE needs for upgrade and expansion through resource sharing. The project will 

consist of a complete review of all CBP and ICE frequency assignments in Florida 

and a comparison of existing infrastructure and the related specific frequency 

assignments. 

Utilization of Radio Equipment 

DHS risks wasting taxpayer dollars because of its ineffective management of 

radio equipment. CBP and ICE stored 8,046 radio equipment items valued at $28 

million at maintenance facility warehouses for a year or longer, while some CBP 

program offices faced critical equipment shortages. In addition, two 

Components purchased radio equipment that was never used in operations, 

while a third Component needed the same equipment. One Component 

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acquired more than 4,000 portable and mobile radios in 2011 and 2012, while it 

also had stored 278 new portable and mobile radios in its warehouse since 2009. 

CBP had 6,306 radio equipment items, valued at $21.5 million, stored at its HiTech maintenance facility in Orlando, FL for a year or longer. Of this amount, 

1,246 items, or 20 percent, valued at $4.9 million were new items, including 840 

portable radios and mobile radios.8

 CBP was storing these radios while critical 

shortages were occurring in the field. 

The Office of Border Patrol (OBP) reported that as of February 2011, it had 

19,281 portable radios deployed to the field to support 20,174 agents, or a 

shortage of 893.9 At this same time, inventory data for CBP’s technical 

maintenance facility warehouse in Orlando showed 1,980 portable radios in the 

warehouse. CBP stored portable radios at its maintenance warehouse as spares 

or “safety stock” to allow for equipment breakage and failure, while critical 

shortages existed in the field. These 1,980 portable radios represented 10 

percent of the 20,174 agents in the field, two times the 5 percent recommended 

by OBP as needed to support equipment breakage or failure. The Chief, OBP, 

issued a memo on April 1, 2011, directing that available radios from field offices 

with excess radio stockpiles and CBP’s maintenance facility warehouse in 

Orlando be reallocated and distributed to those sectors experiencing critical 

shortages. According to two CBP officials, reallocation of radios has taken and 

continues to take place to mitigate the shortages in the affected sectors;

however, neither official provided documentation to support whether OBP 

reallocated radios to all the sectors with reported shortages in 2011. 

Documentation CBP provided does indicate 5 of 9 southern sectors were still 

experiencing shortages in August 2012, 16 months later. 

Two Components stored new equipment for several years while a third

Component needed the same equipment. Specifically, USSS and ICE have 85 

digital interface units at a combined value of $262,000 that have never been 

placed in operation. CBP requires this same equipment to address a critical 

shortage for a nationwide radio system digital upgrade project. CBP estimates 

that it needs 50 of these equipment items, which are no longer available for 

purchase from the manufacturer. USSS radio program officials have indicated 

that they are holding their 29 items as spares. ICE acquired their 56 units in 

August 2010. As of January 2013, they were still being stored at the technical 

maintenance facility warehouse in Largo, MD. 

8

 See appendix E for details on type and amount of time the 1,246 items were stored at Hi-Tech. 9

 The portable radios in question are Motorola Model XTS 5000 which meet both Federal interoperability and 

advanced encryption standards. The 893 agents operated with older portable radios that did not meet these 

standards, while CBP was storing 1,980 of the newer XTS 5000 models at Hi-Tech. 

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 ICE acquired 4,189 portable and mobile radios, valued at $18.9 million, in 2011 

and 2012. However, our analysis determined that ICE stored 278 portable and 

mobile radios, valued at $1.3 million, at its Largo, MD technical maintenance 

facility since they were purchased in 2009. ICE purchased these radios for the 

Secure Communities Program. However, an official from ICE’s Tactical 

Communications Branch said the agency did not receive funding to support the 

deployment of all agents for Secure Communities as planned. As a result, the 

278 radios have remained in storage. 

Portfolio Management Approach 

GAO has recognized that a portfolio management approach is critical to 

achieving a balanced mix of executable programs and ensuring a good return on 

investment when determining needs and allocating fiscal resources. Through 

this approach, investments are assessed collectively from an enterprise level, 

rather than as independent and unrelated initiatives. The relative costs, 

benefits, and risks of proposed investments are weighed using established 

criteria and methods. The investments selected can exploit opportunities within 

resource constraints and move the organization toward meeting its strategic 

goals and objectives. 

