3 Meeting a Major Staffing Challenge

Customs and Border Protection

In mid-2006, the Bush administration was determined to make substantial and visible progress in protecting U.S. borders and reducing illegal immigration. A key part of the strategy was to dramatically increase the size of the U.S. Border Patrol, a component of the Customs and Border Protection Bureau (CBP). With the administration’s commitment to the public, the agency was faced with the challenge of increasing the number of border patrol agents from just over 12,000 to more than 18,000, a staffing increase of 50 percent, in just 18 months. The increase of 6,000 agents actually required more than 9,000 hires to cover projected agency attrition and dropouts during the rigorous screening process, as well as during the Border Patrol Academy training required for all new officers. CBP achieved this remarkable goal.

CBP’s Staffing Challenge

Then-Assistant Commissioner for Human Resources Robert Hosenfeld likened CBP’s staffing challenge to an automobile race: “We were constantly using metrics and real-time data to make adjustments, just like they do in NASCAR.” The following were among the challenges Robert and his team faced:

• An HR staff that normally hired fewer than 50 new employees per month was now expected to hire more than 250 per month.

• A booming economy with low unemployment rates made locating and attracting qualified and suitable candidates difficult.

• Candidates had to be screened at several levels to determine if they met all the stringent requirements of law enforcement work, including:

  Basic qualifications review. Did the candidate have experience or potential in the law enforcement area? During this time period, most graduates of law enforcement education programs were being hired by local police departments and were not interested in border patrol positions. CBP recruiters found that applicants with military and related experience were often excellent candidates for the bureau’s law enforcement jobs.

  Security and background checks. Candidates had to have clean backgrounds with no drug or major arrest record, and a reasonable credit history. This eliminated many candidates early in the hiring process.

  Logic exams. Border patrol agents have to apply good judgment in ambiguous situations within split seconds; there is not always a standard textbook answer. This was a challenge for some groups of candidates. For example, it was discovered that many candidates from a major city with a strong manufacturing tradition found it difficult to make decisions that did not fit within a rigid set of rules; consequently, they were not viable candidates. Detailed analysis of this type of information helped CBP focus its recruiting resources in areas with a higher likelihood of success.

  Foreign language (Spanish) aptitude exams. Because most of the work is along the U.S.–Mexico border, basic proficiency in Spanish was a common requirement. CBP provided Spanish language training, but candidates had to be bilingual in English and Spanish or at least have a basic aptitude and willingness to learn the second language.

  Physical and psychological exams. The areas covered by border patrol agents are typically remote, and living conditions are often harsh. Significant physical demands are involved in pursuing and apprehending suspects. The exams revealed whether candidates were up to those conditions. Psychological exams were similar to those required for essentially all law-enforcement positions for which a weapon is required.

  Other requirements such as driving vehicles and firearms skills. Candidates had to be able to drive and use firearms. While driving would seem to be a common ability, some candidates from major cities did not even have driver’s licenses. Other candidates chose not to pursue the position once they realized that the use of firearms was a mandatory part of the job.

Successful completion of a 12-week law enforcement course at the Border Patrol Academy in the middle of a New Mexico desert was one of the final requirements. This too was a source of some attrition as the staffing process reached its conclusion.

Candidates dropped out at each step of the process, mostly when the primary job criteria were applied through tests. Significant numbers fell out at the later stages of the process, even as they reported for work on their first day.

To get one hire in place at the border, CBP needed to consider approximately 30 initial applicants (Figure 3-1). This result dramatically expanded the scope of the outreach required to meet CBP’s hiring targets within the limited timeframe—and this was only the first of many challenges the team had to address.

FIGURE 3-1 Percentage of Candidates Hired

The final staffing hurdle was the job itself, which frequently meant high-stress work assignments in harsh and austere conditions at remote sites. The attrition rate of agents once onboard ranged from 11 percent to almost 17 percent per year during the hiring surge period. Factoring in that ongoing onboard attrition, the initial staffing target of 6,000 additional agents meant that CPB had to hire well over 9,000 agents (Figure 3-2).

The numbers in Figure 3-2 reflect only border patrol agent hires and onboard strength. During this time period, CBP increased hiring for virtually all CBP functions to support the larger agent workforce, adding to the agency’s significant recruitment challenge.

How did CBP even begin to plan and execute such an ambitious undertaking? Metrics were a central tool that provided the framework and a way to assess progress throughout the process—from determining the most promising hiring sources, to factoring in attrition at various stages of recruitment, to adjusting strategies and efforts based on actual results. In fact, effective metrics provided the compelling case the team needed to get critical resources throughout the process. But first, they had to get the candidates in the door.

FIGURE 3-2 Hiring, Attrition, and Onboard Rates (FY07–CY08)

Beyond “Post and Pray”

Robert Hosenfeld and his team deployed a wide variety of methods to attract applicants, including the Number 28 car in NASCAR’s nationwide series. Highlights include the following:

• The team used metrics and data analysis to identify candidate-rich locations for both advertising and local job fairs. They reviewed statistics such as foreclosure rates and unemployment rates by congressional district to help identify potential hiring pools.

