San Diego Sector (A-2D)

Deployment Analysis

Location: West Horseshoe Canyon (Zone 27), San Diego, California – 0.82 Miles of
Remote Area

Key Issues/Constraints:
• West Horseshoe Canyon is in remote east San Diego County, located
approximately ½ mile east of the Gun Sites area and approximately 4 miles east
of the Tecate Port of Entry and approximately 2.5 miles southeast of Potrero, CA.
• Immediately north of the international boundary, the terrain is comprised of deep
ravines and mountains. (b) (7)(E)

• The border road along this stretch of the international boundary curves northward
away from the border. It extends more than ¼ mile north of the boundary,
preventing agents on the border road from seeing entries as they occur. Illegal
entrants travel north, using the surrounding ravines as cover. Sensors are
effective in this area, but due to the distance between the border road and the
international boundary, agents are required to hike down these steep ravines and
mountainsides in order to intercept and apprehend illegal crossers.
• There is one secondary east/west road between the border road and State Route
94, located less than 100 yards north of the border road. Once entrants reach the
border road, it is a short climb to reach the secondary road. Once north of the
secondary road, the groups can continue north through the mountains until
reaching State Route 94 in the area of Harris Ranch Road.
(b) (7)(E)

• The area immediately south of Horseshoe Canyon is a rural area of Tecate, Baja
California, Mexico. The town of Tecate supports a population of nearly 100,000.
(b) (7)(E)

o Tecate, Mexico is only 40 miles east of Tijuana, which is Mexico’s sixth

largest city and a major transshipment point of aliens and narcotics.
o The Tecate Highway runs east and west between Tijuana and Mexicali,
Mexico, providing access to the border south of the area.
o An international firebreak runs from the Tecate Port of Entry to the San
Diego County line on the south side of the U.S./Mexico boundary line,
which allows for even closer vehicle access to the border.
• This is an area of environmentally sensitive habitat which is adversely impacted
by alien foot traffic activity. The West Horseshoe project area has been identified

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 as a possible area that contains sensitive habitat for the Quino Checkerspot
Butterfly and the Arroyo Toad.
• Wild fires burned through this area in September of 2007, which resulted in the
loss of defined trails and vegetation concealment north of the border road, but left
the area between the border road and the international boundary unaffected. This
gives the smugglers cover and concealment until reaching the border road, then
once north of the border road, they have the ability to “straight line” through the
now open area very quickly. Over time, the vegetation will return and force the
smugglers back to defined trails, thus slowing their progress.
• The border road and the secondary east/west road are not all-weather roads. These
roads are graded dirt roads which become impassable during periods of inclement
weather. The inclement weather ranges from heavy rain to sleet and snow in the
winter months. (b) (7)(E)

o This inaccessibility also negatively affects other public safety efforts to

include rescue and area policing to reduce cross-border crime such as
bandit activity and predatory violence against illegal entrants.
o The border road through this area follows the lay of the land, with
numerous curves and grades. Due to poor road conditions, there have
been several vehicle accidents along this stretch of border road. These
poor road conditions prevent agents from quickly responding to entries or
sensors activations.

Nature of the Threat:

• Since April 1, 2007, 19% of all SDC apprehensions have occurred within the El
Cajon Station POD.
• Since April 1, 2007, in zone 27, there have been:
o 3 confirmed vehicle incursions
o 7 vehicles seized
o 5,059.3 pounds of Marijuana seized
• Terrain hazards have resulted in significant officer safety risks to agents.
o The El Cajon Station reported 158 agent injuries from FY2005 through
FY2007
o The El Cajon Station reported 82 Border Safety Initiative rescues from
FY2000 through FY2007
• Predatory violence by bandits against illegal entrants, to include assaults and
robberies, has been reported. Since the beginning of FY08, there have been 11
reported assaults against agents in Zone 27.
(b) (7)(E)

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 (b) (7)(E)

(b) (7)(E)

