San Diego Sector (A-2L)

Deployment Analysis

Location: Jacumba, California – Willows Access 2 – 2.01 Miles of Pedestrian Fence

Key Issues/Constraints:
• The area is in a rural setting adjacent to and east of the town of Jacumba, CA, and
to the west of Airport Mesa (Cerro la Miel – Honey Hill).
• The current fencing in the project area is the “picket fence” type steel post and
beam construction which allows limited impedance to pedestrians of any health
ability and has been crossed by vehicles several times in the past few years.
• Airport Mesa spans the U.S./Mexico Border, jutting into the U.S. over a ½ mile
and is about 500’ in elevation higher than the Willows Access 2 pedestrian fence
project area. (b) (7)(E)

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)

(b) (7)(E)

• Old Highway 80 is a two-lane state highway that runs parallel to and within 500
yards of the border along the Willows Access 2 project area. (b) (7)(E)

(b) (7)(E)

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Nature of the Threat:
• The Willows Access 2 project area continues to be a consistent entry point for
numerous illegal entrants even with increased enforcement efforts.
• Due to the ease of pedestrian and relative ease of vehicle entry, the lack of viable
highpoint positions and challenging terrain features, entry detection capabilities
(b) (7)(E)

• Despite its rural location, there is only a very limited tolerance to depth of
intrusion within the Willows Access 2 (b) (7)(E)
.
• Due to limited patrol routes and terrain challenges, an expansive enforcement
footprint is presently the only means of patrolling this area. This subjects agents
to the hazards of the terrain and does not to prevent environmental degradation
caused by illegal entrants.
• Through April of FY 08, statistics show that there have been 7 documented agent
assaults in this area.

The ease of entry through the Willows Access 2, the close proximity of the town of
Jacume, Mexico (b) (7)(E)

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

o Current deployment provides an “Initial Control Capabilities Established”

border security status in the project area. This status is accomplished with
staffing augmentation from specialized operations units and CBP Air
assets.

• Sensors – Standard ground sensors will provide enhanced detection capability

and minimal tracking capability, but once cross border violators pass through the
area, they move to areas that provide them concealment from responding agents
and observation sites.
(b) (7)(E)

o Estimated cost over three years - $691,600.

o The Sector Chief anticipates that the deployment of additional sensors
combined with the current deployment baseline will facilitate increased
detection capabilities, but will not enhance identification, classification or
response requirements that the pedestrian fence alternative provides.

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• Cameras – Cameras will provide some visual detection of persons entering the
United States and will provide (b) (7)(E)

(b) (7)(E)

o (b) (7)(E)
camera installation) - $10,400,000 (this
includes maintenance costs for three years).
o The Sector Chief anticipates the deployment of cameras combined with
the current deployment baseline will provide agents with increased
detection, identification and classification capabilities, but will not
enhance the deterrence or response requirements that the pedestrian fence
alternative provides.

• Mobile Surveillance Systems (Radar) – Mobile Surveillance Systems (MSS)

will provide increased detection and identification capabilities, (b) (7)(E)

(b) (7)(E)

o Cost Estimate for MSS units only (not including necessary road
construction costs) - $1,700,400 (including maintenance for three years).
(b) (7)(E)

o The Sector Chief anticipates that the deployment of MSS combined with
the current baseline deployment will facilitate increased detection,
tracking and identification capabilities, but will not meet the deterrence or
response requirements that the pedestrian fence alternative provides.

• Border Patrol Agents – Border Patrol Agents are capable of detecting entries,
identifying and classifying the threat, and responding to intrusions, but can be
overwhelmed by the number of illegal entrants (on foot) they confront. However,
these capabilities are hindered by the Willows Access 2 terrain environment (b)
(7)
(E)

(b) (7)(E)
(b) (7)(E)

o Cost is $150,000 per agent (to include salary, benefits and equipment).
o Total cost of agent only alternative over 3 years - $127,800,000.

