Rio Grande Valley Sector (O-21)

Deployment Analysis

Location: Brownsville, Texas – 12.98 Miles of Urban Area

Key Issues/Constraints:
• Highly populated urban area
o Population of Brownsville, Texas: 176,000
o Population of Matamoros, Tamaulipas, Mexico: 303,000
• The Brownsville/Matamoros area is a densely populated urban area which
facilitates and helps support approximately 30% of the international commerce
between the United States and Mexico (agricultural, industrial and commercial)
• A variety of terrain features are present in the vicinity, including vast open farm
lands (which produce a variety of gains, cotton, fruits, vegetables and sugar cane)
marsh lands, and dense high brush lands. The area also has a large amount of
federally protected Wildlife Refuge lands, which are managed by the U.S. Fish
and Wildlife Service (USFWS). In addition to these federal lands, a “cat
corridor” parallels the river creating a contiguous habitat for the endangered
Ocelot and Jaguarundi.
• (b) (7)(E)

.
• The Fort Brown’s area of responsibility has one commercial Port of Entry and one
sea port.
• The Sea Port and a Port of Entry dedicated to commercial traffic facilitate a
significant amount of traffic, both on Coastal and Inter-Coastal waterways and on
the highways.
• Homes and businesses in the Mexican city of Matamoros, Tamaulipas are located
within a few feet of the U.S. border.
o (b) (7)(E)

• In addition to the legitimate traffic, cross-border violators use the paved streets
and dirt roads to facilitate lateral movement.
• Upon entry, illegal entrants can easily blend into the residential and commercial
districts located immediately adjacent to the border. Border Patrol operations
would greatly benefit from a barrier, which would provide persistence of
impendence.
• Residential neighborhoods create an almost immediate assimilation for those
illegally crossing in the area.

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 • Within one mile from the border along this three mile stretch are two elementary
schools, one middle school and one high school.
• The City of Brownsville’s Transportation System has numerous bus stops, which
facilitate the assimilation of illegal entrants into the general public.
• Legitimate Routes of ingress into Matamoros from southern Mexico and routes of
egress out of Brownsville to the interior of the U.S. are well established and
heavily used. These well established roads are constantly used by narcotic and
alien smugglers to move their contraband north and away from the river.
o Highways in Mexico span from the southern border with Guatemala to the
U.S./Mexico border, providing a direct route for potential entrants from
Central and South America to points north.
(
b
)
(
7
)
(
E
)

(b) (7)(E)

Nature of the Threat:

• Current daily activity in the 12.98 mile segment equates to approximately 8-10
arrests per shift.
o (b) (7)(E)
.
o Drug smuggling and alien smuggling organizations attempt to smuggle
contraband into the country. Smugglers use the dense vegetation and the
immediate routes of ingress to their advantage.
ƒ For Fiscal Year (FY 2007), this area produced 35 narcotics loads
yielding a total of 5,057 pounds of marijuana. This equates to an
average of just over 97 pounds of marijuana seized per week.
ƒ For Fiscal Year (FY 2008--YTD), year to date narcotics seizures in
the same area total 11 separate seizures yielding a total of 2,446

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 pounds of marijuana. This equates to an average of just over 94
pounds of marijuana seized per week.
• Despite the fact that agents are able to detect entries, the number of entrants and
their ability to assimilate into the general population has a diminishing impact on
enforcement posture. Major factors creating this situation include established
residences, commercial property, and transportation infrastructure. Assimilation
into populated areas is also aided by existing tall brush and terrain features
throughout the immediate river area. These factors force agents to be deployed in
more public areas.
• “Bridge jumpers” scale over the POE security chain-link fence to avoid
traversing the Rio Grande River and avoid inspection from CBP Officers at the
Port of Entry.
• (b) (7)(E)

Alternatives Analysis:
• Baseline – (b) (7)(E)

.
o The current Border Zone Security Status within the proposed 12.98 mile
stretch of fencing ranges from “Initial Control Capabilities Established” to
“Effective Control”.
o The zones associated with this fence segment are classified as having 19
miles of “Effective Control” and 8 miles of “Initial Control Capabilities
Established”.
• Sensors – The deployment of seismic sensors would enhance the agent’s ability
to detect and track the illegal cross-border activity that occurs in the area. These
sensors are buried underground and as a result are concealed and are mostly
undetectable. Rural areas are the best areas for optimal performance.
o (b) (7)(E)

.
o The nearby residential neighborhoods southeast of the city area are
adequate for sensors, but require an immediate response to confront
activity prior to assimilation into the urbanized areas (generally less than a
minute).
o Field Commanders have acknowledged that sensors will enhance the
ability to detect intrusions by illegal entrants, but sensors do little to deter,
identify, classify or prolong the entrant’s vulnerability travel time, which
is when agents have the best chance of making an apprehension.