The lack of access during inclement weather, the high-point advantage on the south side
that allows guides to conduct counter surveillance operations, and (b) (7)(E)

Analysis of Alternatives:
• Baseline – Current resource deployments in Zone 27 surrounding the West
Horseshoe Canyon (b) (7)(E)

o The 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, (b) (7)(E)

(b) (7)(E)

o Estimated cost over three years is - $282,100

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.
• Cameras – Cameras will provide enhanced detection and tracking capabilities of
persons entering the United States, but due to rugged terrain features and
inclement weather patterns, (b) (7)(E)

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 (b) (7)(E)

(b) (7)(E)

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)
(b) (7)(E)

o The Sector Chief anticipates that the deployment of MSS combined the
current deployment baseline will facilitate increased detection and
identification but will not meet classification 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
inundated by the number of illegal entrants (on foot) they encounter. However,
these capabilities are hindered by the West Horseshoe Canyon terrain
environment and time and distance advantage to the target area held by the drug
and alien smuggling organizations. Current deployment requires the use of air
assets and increased mobile patrols which drains manpower as well as budgetary
resources and is not sustainable over a long period of time.
(b) (7)(E)

(b) (7)(E)
(b) (7)(E)
(b) (7)(E)
o The Sector Chief anticipates that the deployment of the additional 116
total agents combined with the current baseline deployment will enhance
detection, identification, classification and response requirements, but is

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 deficient in the areas of executability and sustainability when compared to
the pedestrian fence alternative.
• Pedestrian Fence – 0.82 miles of pedestrian fence will deter illegal entrants
and/or significantly delay illegal entrants from entering the United States giving
agents time to respond, deter and interdict potential illegal entrants.
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 - $5,299,434 (includes maintenance costs
for 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 detection technology are required to
compliment tactical infrastructure.
o Proposed access roads and fencing will enhance operations by increasing
agent mobility and enabling them to tactically address a reduced 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 West Horseshoe Canyon area
o The operational tolerance to depth of intrusion necessitates a pedestrian
fence to allow agents the opportunity to confront illegal entrants before
they can access the West Horseshoe Canyon area where it is a higher risk
to their safety, safety of agents and environmental degradation.
o The Sector Chief anticipates that 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.

• Vehicle Fence – Vehicle fence will provide persistent impedance for drive-
through traffic, but the majority of activity entering through this area is pedestrian
traffic. As a result, vehicle fence will not answer the time and distance
requirements for the volume of pedestrian traffic seen in this area.
o Estimated cost to construct vehicle fence is $2.2 million per mile, not
including necessary road and drainage structures.
o Total cost for the West Horseshoe project section of vehicle fence would
be $2,345,200 (includes costs for three years of maintenance).
o The Sector Chief Patrol Agent anticipates that the deployment of the
vehicle fence combined with the current deployment baseline 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-2D

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 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 $52,200,000.
(b) (7)(E)

• The installation of 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 not 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 to all-weather for
maintenance activities.
• Deploy a sensor system on or in the area of the fence to alert agents when a
person is attempting entry or is tampering with infrastructure.
• Deploy cameras providing overlapping view sheds of the fence and brush clearing
when necessary 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.

Projected Results:
• Fewer illegal entries will occur resulting in a lesser agent and alien presence in
West Horseshoe Canyon. This ultimately will minimize exposure to the dangers
associated with terrain and subsequent environmental impacts.
• The tolerance to depth of intrusion will be maintained to the immediate border
area. The added tactical infrastructure will afford agents the ability to confront,
intercept and deter illegal entrants before entering into a more hazardous
environment.

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• Those who challenge the pedestrian fence will require equipment or assistance
from others, thereby increasing the level of difficultly and frustration of the
criminal element.
• Long term effect will allow significantly fewer agents to maintain control in West
Horseshoe Canyon.
• Field commanders will be able to redeploy agents to new areas of operation to
address the shift in smuggling patterns.
• Fewer aerial assets will be required to support linewatch and rescue operations to
the north, 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-2D project area.

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