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 o The Sector Chief anticipates the deployment of the additional (b) (7)(E)

• Pedestrian Fence – 2.01 miles of pedestrian fence will deter illegal entrants who
are not physically capable of climbing the structure and significantly delay those
who may be fit enough to climb it.
o Bollard design (PV-1) built to accommodate anti-climb, vehicle stop
capability and 18’ height requirements.
o Estimated cost to commercially construct fencing, access road and
associated drainage installation - $10,979,591 (including maintenance
over three years).
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 are required to
compliment tactical infrastructure.
o Proposed fencing will enhance operations by increasing agent mobility
and enabling them to tactically address the volume of pedestrian traffic in
the area. San Diego Sector has requested a fence design that meets both
pedestrian and vehicle stop capability requirements for the A-2L segment.
o The Sector Chief anticipates the deployment of the pedestrian fencing and
supporting road infrastructure combined with the current baseline
deployment will enhance detection, identification, classification and
response requirements. In addition, the pedestrian fence provides the
necessary persistence of impedance requirement that facilitates long term
sustainability.
The operational tolerance to depth of intrusion necessitates a pedestrian fence to
allow agents the opportunity to confront or deter illegal entrants before they can
access the Old Highway 80 or Interstate 8 where there is a higher risk to their
safety, the safety of agents and environmental degradation.

• Vehicle Fence – Vehicle fence will provide persistent impedance for drive-
through traffic, but the majority of activity entering through this area is comprised
of pedestrian traffic. Vehicle fence as a stand alone option is not viable for the A-
2L project area.
o Estimated cost to construct vehicle fence is $2.2 million per mile not
including necessary road and drainage structures.
o Total estimated cost to construct vehicle fence- $5,748, 600 (including
maintenance costs for three years).
o The tolerance to depth of intrusion will essentially be located near the
access road only a short distance from the fence itself. As a result, vehicle
fence will not answer the time and distance requirement that addresses the
pedestrian traffic seen in this area.

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 o The Sector Chief anticipates the deployment of vehicle fence combined
with the current baseline deployment will not enhance detection,
identification, classification and response requirements.

• 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 conducted by field commanders and the Sector
Chief, the most cost effective combination of technology mix for the A-2L
segment was determined to be the 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 fiscal cost of such a deployment over three years is estimated at

$127,800,000.
• The operational cost of the total number of agents deployed to gain and maintain
control of the Willows Access 2 project (b) (7)(E)
.
• The installation of the technology, as a stand alone alternative, would not provide
the required level of deterrence or enhance agent time-distance response.

Recommended Solution:
• Deploy pedestrian fencing to deter and to significantly slow those who are fit
enough to negotiate the fence. Fencing will deflect a large number of humans
physically unable to scale an 18’ high PV-1 bollard design fence from crossing
the border.
• Build access roads to facilitate fence construction and upgrade for patrol
activities.
• Deploy a sensor system on or in the area of the fence to alert agents when a
person is approaching, attempting to climb, or tampering with the fence.
• Deploy cameras providing overlapping view sheds of the fence and brush clearing
to provide enhanced surveillance and compliment detection capabilities.
• Deploy visual deterrence systems (lights that may be activated by camera
operators) for nighttime deterrence.
• Deploy agents in a mobile capacity, patrolling the fence and responding when the
technology systems detect an illegal entry.

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Projected Results:
• Fewer illegal entries will occur resulting in a lesser agent and alien presence in the
Willows Access 2 project area. This ultimately will minimize impacts to the
dangers associated with terrain and environmental issues.
• The tolerance to depth of intrusion will be shortened to the immediate border area.
The added tactical infrastructure will afford agents the ability to confront,
intercept and deter illegal entrants before they are able to abscond or hide in stash
houses
• Those who challenge the pedestrian fence will require equipment or assistance
from others, thereby increasing the level of difficulty and frustration of the
criminal element.
• Long term effect will allow significantly fewer agents to maintain effective
control in the Willows Access 2 project area once achieved.
• Field commanders will be able to redeploy agents to new areas of operation to
address any shifts in smuggling patterns.
• Fewer aerial assets will be required to support operations which will reduce risks
to agents and pilots and result in budget savings associated with subsequent
maintenance and fuel costs.
• Create the potential to re-allocate several million dollars in yearly salaries for a
one-time cost of technology and tactical infrastructure deployment.
• The Sector Chief anticipates that this enhancement combined with the proper mix
of technology and personnel will raise the border security status from a level of
“Initial Control Capabilities Established” to the level of “Effective Control” in the
A-2L project area.

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