• CBP used the internet, radio, television, movie theaters, and transit ads to communicate its brand and announce hiring opportunities and events. At major public events, CBP deployed simple technology monitors to display current activities at the southwest border. Interested applicants could submit resumes via the internet.

• The team identified candidates who had recently completed their military obligations and made contact with them at military transition centers. Veterans typically have training and experience that match up well to border agent requirements; they represented 23 percent of newly hired agents during the hiring surge. CPB also focused on college campuses to advertise to students and recruit graduates looking for work.

• CBP turned to its own border patrol agents to represent the agency and recruit at hiring events. The agents were able to provide a realistic picture of the job while sharing their passion for protecting the country. With the agents participating in simultaneous hiring events across various parts of the country, CPB typically exceeded the weekly target of 3,500 applicants, averaging over 4,500 applicants per week throughout the second half of FY2008.

• CBP created a minority recruitment strike team composed entirely of African American border patrol agents. The strike team’s focus was on demonstrating that minorities are successfully involved with border patrol efforts and increasing the percentage of minorities in the CBP through direct contact and discussions with minority candidates.

• Rodeo events provided great opportunities for recruitment. Professional Bull Riders, Inc., proved to be a good partner and a useful avenue for recruitment. One of the bull riders also happened to be a CBP agent who wore his CBP chaps with pride.

• CBP recruited students and interns through a variety of programs. The CBP explorer program provided high school students with opportunities to participate in federal enforcement-related activities. The student career experience program and student temporary employment program offered opportunities for students to learn about careers at CBP and gain valuable work experience. The federal career intern program hired talent in a variety of entry-level positions in a two-year internship that could lead to permanent placement within the agency. The presidential management fellows program provided opportunities for graduate students, who often had prior experience in public administration, technology, science, health, human resources, business, and financial management. These programs are now part of the federal pathways program.

• The CBP website, www.CBP.gov, provided the full picture of CBP’s mission and accomplishments. The careers section provided comprehensive information to potential applicants, including an overview of careers at CBP, the application process, study guides and preparation manuals, resume tips, and links to the central applicant self-service (CASS) system.

The NASCAR Initiative

The NASCAR nationwide series sponsorship was a multipurpose marketing and recruiting tool, enabling CBP to communicate about the Border Patrol to a nationwide audience over an extended period of time. On the track, the race car served as a rolling billboard; at trackside, CBP set up recruitment booths at the track’s “midway,” where fans walk around and seek entertainment before the race. In addition, several promotional events involving the car and driver took place outside the track.

The demographics of NASCAR fans indicated potential candidates, and sponsorship raised public awareness about the border patrol in several untapped markets. Each NASCAR race weekend became a recruiting opportunity either through border patrol agents conducting on-site recruiting or through word-of-mouth from others who learned about CBP through NASCAR racing.

A good example of the impact of NASCAR on recruiting occurred in Laredo, Texas, where the Jay Robinson racing team made a “pit stop” with NASCAR Monte Carlo #28 on their way to a race in Mexico City. The car was on display during an all-day recruiting event at a local shopping mall. The event drew large crowds, and local and national border patrol recruiters were on hand to answer questions and take applications. Lines formed as prospective applicants keyed in their applications on several laptops. By the time the event ended, recruiters had accepted 190 applications.

Internal Factors Required for Success

How did Robert Hosenfeld and his team overcome the obstacles to success that inevitably arise from the often-sticky internal mechanisms of any government agency? Several internal factors were instrumental in the program’s success:

• Leadership commitment and support at the top of Border Patrol, CBP, and DHS. The President’s specific and public commitment to have an agent Border Patrol force of over 18,000 by the end of calendar year 2008 established a clear priority for leadership at all levels.

• Focused objective shared by all. This was not just an HR recruiting task, but an objective for the whole agency. Top management supported the efforts and expressed a keen interest in getting results. Their priorities cascaded down through the organization. Border Patrol agents and supervisors were actively involved in the recruiting process, which freed the HR task group to focus on strategies and scheduling.

• Sufficient budgetary resources. Because the onboard target and time factors were set and could not be adjusted, the only remaining major variable was the resources that could be applied. The team effectively made the case at the outset that additional budget and resources would be required to meet the ambitious hiring targets within the limited timeframe.

• Innovative ways to assess candidates. CBP applied compressed processing techniques in the application and screening activities in several locations, including El Paso, San Diego, and Buffalo. They also used videos to evaluate the skills of potential officers: Applicants would participate in true-to-life scenarios taking place on a television screen while a video camera captured their reactions. Those who performed well entered the formal interview and selection process.

• Expanded infrastructure to support the influx of hires. The influx of new-agent recruits required a surge in training, equipment, and facilities. CBP expanded its staff and resources accordingly in support of functions such as human resources, finance, and facilities.