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 o (b) (7)(E)

o The initial and three year cost of a pedestrian fence is estimated at

$73,108,000 compared to the sensor expenses estimated at $4,454,500.
However, sensors as a standalone feature will not provide the persistence
of impedance that the pedestrian fence would provide.
• Cameras – Cameras will provide the initial visual detection of persons entering
the United States. Additional cameras will certainly improve the current baseline
with the ability to identify and classify entrants in this area.
o Without supporting technology to direct and alert the cameras to specific
locations, cameras would not be as efficient in detecting illegal entrants.
o With the deployment of the cameras, combined with the current
deployment baseline will facilitate increased identification and
classification capabilities. They will aid in detection, but as a stand alone
feature they will not enhance the deterrent effect or response opportunities
that the pedestrian fence alternative provides.
o (b) (7)(E)

.
• Mobile Surveillance Systems (MSS – Radar) –Mobile surveillance systems,
also known as “Ground Radar” can be useful for detecting illegal intrusions in
vast open areas. MSS are versatile tools that can be advantageous to the agents.
(b) (7)(E)

.
o The three year cost for the MSS Radar is estimated at approximately
$1,700,400, compared to the three year cost for the pedestrian fence at
$73,108,000. However, radar as a standalone feature will not provide the
persistence of impedance that the pedestrian fence would provide.
• Border Patrol Agents – Border Patrol Agents are capable of detecting entries,
identifying and classifying the threat, and responding to intrusions.
o (b) (7)(E)

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 (b) (7)(E)

.
o History has shown that using Border Patrol agents as the line of defense
will create recruiting and retention challenges as well logistical issues as
the agency tries to sustain such an immense deployment over a long period
of time.
o As a stand alone feature, Border Patrol Agents spaced at 50 yards apart
could be compromised when approached by a large group of entrants. As
a result, infrastructure and technology are required to compliment the
personnel deployment.
o (b) (7)(E)

.
• Pedestrian Fence – Pedestrian fence will deter illegal entrants who are not
physically capable of climbing the structure and significantly delay those who are
determined to climb it.
o With the deployment of the 12.98 miles of fencing we will be able to gain
effective control of approximately 28.6 river miles directly south of the
proposed alignment.
o The three year cost of the pedestrian fence is approximately $73,108,000.
o As a stand alone feature, pedestrian fence cannot detect illegal entrants or
alert enforcement personnel for a proper response and resolution to the
situation. As a result, personnel and technology would greatly compliment
the tactical infrastructure.
o The combination of the proposed pedestrian fencing and the current
baseline deployment will enhance detection, identification, classification
and response requirements. In addition, the pedestrian fence provides the
necessary persistent impediment required for long term sustainability.
• Vehicle Fence –The U.S./Mexico border in Texas has the Rio Grande River to
serve as a natural, vehicular barrier between both countries.
o The estimated three year cost of implementing a vehicular fence for this
area is approximately $37,123,000.
o Due to the Rio Grande River serving as a natural barrier a vehicular fence
in this area is not a requirement and/or a viable alternative for this section
of the border.
• Weir Dam – The City of Brownsville has considered a Weir Dam that would be
located approximately 3 miles downriver from this Veterans International Port of
Entry. One of the intended purposes of a Weir Dam is to raise the water levels
upstream of the actual dam and widen the existing natural barrier (Rio Grande
River).
o The water levels of the Rio Grande River vary (Irrigation, drought etc.)
and with the construction of the weir dam there could be a impact to the

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 water flow downriver of the dam, thus diminishing the width and depth of
the Rio Grande River.
o Weir dams have a flat plate across the top portion of the structure, which
can be used to safely traverse between Mexico and the U.S. during periods
when water levels in the river are low.
o Weir dams create a waterfall effect on the downstream side of the dam,
which causes a disturbance in the water known as “whitewater”. This
condition creates a dangerous place for boating, wading or swimming as
anything caught up in the continuous tumbling cycle can remain caught in
this cycle for extended periods of time (underwater).
o In 2004, two Border Patrol Agents drowned when their boat capsized in
the whitewater area of a weir dam upstream of Brownsville in the
Harlingen area.
o The implementation of a weir dam would not provide a deterrent and there
is no credible evidence to support that this option would result in any
additional security and would therefore not be considered as a viable
alternative.
o The 2004 estimate for constructing the Weir Dam in Brownsville was
$40,000,000.
• Boats – Border Patrol marine operations are capable of detecting entries,
identifying and classifying the threat, and responding to intrusions immediately as
they are attempted and/or made.
o Water levels in the Rio Grande River tend to vary and are not always
consistent, thus not allowing boat to be utilized.
o Hydrilla, an invasive, non-native weed that plagues the Rio Grande River.
The weed grows from the river bottom to the surface forming sprawling
dense mats that prevents the navigation of marine vessels.
o The Rio Grande River spans a length of approximately 28.6 miles in the
area immediately south of this 12.98 mile segment of fencing.
o (b) (7)(E)

o (b) (7)(E)

o Over a three year period, the overall costs of implementing the boats
forward deployed alternative would total approximately $326,112,000 as
compared to the 3 year construction expense of $73,108,000 for a
pedestrian fence.