A portfolio can be defined as a collection of items that are grouped together to 

facilitate efficient and effective management so that fiscal, staffing, and other 

scarce resources can be optimally allocated to provide the most benefit or 

greatest value for investments made. Therefore, the first step to a portfolio 

management approach is to inventory and classify items in the portfolio. This 

approach will provide valuable enterprise-wide information to help identify 

problems and opportunities, develop viable options, determine relevant criteria 

and weights, evaluate alternatives, and make balanced and appropriate 

investment decisions. To be effective, portfolio management requires not only 

the definition and classification of items into a single portfolio, but also a strong 

governance structure to make portfolio-related resource allocation and 

investment decisions. 

DHS is managing radio equipment and systems separately as personal property 

and real property rather than as a portfolio. Under the Clinger-Cohen Act, the 

Chief Information Officer (CIO) is responsible for providing advice and assistance 

to ensure that inventory management systems are designed, maintained, and 

used in an effective manner and that the data produced is reliable, consistent, 

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and timely.10 At DHS, current responsibilities for managing the radio equipment 

and infrastructure inventory data are split between the personal and real 

property offices within the Office of the Chief Administrative Officer. 

As noted in the Radio Communication Governance Program section, the 

authority granted in the ESC and JWPMO charters is limited to future 

communication networks and does not establish either of them as policy-making 

bodies for DHS’ current radio communication program. DHS Components 

maintain their legacy radio equipment and systems independent of each other. 

GAO has noted that failure to implement a portfolio management approach—

assessing investments as independent and unrelated initiatives within an 

organization—results in less assurance that investment decisions will address the 

right mix of needs. It also increases the risk that more programs or projects will 

be started than current and likely future resources can support, thus making 

them not affordable within the context of overall fiscal resources. 

Conclusion

DHS estimated that it would need $3.2 billion to modernize its radio systems to 

meet its needs, and awarded a $3 billion Department-wide strategic sourcing 

contract in March 2012 for this purpose. However, the cost efficiencies that DHS 

seeks to achieve from a strategic sourcing contract for radio equipment may 

potentially be negatively impacted through poor procurement or inventory 

management practices. 

DHS needs a reliable Department-wide inventory to help it plan, budget, 

schedule, and acquire upgrades and replacements of its radio systems and 

equipment. A Department-wide inventory will help DHS prioritize its needs and 

plan its investments to make the most efficient use of available resources. It will 

also assist with planning for the acquisition and management of future 

communication networks. DHS also needs a strong governance structure over its 

radio communication program with adequate authority and resources to 

establish policy, make resource allocation and investment decisions, and hold 

Components accountable for managing radio programs and related inventories. 

A portfolio management approach to the DHS radio communication program 

would help ensure DHS receives a good return on investment when determining 

needs and allocating fiscal resources. 

10 Public Law 104–106, Division E, February 10, 1996; 40 U.S.C. Sections 1425(b) and 1426(1).

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Recommendations 

We recommend the Under Secretary for Management: 

Recommendation #1:

Establish a single point of accountability at the Department level with the 

authority, resources, and information to ensure a portfolio approach is 

implemented for its radio communication program. 

Recommendation #2: 

Develop a single portfolio of radio equipment and infrastructure, which will— 

•	 Identify and describe the data elements needed to manage radio 

equipment and infrastructure; 

•	 Develop policies and implement procedures for standard data reporting 

of radio equipment and infrastructure; and

•	 Develop policies and implement procedures for verifying the accuracy 

and completeness of reported radio inventory data. 

Management Comments and OIG Analysis: 

The Department provided comments on this draft report. A copy of the 

response in its entirety is included in appendix B. The Department also provided 

technical comments and suggested revisions to our report in a separate 

document. We reviewed the Department’s technical comments and made 

changes in the report where appropriate.

Recommendation #1: DHS concurred with this recommendation. DHS noted 

that it is working to develop and implement Department level portfolio 

management of tactical communications; the timeline and resources for which 

will be described in the Fiscal Year 2016 Resource Allocation Plan and related 

capital plan and business case decisions to support full implementation. The 

estimated completion date is to be determined. 

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OIG Analysis: DHS’ planned corrective action satisfies the intent of the 

recommendation and is considered resolved. The recommendation will remain 

open until we receive the FY 2016 Resource Allocation Plan, capital plan, and 

business case decisions supporting the Department’s implementation of tactical 

communication portfolio management. 

