CBP Acquisition of Aviation 


Management Tracking System
 

Department of Homeland Security
 

OIG-12-104 (Revised) August 2012
 
August 31, 2012
 
 

 OFFICE OF INSPECTOR GENERAL 

 Department of Homeland Security 

Background

The Department of Homeland Security (DHS) has the world’s largest law enforcement 

aviation organization. Both U.S. Customs and Border Protection (CBP) and the United 

States Coast Guard (USCG) have fleets of rotary and fixed-winged aircraft to support 

their missions. Since 2009, there have been numerous efforts to find efficiencies 

between the two components’ fleets including efforts directed by the Secretary of the 

Department of Homeland Security. 

 

As a result, the Office of Inspector General (OIG) is performing an audit to determine 

whether DHS and its components have developed efficiencies for the acquisition, 

conversion, and maintenance of CBP and USCG H-60 helicopters. During our audit, it 

came to OIG’s attention that the CBP Office of Air and Marine (OAM) plans to acquire a 

new information technology (IT) aviation logistics and maintenance information system. 

At a meeting with CBP OAM officials on May 9, 2012, they stated they would decide on 

an IT system in the next 30 days. 

Results of Review

Although there is a joint strategy to unify its aviation logistics and maintenance system 

with those of the USCG, CBP plans to purchase a new, separate system that will not be 

coordinated with the USCG’s already operational system. This acquisition does not 

comply with the Secretary’s efforts to improve coordination and efficiencies among DHS 

components and will reduce CBP’s estimated cost savings.

CBP IT Systems

CBP currently uses the Computerized Aircraft Reporting and Material Control (CARMAC) 

system to record aircraft maintenance, determine operational status, control inventory, 

and perform other functions. However, the CARMAC system was implemented in 1979, 

is written in an outdated programming language, and is not user friendly, which makes it 

excessively expensive to maintain. As a result, CBP has decided to move to a new 

system to track and analyze this vital aviation logistics and maintenance data. 

According to officials, CBP originally planned to purchase two separate IT systems to 

replace CARMAC. One, NASA’s Aviation Maintenance Information System (NAMIS), 

would support only CBP P-3 long range patrol aircraft programs. The other similar but 
 

 OFFICE OF INSPECTOR GENERAL 

 Department of Homeland Security 

separate system, IBM’s Maximo Asset Management System (MAXIMO), would track 

information for all remaining CBP aviation platforms. CBP’s IT department denied 

OAM’s plan to acquire two separate systems. Currently, OAM is determining which of 

the two systems it will select to replace CARMAC. 

CBP OAM officials estimate it will cost more than $21 million to maintain CARMAC for 

the next 5 years. They estimate a new replacement system will cost approximately $7 

million to acquire and operate over the next 5 years. OAM officials also stated that CBP 

would not migrate the legacy CARMAC information into the new system to preserve the 

new system’s integrity because the CARMAC information is incomplete and 

cumbersome. CBP plans to keep CARMAC operational for an undetermined length of 

time to support any historical data requirements. 

USCG IT Systems

Currently, the USCG owns and maintains the Asset Logistics Management Information 

System (ALMIS) for managing aircraft (and surface) logistics, maintenance, and 

operational information. ALMIS is accredited under National Institute of Standards and 

Technology (NIST) IT system security standards in NIST Special Publication 800-37 and 

supports comprehensive maintenance, operations, and logistics for more than 200 

USCG aircraft across the nation. ALMIS is already cleared and operational in the DHS IT 

infrastructure. The USCG is updating its IT systems to the Coast Guard Logistics 

Information Management System (CG-LIMS). All data from ALMIS will be migrated to 

CG-LIMS during this technology refresh. The USCG has been conducting a detailed 

acquisition of this software since 2006. 

Secretary’s Direction 

DHS’ FY 2013 budget submitted to Congress emphasizes the importance of 

consolidating and streamlining systems and operations as much as possible to ensure 

cost savings for the Department. In a March 21, 2012 hearing before the Senate 

Appropriations Committee, the Secretary of the Department of Homeland Security 

highlighted senior leadership’s efforts to analyze the roles and missions of DHS’ aviation 

assets to increase their effectiveness through increased coordination and collaboration. 

The Secretary specifically mentioned “increased cross-Component collaboration for 

aviation-related equipment and maintenance by establishing excess equipment sharing, 

maintenance services, and contract teaming agreements, as well as other opportunities 

for aviation related efficiencies.” 

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 Department of Homeland Security 

Joint CBP/USCG Strategy-Aviation Information Management Systems 

In DHS’ Customs and Border Protection FY 2011-15 Resource Allocation Decision, DHS 

directed: 

CBP and USCG will provide to the PRB by January 29, 2010, a joint 

strategy to achieve compatible or unified information management 

systems, with the goal of interoperable systems (to include a common 

lexicon and capacity to automatically share information) by 2014. 