• Ability to manage complex logistical arrangements. Job fairs and hiring events took place simultaneously at multiple locations across the country.

• Team and agency flexibility. CBP continued to get better and faster at recruiting throughout the process. They learned what to communicate and how to ask the critical questions up front (e.g., any arrest record?) to identify show-stoppers before the process went very far. The team reviewed lessons learned every week, made quick decisions, and took prompt actions in response to continually changing situations. Training was tailored when possible to meet specific recruiting needs and special applications (e.g., Rosetta Stone Spanish language learning tools) proved to be effective in building required language proficiency. The goal was not just to meet hiring numbers, but to provide a capable and qualified workforce.

Metrics, More Metrics, and Micro-Metrics

“As we began to plan and execute this effort, it became clear to me that we would not be able to meet the goal without real-time, detailed data on every stage of every process and sub-process involved. So, for nearly two years, I had a statistician attached at the hip.” That’s Robert Hosenfeld’s modest summary of a tremendously successful deployment of data-driven HR leadership and process management. Here’s how it worked:

• CBP used extensive databases to assess current and prior agency statistics on hires, attritions, and workforce configuration. Multiple employment-related databases were integrated to capture various statistics from numerous sources and incorporate them into meaningful presentations to keep management informed and the process on track. Data ranged from macro trends and analysis to the tracked status of every single applicant, including where applications were originating, the application flow, and dropouts at each phase. The intensive analysis of all aspects of the process in near real-time led to timely and effective adjustments in the approach and the application of resources.

• The team stepped back and looked at the big picture of the entire process, establishing inputs, assumptions, and projections. Analysts began with the required end result and worked backward through every stage to factor in the time required and dropouts at each step. From these extrapolations, which were continually adjusted with real-time data, they determined the volume of hires required at the front end to reach the ultimate onboard target.

• Because the resulting onboard strength target was set, the number of hires and time were the key variables. The quality of hires was also an important part of the process; cost became a secondary factor.

• The team applied various forms of analysis to find recruits. For example, they looked at statistics by congressional district (e.g., foreclosure rates, unemployment rates) to determine whether there was likely a viable pool of potential candidates.

• Continuous monitoring of “micro-metrics” enabled the team to assess results and progress toward the goal. CPB leadership realized that a high-level, executive dashboard view of data would not be adequate to identify and manage problems deep in the staffing process. For example, if some recruiting locations or methods were not productive (e.g., low numbers of applicants, poor candidates), strategies were adjusted immediately and resources were applied in more productive ways. Deployment of recruiting resources was adjusted in response to data coming in; the pace was fast, and so were the adjustments.

The team continuously monitored various micro-metrics, such as application rates and dropouts each month (Table 3-1).

However, the team reported only the major metric of “onboard agents against the plan” to top management—to keep their “eye on the ball” and to focus on final results (Figure 3-3).

Table 3-1. Monthly Micro-Metrics

FIGURE 3-3 Border Patrol Agent Hiring

Thanks to the innovative approaches of the team and involvement and participation across the CBP organization, the agency’s formidable staffing need was exceeded, with 18,319 agents onboard by the end of calendar year 2008. This hiring surge effort not only achieved the goal, but also established a framework and process for maintaining onboard strength into the future.

Lessons Learned

CBP’s staffing challenge was not accomplished without some trial and error during the 18-month duration of the initiative. The key was to analyze the ongoing data and correct course along the way. The team used data and analysis at the outset to scope out the requirements and project the number of hires that would be required. When faced with an anomaly, they immediately took action to respond. For example, when local labor markets did not have qualified candidates that fit job requirements, the team quickly moved on to other areas where data indicated a higher likelihood of success.

Robert Hosenfeld notes that four key aspects were critical to success:

• Buy-in of the objective across the organization. There was support and participation from top management to agents to support staff.

• Focus on one objective. In this case, the objective was to achieve the onboard agent target by the end of calendar year 2008.

• Participation of the entire agency. For example, 300 agents and three staff members were involved in a major hiring effort in Ohio.

• Access to near real-time data and metrics. The analysis of these data and metrics was critical in each step of the decision process to determine adjustments in resources and effort.

The CBP team had to think outside the box from traditional government hiring processes while complying with federal hiring regulations. Extraordinary actions were required to meet this daunting hiring challenge. The Border Patrol committed significant resources and manpower to achieve the goal; the HR office managed the recruitment effort through others and collaborated with colleagues (e.g., training, internal affairs, senior leadership) in an orchestrated effort to achieve the president’s and the country’s priorities.

Key actions included the following:

• Using metrics effectively throughout the process, from planning to adjusting course to reporting progress

• Incorporating agents into the hiring process to help meet the surge requirements and add value

• Expanding the processing and support structure to bring new hires on board and prepare them for the job

• Reaching viable candidates through creative thinking, such as NASCAR sponsorship and rodeo events

• Remaining focused and flexible to respond to ever-changing recruitment environments and situations.