Recommendation #2: DHS concurred with this recommendation and said the 

JWPMO has made significant progress in collecting the data necessary to 

develop a single profile of DHS assets, infrastructure, and services across 

Components. DHS also said it will complete a review of existing policies and 

procedures and will revise, as necessary, its personal property manual to align 

with the findings. The estimated completion date for the corrective action is 

June 30, 2014. 

OIG Analysis: DHS’ planned corrective action is responsive to the 

recommendation and we consider this recommendation resolved. The 

recommendation will remain open until we receive documentation that 

identifies and describes the common data elements needed for managing and 

reporting a single profile of radio equipment and infrastructure, as well as any 

revised and finalized implementing guidance or manuals.

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Appendix A 

Objectives, 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. The audit objective was to 

determine whether DHS is managing its radio program and related inventory in a costeffective manner to prevent waste of taxpayer dollars. 

We reviewed Federal, Departmental, and component policies and processes for 

managing personal and real property inventories. These included, but were not limited 

to: Office of Management and Budget Circular A-123; DHS Directive # 119-03, Personal 

Property Asset Management Program; DHS Instruction 119.02.001, Real Property 

Manual, and ICE Personal Property Operations Handbook, March 2011. 

We interviewed DHS officials from the Office of the Chief Information Officer, Office of 

the Chief Administrative Officer, Office of the Chief Procurement Officer, and the Joint 

Wireless Program Management Office at their headquarters office in Chantilly, VA. We 

also interviewed CBP, ICE, and USSS personnel responsible for the oversight or the 

management of radio programs and related inventories at their offices in Washington, 

DC; Chantilly, VA; Largo, MD; and Orlando, FL. 

We reviewed and analyzed contracts, purchase orders, lease information, and other 

documents related to the acquisition and storage of radio equipment and infrastructure. 

We reviewed and analyzed documents related to the governance and management of 

DHS radio programs, including Acquisition Decision Memorandums, Charters, and the

Program Management Plan. 

We requested all radio equipment data as of June 30, 2012, from DHS Components most

likely to use radio equipment in daily mission operations. These Components included

the Transportation Security Administration (TSA), the Federal Law Enforcement Training 

Center (FLETC), the Federal Emergency Management Agency (FEMA), USCG, USSS, ICE, 

and CBP. We analyzed the radio equipment data from these Components, which 

contained 197,119 equipment items totaling $558.5 million. We selected USSS, ICE, and 

CBP for detailed site visit testing of reported radio equipment inventory because these 

Components accounted for 156,935 equipment items, or 80 percent of total 

items, totaling $519.2 million, or 93 percent of total dollars. 

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To validate the reliability and accuracy of reported radio equipment data, we conducted 

physical verification of reported equipment at the USSS warehouse in Washington, DC; 

the ICE technical maintenance facility warehouse in Largo, MD; and the CBP National 

Law Enforcement Communication Center in Orlando, FL. We selected these sites for 

testing because these locations accounted for 16,524 equipment items totaling $63 

million, or about 11 percent, of total reported equipment items and 12 percent of total 

reported dollars for these Components. We selected a random sample of 174 

equipment items, totaling $706,636 for these three locations from the inventory data 

provided. However, we did not conduct detailed physical verification testing of 

reported ICE equipment inventory in Largo, MD, for 34 equipment items totaling 

$159,117. A significant number of these equipment items (18 percent) had been 

transferred prior to our visit. Therefore, we performed alternative audit procedures to 

verify the receipt of items shipped from Largo, MD. 

To validate the reliability and completeness of reported radio equipment, we selected a 

judgmental sample of 75 items, totaling $415,549, from equipment items physically 

located at USSS warehouses in Washington, DC; the ICE technical maintenance facility 

warehouse in Largo, MD; and the CBP maintenance facility in Orlando, FL. We 

judgmentally selected items that appeared to be in new condition. We also analyzed 

USSS, ICE, and CBP inventory data to further assess the reliability of reported radio 

equipment inventory data and to mitigate the risk of incomplete data. 

We performed limited tests to validate the reliability of reported radio infrastructure

data, comparing component infrastructure and lease data to information reported in 

the RPIS. We also analyzed information reported in RPIS for CBP to the local inventory 

maintained by the National Law Enforcement Communication Center. 

