Southwest Border: CBP Should Improve Data Collection, Reporting, and Evaluation for the Missing Migrant Program
Fast Facts
Migrants attempting to enter the U.S. illegally along the southwest border risk injury or death by crossing in remote areas. Border Patrol implemented the Missing Migrant Program to help rescue migrants in distress and reduce migrant deaths.
In September 2021, Border Patrol issued procedures to, among other things, help standardize how the agency tracks reports of deceased migrants. But Border Patrol hasn't collected or recorded complete data on migrant deaths and does not have a plan to evaluate how the program is working. We recommended that Border Patrol address these issues.
Sign at the southwest border instructing migrants to call 911 for help
Highlights
What GAO Found
The U.S. Border Patrol set up the Missing Migrant Program in 2017 to help rescue migrants in distress and reduce migrant deaths along the southwest border. Border Patrol issued nationwide procedures in September 2021, and has coordinated with external entities (e.g., state and local officials) and undertook various efforts to help reduce the frequency of migrant deaths. In particular, the nationwide procedures are intended to help standardize how Border Patrol coordinates with external entities to respond to and track reports of missing and deceased migrants. Border Patrol has also undertaken various efforts to help respond to migrants who may be in distress. These efforts include placing rescue beacons and 9-1-1 placards in remote areas.
Memorial for a Deceased Migrant in the Southwest Border
Border Patrol has not collected and recorded, or reported to Congress, complete data on migrant deaths, or disclosed associated data limitations. Specifically, Border Patrol's fiscal year 2020 report to Congress did not contain complete data because the agency did not record all available information on migrant deaths from external entities in its system of record, or describe these data limitations in the report. By taking additional steps to ensure that it collects and records available information on migrant deaths, including all known migrant deaths discovered by external entities, and including known migrant deaths and any data limitations in public and Congressional reports, Border Patrol would improve the information it provides to Congress.
Border Patrol collects and reviews information at the field level about its implementation of the Missing Migrant Program. However, it does not have a plan to evaluate the program overall. Border Patrol headquarters uses weekly field reports to monitor the status of the Missing Migrant Program. These reports are positive steps to help the agency monitor field activities. However, Border Patrol could benefit from a more robust evaluation of the impacts of the Missing Migrant Program to reduce the frequency of migrant deaths and strengthen Border Patrol's efforts to respond to migrants in distress. Developing a plan to evaluate the Missing Migrant Program would better position Border Patrol to assess its progress in meeting the program's goals.
Why GAO Did This Study
Border Patrol, within U.S. Customs and Border Protection (CBP), responds to reports of migrants attempting to enter the U.S. between ports of entry who may be missing or in distress. A committee report accompanying the Department of Homeland Security's (DHS) fiscal year 2020 appropriation directed CBP to report data on migrant deaths, describe plans to help reduce the number of migrant deaths, and share its coordination efforts with external entities. The Joint Explanatory Statement accompanying the fiscal year 2021 Consolidated Appropriations Act included a provision for GAO to review CBP's report and its efforts to mitigate migrant deaths.
This report addresses (1) how Border Patrol has implemented the Missing Migrant Program to help reduce the frequency of migrant deaths; (2) the extent to which Border Patrol collects and reports complete and accurate data on migrant deaths; and (3) how Border Patrol evaluates the Missing Migrant Program. GAO analyzed Border Patrol policies and documentation, interviewed officials at Border Patrol headquarters and four field locations, and from five external entities, such as medical examiners.
Recommendations
GAO is making three recommendations to Border Patrol to take steps to ensure it collects and records available information on migrant deaths, including those identified by external entities; include known migrant deaths and any data limitations in public and Congressional reports; and develop a plan to evaluate the Missing Migrant Program. DHS concurred with the recommendations.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status Sort descending |
|---|---|---|
| U.S. Border Patrol | The Chief of Border Patrol should take steps to ensure that the agency collects and records available information on migrant deaths, including those identified by external entities, along the southwest border. (Recommendation 1) |
Closed – Implemented
Border Patrol concurred with our recommendation and has taken several steps to address it, such as coordinating with external entities and meeting with sectors and reviewing their program reports. In 2023, Border Patrol held regional Missing Migrant Program meetings to connect with local external entities, including medical examiners, coroners, nongovernmental organizations, and consulates. According to Border Patrol, these engagements with external entities have helped them enhance the Missing Migrant Program's main objectives of preventing migrant deaths; locating and identifying migrant remains; and returning remains to migrants' families. Border Patrol has also continued to strengthen its internal coordination with sectors and to review sectors' weekly Missing Migrant Program reports. In October 2023, officials in Border Patrol headquarters told us that they continue to maintain communication with sectors regarding data collection and entry through email reminders and refresher trainings. In addition, these officials said that they review weekly reports from the sectors, which include information on search, rescue, and recovery requests as well as requests for assistance in identifying migrant remains. With these steps, Border Patrol has addressed our recommendation that it collect and record available information on migrant deaths, including those identified by external entities.
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| U.S. Border Patrol | The Chief of Border Patrol should develop a plan with time frames to evaluate the Missing Migrant Program. (Recommendation 3) |
Closed – Implemented
Border Patrol concurred with our recommendation and in November 2023, issued a plan for evaluating the Missing Migrant Program. The plan includes goals such as increasing situational awareness, investing in innovative technology, and enhancing stakeholder engagement. Within each goal, Border Patrol has objectives to define and monitor progress toward these goals and key performance indicators to provide action items to Missing Migrant Program personnel. The plan states that the program will be evaluated on a biannual basis. In addition, Border Patrol officials told us that they are utilizing various meetings, such as sector coordination meetings, regional summits, and sector visits to evaluate the program. These officials stated that they plan to evaluate the program goals, reporting procedures and data integrity at these meetings. These actions should help ensure that Border Patrol evaluates the Missing Migrant Program. As such, we consider this recommendation implemented.
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| U.S. Border Patrol | The Chief of Border Patrol should include known migrant deaths, including those reported by external entities, and any data limitations in public agency reports and those to Congress. (Recommendation 2) |
Open – Partially Addressed
Border Patrol concurred with this recommendation and has actions planned or underway to address it. For example, in its August 2023 report to Congress, Border Patrol provided data on migrant deaths broken down by several variables, such as by sector, nationality, gender, age group, and whether the death was discovered by Border Patrol or an external entity. While Border Patrol's report provides useful information on migrant deaths, including data on cases when a death was discovered by an external entity, it does not include a discussion of data limitations. In December 2023, CBP told us that the agency intends to include data limitations in its fiscal year 2024 report to Congress. While these are positive steps, in order to fully address this recommendation, Border Patrol needs to include limitations in public agency reports and those to Congress.
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