In response, CBP and the USCG drafted the Joint CBP/USCG Strategy - Aviation 

Information Management Systems (2010) (joint CBP/USCG strategy) outlining 

the numerous systems used by the two agencies to track aviation logistics, 

maintenance, and other information. The strategy concludes that integration of 

legacy systems is generally more difficult and expensive than migrating to a new 

generation data system. It further states that “a phased approach to achieving 

compatible or unified aviation management information systems between CBP 

and the USCG will likely achieve the best results.” More importantly, the 

strategy calls for first unifying the CARMAC and ALMIS logistic and maintenance 

systems because they have the most commonality and require the least effort 

and resources. Finally, the strategy details steps to plan and implement 

unification of CBP and the USCG’s information management systems. 

Conclusion

Although there is a joint CBP/USCG strategy to unify the two components’ 

aviation management information systems, OAM plans to acquire a new, 

separate IT system for its aircraft. This plan would continue past practices of 

obtaining disparate systems that cannot share information with other 

components, including the USCG. Instead, CBP should promptly terminate this 

planned acquisition and instruct OAM to transition its aviation logistics and 

maintenance tracking to the USCG’s ALMIS, in accordance with the Secretary’s 

efficiency initiatives and the joint CBP/USCG strategy. By transitioning to the 

USCG’s ALMIS, CBP will improve the effectiveness of aviation management 

information tracking for itself and DHS and save more than the OAM-estimated 

$7 million. 

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 Department of Homeland Security 

Recommendations

We recommend that the Acting Commissioner of the U.S. Customs and Border 

Protection: 

Recommendation #1: 

Terminate any new acquisitions by the Office of Air and Marine of aviation 

logistics and maintenance information management IT systems; and 

Recommendation #2: 

Direct the Office of Air and Marine to coordinate with the United States Coast 

Guard to transition its aircraft reporting and material control processes and 

procedures to the United States Coast Guard’s Asset Logistics Management 

Information System. 

Management Comments and OIG Analysis 

CBP submitted formal comments to our report. A copy of the response is included as 

appendix B. The USCG also provided technical comments to CBP for the report, but CBP 

did not provide these to OIG. We obtained them through USCG representatives. Both 

the USCG’s technical comments and CBP’s management comments are summarized 

below and incorporated in the final report where appropriate. CBP did not concur with 

our two recommendations. Our analysis of CBP’s non-concurrence follows. 

USCG Technical Comments

The USCG provided technical comments to CBP and subsequently forwarded those 

comments to the OIG for review and consideration. USCG’s technical comments 

focused on two elements—its work to upgrade its own systems and the difficulties in 

transitioning CBP to the USCG’s system. Upon receipt, OIG staff discussed the 

comments with USCG technical representatives for additional clarification. 

OIG is aware that the USCG is updating its IT systems to CG-LIMS. This technology 

refresh will include ALMIS, and all data from ALMIS will be migrated to CG-LIMS. The 

USCG has been conducting a detailed acquisition of this software beginning in 2006. 

USCG officials confirmed that the sooner CBP commits to transitioning to ALMIS, the 

more input CBP could have into the final CG-LIMS. 

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The USCG is concerned about both ALMIS’ ability and the cost to communicate with CBP 

finance and human resources systems. OIG understands that CARMAC does not 

currently share information directly with either CBP’s finance system or its human 

resource systems. Managing CBP logistics and maintenance information in the USCG’s 

ALMIS would be similar to CBP CARMAC’s current processes, but would include the 

potential to integrate CBP finance and human resource systems with CG-LIMS in the 

future, if properly planned and implemented. The USCG questioned CBP’s current 

technological integration and cost estimates for procuring any new logistics and 

maintenance system, concluding that for CBP to acquire either of the two systems 

would cost much more than $7 million. 

CBP Management Comments

Management Comments to Recommendation #1

CBP did not concur: CBP stated that due to the size of its fleet, and the inefficient and 

ineffective CARMAC system currently used to track vital aviation logistics and 

maintenance data, OAM cannot wait indefinitely to transition to a new aviation 

information system when sufficient CBP resources are neither available nor likely to be 

available soon for implementation. 

OIG Analysis: CBP implied IT planning time and resources are scarce. We contend that, 

when there are existing systems available to meet CBP’s needs, quickly purchasing a 

new IT system outside of DHS is not the proper response. There is a high risk that the 

inadequately researched new system will not meet CBP’s IT needs. CBP should instead 

use the available time and resources to thoroughly analyze and determine the most 

effective way to use the already functional system within DHS that the USCG owns and 

operates. This will mean adjusting CBP’s business practices to align with the USCG’s; 

however, CBP’s transition to any new system will require this adjustment. Transitioning 

to the USCG’s ALMIS and CG-LIMS would follow the joint CBP/USCG strategy, as well as 

the Secretary’s goal for “one DHS.” 