Although our analysis and detailed testing of reported inventory disclosed instances of 

incomplete or inaccurate data, as discussed in the body of our report, we determined 

the inventory data was sufficiently reliable for the purposes of our audit objective and 

to support our audit findings.

We conducted this performance audit between July 2012 and March 2013 pursuant to 

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

government auditing standards. Those standards require that we plan and perform the 

audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our

findings and conclusions based upon our audit objective. We believe that the evidence 

obtained provides a reasonable basis for our findings and conclusions based upon our 

audit objective.

www.oig.dhs.gov 14 OIG-13-113
 
 OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix B 

Management Comments to the Draft Report 

II.<;. Drportm<n< or llomtlond l>cturll,\ 

\\ "'bingloo. DC 2098 

Homeland 

Security 

July 10,2013 

MEMORA DUM FOR: Charles K. Edwards 

Deputy Inspector Go::no::ral 

Office of Inspector General 

FROM. Jim H. Crumpacker ~({) . n 

Darector 

Departmental GA0-01 Lini:lOn 

~ 

Office 

SUBJECT: OIG Drafi Report: "DHS Needs to Manage !Is Rndio 

Communication Progntm Reller" 

(Project No. 12-157-AUD-DHS) 

Thank you for the opportunity to revaew and comment on this draft report. The U.S. Deparuncnt 

of Homeland Security (DIIS) appreciates tlte Office of Inspector Geneml's (OlG's) work in 

plunning and conducting its review and issuing this n:port. 

OilS le:~dership understands the importance of levernging the Department's collccbve capability 

to strengthen the homeland security enterprise and is continuing to make significant progress in 

improving cffcctivcnCJ;s uml intc~,orution across the Components. The DHS Under SccrCiary tor 

Management leads the DHS-wide effort to integrate the Deportment's management 

infrastructure. which includes the establishment of functional portfolios ddim:d within tht: DHS 

Segment Arclutecture Methodology (DSAM). The DSAM represents the process tor developiug 

segment archatccturc~ for cnmmon massaon and business ti.mctions across the Department. 

Segment nrehitccturcs bridge strategic planning, mis~inn ami hu~inc~~ operA hoM, ntl 

on formation technology (IT) implementation to provide actionable blueprints in support of"Onc 

OilS." 

Since il~ inception, DHS ha.~ steadily improved intcgrntion of its Components' unique 

operational missions. The Office of the Chief Readiness Support Officer (CRSO), within the 

Manac,cmcnt Dorcctorntc (\M;MT), i~ re•ron~ible lor coordinnling efforts to improve alignment 

of business support s<:rviccs. including management of assets and related support acovities. 

CRSO continues to focus on 1mpro\ing the rcadincs~ of mission support in an affordablo 

manner. It facilitates integratiou ofth~ Compon~nts by ussessing various support processes, 

identifYing similarities, standardizing asset and related pcrfonnance clata standards, compiling 

dcpartm<.'tltal data and integrating capabilities. Recently, CRSO issued draft data accountability 

standards for B!>St:ts that wver radio wmmunicatiuns and numerous other asset classes. which 

should be finalized by August 30,2013. 

www.oig.dhs.gov 15 OIG-13-113
 
 OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

The dr..1ft report contained two recommendations with which the Department concurs. 

Specifically, OIG recommended that the DHS Under Secretary for Management: 

Recommendation l: Establish a single point of accountability at th<: D<:partm<:nt l<:vel with the 

authority, resource , and mfonnalton ro ensure a porttoho approach is implemented for its radio 

commWlication progmm. 

Response: Concur. DHS has established an Enterprise Architecture (EA), which defines the 

functional areas that support the strategy and m1ssions of the Department. r:unctional areas are 

decomposed into specific activities, governance bodies, and artifacts that provide DHS 

organizations and their leaders with a basis for cullaburatiun and reuse of resources. Using the 

DSAM, the Department has defined 13 Functional Portfolios with varying levels of maturity. 

each compost:d uf di~tinct uctivili1--s. Radio Cummunicatiuns is included within the broader 

Communications scb'lllcnt architecture-! ofJ I segments aligned w1th the Enterprise IT 

Services Functtonal Portfolio. Within the context of this report, "portfolio" is used to refer to the 

pnmary function of'"Communications" rather than the broader Enterprise IT Services Functional 

Portfolio. 

