Your own chart betrays you. Why were there so few arrests in 2002 and 2003. That is right after 9/11 when we were supposed to be securing the country.
Look, would you be impressed if you had an employee that does absolutely no work but then when he wants a raise he suddenly generates a spurt of work?
You apparently did not read the whole thing, ICE wasn’t even formed until March of 2003. In reference to the worker, if that “spurt of work” as you call it, lasted over a year and was steadily increasing, yes, I would give them a raise for their effort.