Management Comments to Recommendation #2

CBP did not concur: CBP stated that it would be irresponsible to agree to implement 

the recommendation to transition to ALMIS without a substantive assessment of 

commercial and/or other government-owned alternatives. CBP also stated that the 

USCG is currently migrating from ALMIS to an upgraded system. CBP believes that 

transitioning to the USCG’s system will cost more for itself and the USCG, especially 

during initial start-up, and that consolidating IT systems does not always lead to 

efficiencies that outweigh the costs. Finally, CBP stated that CBP’s and the USCG’s use 

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 Department of Homeland Security 

of different general ledger and human resource systems would adversely affect the joint 

use of a common logistics IT system. 

OIG Analysis: Since 2004, studies and reports conducted by numerous internal and 

external organizations have pointed specifically to unifying CBP and USCG logistics and 

information management processes into one system. CBP has resisted efforts in the 

past and continues to not take the necessary first step to align similar systems and 

operations between DHS components. 

CBP also continues to argue that “merging” systems is cumbersome, costly, and difficult. 

However, regardless of which new system is used, CBP will need to adjust its data 

collection processes, and most of the existing corrupt CARMAC data will not be moved 

to any new system. This is an ideal time for CBP to transition to the USCG system using 

the existing data fields and processes already developed and implemented by the USCG. 

CBP is correct that the USCG will eventually migrate the data from ALMIS to CG-LIMS 

during the process of refreshing the IT systems. However, this technology refresh is an 

updating process that will not interfere with ongoing ALMIS operation. With CBP’s 

cooperation, the updated version could potentially be more suited to fit CBP and DHS’s 

needs. The USCG is not migrating away from ALMIS, but improving the system with CGLIMS to include functions for connecting maintenance, supply, logistics, finance, and 

human resources systems and functionality. 

CBP believes that OIG did not consider commercial or other government-owned 

alternatives. OIG staff reviewed white papers provided by CBP on those systems and 

came to the conclusions in the report. The IT systems CBP is considering would be 

hosted outside of CBP and DHS, just as CARMAC has been in the past, which led to 

major data integrity and access problems. Furthermore, if CBP selects NASA’s NAMIS, 

CBP would be transitioning more than 270 aircraft into a system that currently only 

supports 104 NASA aircraft. CBP would have more than a 72 percent stake in a system 

over which it has no ownership or control. In addition, acquiring the commercial 

alternative MAXIMO would neither align with the joint CBP/USCG strategy, nor follow 

the Secretary’s direction to “increase cross-Component collaboration for aviationrelated equipment and maintenance.” 

CBP did not disagree with OIG that the joint CBP/USCG strategy confirmed aligning 

these logistics and maintenance processes and systems is a first step. It has been more 

than 8 years since the Department formed and since ALMIS was identified as the system 

DHS components should use for aviation logistics and management tracking. However, 

CBP will further delay this alignment if it acquires yet another disparate IT system 

outside of DHS. 

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 Department of Homeland Security 

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. 

We conducted this review within the scope of our audit Developing Efficiencies for the 

Acquisition, Conversion, and Maintenance of CBP and USCG H-60 Helicopters (12-102-

AUD-DHS). During audit fieldwork information pertaining to the acquisition of a new IT 

system was brought to our attention. We talked with CBP personnel regarding their 

plans for acquiring a new system for tracking aviation management information, 

reviewed the joint strategy drafted by CBP and the USCG on the feasibility of joining 

systems, and reviewed white papers on the potential replacement systems CBP was 

considering purchasing. We also reviewed Congressional testimony provided by the 

Secretary of the Department of Homeland Security on improving efficiencies in DHS. 

We conducted this performance audit between January and May 2012 pursuant to the 

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

government auditing standards, except that we identified an impairment to our 

independence in appearance. Following completion of our audit, it came to our 

attention that a family member of a senior OIG official was employed by an entity 

associated with this audit. We took steps to re-evaluate the evidence supporting our 

findings and conclusions. In our opinion, the impairment to our independence in 

appearance did not affect the findings and conclusions developed during this audit. 

GAGAS requires 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 objectives. We believe that the evidence obtained provides a reasonable basis for 

our findings and conclusions based upon our audit objectives, and that the impairment 

to our independence in appearance did not affect this evidence or any findings and 

conclusions. 

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Appendix B 

Management Comments to the Draft Letter Report 

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Appendix C 

Report Distribution 

Department of Homeland Security

Secretary 

Deputy Secretary 

Chief of Staff 

Deputy Chief of Staff 

Under Secretary for Management 

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 

Commandant, United States Coast Guard 

Chief Procurement Officer, DHS 

Chief Information Officer, DHS 

Audit Liaison, CBP 

Audit Liaison, USCG 

Office of Management and Budget

Chief, Homeland Security Branch 

DHS OIG Budget Examiner 

Congress

U.S. Senate Committee on Appropriations 

U.S. House of Representatives Committee on Appropriations 

U.S. Senate Homeland Security and Governmental Affairs Committee 

U.S. Senate Committee on Finance 

U.S. Senate Committee on the Judiciary 

U.S. House of Representatives Committee on Homeland Security 

U.S. House of Representatives Committee on Government Reform 

U.S. House of Representatives Committee on Transportation and Infrastructure 

www.oig.dhs.gov 12 OIG-12-104 
 

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