DHS has demonstrated through an independent assessment that it has now attained maturity 

Stage 4 status as proscribed by the U.S. Government Accountability Office's enterprise 

architecture management maturity framework'. This means that DHS has a foundational set of 

corporate and subordinate EA products that provide a meaningful basis for infonning selected 

investments and building gn:utcr EA scope, contenL usc, and results. 

The Department's single point of accountability, with the authority, resources, and infonnation 

to ensure a portfolio approach is implemented for its rarlio communtC.1tton program, ts the 

Tactical Communications (TACCOM) Executive Steering Commillee (ESC), which was 

established in 2011. It is composed of the Deputy Component Heads from each DHS 

Component wtth equity m the TACCOM portfolio segment. This ESC was approved to assume 

TACCOM portfol io segment authority to enable greater trunsparency and oversight of the 

Department"s radio communication investments. Specific segment portfolio policy and 

processes are in the early stagt:s uruwturity, but t.:urrent invesllmmts are managed within the 

framework of the enterprise rt Sei"Vlces Functional Portfolio. 

OilS has made significant progress in developing a comprehen ivc understanding of irs cx•sting 

capability as well as Component strategic planning for su.~tainment ancl replacement of radio 

communications systems. However, successful planning is dependent on the availability of 

budget and other resources. Current estimated time to complete the fully matured Departmentlevel segment portfolio management for tactical communications will he based on the yet-to-be 

dt.wdopcd Fiscal Year (FY} 2016 R~ource Allocalwn Plan (RAP} ond related capital pion and 

business case decisions to suppon full implementation. 

The T ACCOM Portfolio Management function currently falls under the Office of the Chief 

Info rmation Ollicer IT Infrastructure Services Governance Board (ITSGB) under the IT line of 

business. Tht: Joint Wireless Program Management Otlice (J\VPMO) ESC is exploring the 

1 

ORGANllo\TIOSAl TRA.\!SFORMATION A Fran'e"Orl fOr A"'•c.:um~and lm.pn.wins Enterpnse ArdutechH-c \bru~rtn('rtlCVtl\1110 2.01 (0AO.JO-K4Ml ut:.~ "l ~ ?OHI) '""'hmr;ton UC 

2 

www.oig.dhs.gov 16 OIG-13-113
 
 OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

opportunity for the JWPMO to support the ITSGB in helping to enhance the management of the 

OilS Tactical Communications Portfolio. The JWPMO has assembled and vetted the resource 

uno fwruing ~:4uir~:mcnt:. m:c ::.~u y to as~urm; thi~ role. The rc~ h~ of ~ rcwurct: uno funding 

study will be presented to the ESC in July 2013. If approved, the JWPMO will assemble all 

documentation and funding requirements under the FY 2016 RAP submission. Estimated 

Completion Date (ECD): To Be Determined 

Recommendation 2: Develop a single portfolio of rndio equipment and infrnstructurc, which 

will-

• Identify and describe the data elements needed to manage radio equipment and 

infrastructure; 

• 11evelop policies and implement procedures for sranclarrl clnra reporting of radio 

equipment and infrastructure; and 

• Develop policies and implement procedures for verifying the accuracy and completeness 

of reported radio inventory data. 

Response: Concur. The JWPMO has made significant progress in collecting the data necessary 

to develop a single profile of IJHS assets, infrastructure, and services in use across Components. 

CRSO's primary objective for our property management program is to ensure that DHS personal 

property assets are managed in accordance with all laws, regulations, and DIIS policy, and that 

asset management decisions arc based on sustainability, maximiLing return on investment, and in 

the ovcrnll best interests of the government and citizens. CRSO has promulgated standards for 

the collection and maintenance of inventory data and wrll continue to work with the JWPMO. 

which will complete a review o f existing policies and procedures within 120 days of this 

memorandum. Following the review, we will revise, as necessary, our personal property manual 

to align with the findings. ECD: June 30, 2014. 

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

comments were previously provided under separate cover. Please feel free to contact me if you 

have any questions. We look forward to working with you in the future. 