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 o The forward deployment of boats along the river in formation can
potentially be compromised when an undeterred entrant or group of
entrants attempt to make an illegal entry. When the boat agents respond to
the threat, their position as part of the “front line” would be weakened and
vulnerable to subsequent intrusions until they are back on their posts.
• Best Technology Combination – An analysis of technology components was
conducted to determine what complement of technology would be most cost-
effective. Based on the analysis, the most cost-effective combination of
technology mix for the O-21 segment was determined to be cameras and sensors.
This alternative provides enhanced detection, identification and classification
capabilities but does not address response or persistence of impedance
requirements.

Key Evaluation Factors:

(b) (7)(E)

• The community relations cost of such a deployment is a perception by the local

residents and businesses that we have become an “occupation army”, standing
shoulder to shoulder along the border, pursuing illegal activity up streets, through
backyards, and into businesses.
• The operational cost of the total number of agents deployed to gain and maintain
control of the downtown area precludes any significant deployment of agents to
address shifts in smuggling activity to the rural flanks of Brownsville.
• The terrain features (river) will make it difficult for illegal entrants to use aids like
ladders to overcome the physical structure (fence). Those physically capable of
overcoming the fence either by themselves or with the assistance of accomplices
on the south side of the fence will find they are unable to easily escape back into
Mexico once on the U.S. side of the border.
• The sole reliance on marine operations to effectively gain and maintain control in
the Southmost (Brownville) area would require an inordinate number of vessels to
line the river. Each boat unit would require a minimum of two agents to safely
operate the vessel. Initial equipment acquisition costs, fuel costs, and personnel
expenses would be extremely high. In addition, this alternative would promote a
perception of a “militarized” border.
• The installation of the technology, as a stand alone alternative would improve the
identification and classification capabilities of Border Patrol, but would not
provide the required level of deterrence or enhance agent time-distance response.

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Recommended Solution:
• Deploy pedestrian fencing to deter prospective illegal entrants.
• Technology
o Deploy a sensor system on the south side of the fence to alert agents when
a person or persons will be approaching the fence, attempting to
circumvent, or tampering with the fence.
o Deploy cameras providing overlapping view sheds of the fence to provide
enhanced surveillance and compliment detection capabilities.
o Deploy visual deterrence systems (lights that may be activated by camera
operators) for nighttime deterrence, and audio systems (speakers that
allow operators to “talk” to potential illegal entrants to let them know they
have been detected and will face arrest if they continue into the US.
o Deploy MSS units, mobile radar, to compliment the tracking capabilities
for agents.
• Deploy agents in a mobile capacity, patrolling along the fence and responding
when the technology systems detect an illegal entry.
• Deploy CBP Air and Marine Assets continuously to assist agents in detecting,
deterring and apprehending illegal incursions.

Projected Results:
• Those who challenge the pedestrian fence will require equipment or assistance
from others, thereby increase the level of difficultly and frustration of the criminal
element.
• Significantly fewer agents will be required to maintain control of the Southmost
area (Brownsville) area.
• Agents will be available to expand operations to rural areas to address the shift in
smuggling patterns. This shift will provide agents with a tactical advantage in
addressing changes in illegal traffic patterns.
• Create the potential to re-allocate several million dollars in yearly salaries for a
one-time cost of tactical infrastructure and technology deployment.
• The Sector Chief anticipates that upon implementation of this infrastructure and
redeployment of personnel resources, the border security status will increase from
“Initial Control Capabilities Established” to “Effective Control”. The increased
level of control will be established in this area upon implementing this
infrastructure. The redeployment of personnel resources will lead to an increased
level of operational control of other areas as well.

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• Technology
o Deploy a sensor system on the south side of the fence to alert agents when
a person or persons will be approaching the fence, attempting to
circumvent, or tampering with the fence.
o Deploy cameras providing overlapping view sheds of the fence to provide
enhanced surveillance and compliment detection capabilities.
o Deploy visual deterrence systems (lights that may be activated by camera
operators) for nighttime deterrence, and audio systems (speakers that
allow operators to “talk” to potential illegal entrants to let them know they
have been detected and will face arrest if they continue into the US.
o Deploy MSS units, mobile radar, to compliment the tracking capabilities
for agents.
• Deploy agents in a mobile capacity, patrolling along the fence and responding
when the technology systems detect an illegal entry.
• Deploy CBP Air and Marine Assets continuously to assist agents in detecting,
deterring and apprehending illegal incursions.

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