3 

www.oig.dhs.gov 17 OIG-13-113
 
 

 

 

 

 

 

 

 

 

 

 

 

 

 OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix C 

DHS Radio Equipment Items and Infrastructure Value 

Figure 1. Radio Equipment11

Component Items Acquisition Value

TSA* 12,466 $ -

USCG* 14,096 $ -

FLETC 2,543 $ 4,909,011.53 

FEMA 11,079 $ 34,445,709.37 

USSS 28,142 $ 105,843,483.39

ICE 38,622 $ 168,070,601.92

CBP 90,171 $ 245,273,242.79 

Total 197,119 $ 558,542,049.00

Figure 2. Radio Infrastructure12

Component Sites Replacement Value

TSA - $ -

USSS 4 $ 1,910,000.00

ICE 80 $ 2,139,800.10

FEMA 44 $ 2,180,181.89

FLETC 11 $ 14,941,796.87

CBP 1,350 $ 25,278,247.47

USCG 2,001 $ 494,633,846.24

Total 3,490 $ 541,083,872.57

11 USCG data did not include any reported values or costs for the equipment items listed. Therefore, the total 

amounts presented are understated. Subsequent to the issuance of the draft report, TSA provided an updated 

inventory of 12,515 equipment items totaling about $37 million. 

12 The Components did not report acquired costs in the RPIS data received; therefore, replacement value was used.
 

www.oig.dhs.gov 18 OIG-13-113
 
 

 

 

 

 

 

 

 

 

 

 OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix D 

Analysis of DHS Component Inventory Data Elements 

Figure 3. Data Elements Recorded in Component Inventory Systems 

Data Element USCG13 CBP FLETC ICE TSA USSS FEMA

Total

(N) 

Unique Identifier 

(property tag number) N/A Y Y Y Y Y Y 0 

Stewardship/Location N/A Y Y Y Y Y Y 0 

Cost N/A Y Y Y Y Y Y 0 

Description/Name 

(mobile or portable 

radio) N/A Y N Y N Y Y 2 

Acquisition Date/ 

In-Service Date N/A N Y Y Y Y Y 1 

Category/Type 

(radio equipment,

weapons) N/A Y N Y Y Y N 2 

Status (active, idle, etc.) N/A Y N Y Y Y N 2 

Condition (new, scrap) N/A N N N N N N 6 

Total (N) N/A 2 4 1 2 1 3 

13 USCG’s radio inventory resides in numerous, disparate databases and sufficiently reliable data was not

available for analysis during our audit. 

www.oig.dhs.gov 19 OIG-13-113
 

 

 

 

 

 

 

 OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix E 

CBP New Radio Equipment Items Stored at Hi-Tech Facility

Figure 4. New Radio Equipment Items Stored at CBP Hi-Tech Facility in Years 

>=5 Years 4 Years 3 Years 2 Years 1 Year Total

Equipment Items $ Value Items $ Value Items $ Value Items $ Value Items $ Value Items $ Value 

Portable 

XTS 5000 33 30,387 1 3,711 0 0 372 936,271 10 50,185 416 1,020,554 

Mobile XTL

5000 0 0 11 41,437 142 535,525 281 1,128,355 100 421,372 534 2,126,689

Consolette 

Base 

Station 88 327,439 76 303,089 0 0 0 0 57 285,433 221 915,961

Repeater 19 209,869 44 536,865 0 0 3 35,064 9 103,697 75 885,495

Total 140 567,695 132 885,102 142 535,525 656 2,099,690 176 860,687 1,246 4,948,699

www.oig.dhs.gov 20 OIG-13-113
 
 

 

 OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix F 

Major Contributors to This Report 

Linda Howard, Director 

Robert Ferrara, Audit Manager 

Johnson Joseph, Auditor-in-Charge 

Peter Christopher, Program Analyst 

Barry Cleveland, Program Analyst

April Evans, Program Analyst 

Eliece Pizarro, Auditor

Kevin Dolloson, Communications Analyst 

Patricia Benson, Independent Referencer

www.oig.dhs.gov 21 OIG-13-113
 
 

 

 

 OFFICE OF INSPECTOR GENERAL 

Department of Homeland Security 

Appendix G 

Report Distribution 

Department of Homeland Security 

Secretary 

Deputy Secretary 

Chief of Staff 

Deputy 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 

Acting Chief Privacy Officer 

Office of Management and Budget

Chief, Homeland Security Branch 

DHS OIG Budget Examiner

Congress

Congressional Oversight and Appropriations Committees, as appropriate

www.oig.dhs.gov 22 OIG-13-113
 
 

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