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The original version was signed by
The Honourable Peter Van Loan, P.C., M.P.
Minister of Public Safety
Section I – Departmental Overview
Section II – Analysis of Program Activities by Strategic Outcome
Section III – Analysis of Program Activities by Strategic Outcome
As Minister of Public Safety, I am pleased to present to Parliament the Canada Border Services Agency's (CBSA) 2008–09 Departmental Performance Report.
The CBSA marked its fifth anniversary as Canada's integrated border management agency in 2008. It continues to effectively deliver border programs while advancing operational, technological and legislative initiatives to help secure the border and facilitate legitimate trade and travel. The Agency also strengthened its enforcement posture by improving its intelligence gathering and analysis capacity, in part by broadening the overseas risk assessment of travellers and cargo bound for Canada.
The CBSA retained its leading-edge position in technological innovation, which encompasses electronic advance information systems in the commercial import stream, biometrics to identify trusted travellers in our NEXUS program and detection technologies for examining cargo containers and conveyances. These technologies include radiation detection systems that were recently implemented at the five major marine container ports.
In Parliament, Bill S-2, which has now received royal assent, brought about amendments to the Customs Act to enhance the CBSA's ability to interdict contraband and other illegal items in customs controlled areas, such as on airport tarmacs and seaport docks. Bill S-2 will also enable the CBSA to implement eManifest, the third phase of our Advance Commercial Information initiative. In addition, the Agency continued progress towards the Government of Canada's commitment to arm officers and eliminate work-alone sites, and to provide greater protection to border services officers and those engaged in specialized enforcement activities within Canada.
The CBSA is still growing and evolving, and it is making the changes required to remain nimble and focused in a dynamic global environment. I am proud of the professional, service-oriented manner with which some 14,000 individuals balance border security and accessibility. I remain confident that they will use this same approach to meet future challenges.
The original version was signed by the Honourable Peter Van Loan, P.C., M.P. Minister of Public Safety.
The Canada Border Services Agency (CBSA) provides integrated border services that support national security priorities and facilitate the free flow of people and goods, including food, plants and animals, across the border. Specific responsibilities include the following:
Created in 2003, the CBSA is an integral part of the Public Safety portfolio that is responsible for integrated national security, emergency management, law enforcement, corrections, crime prevention and border management operations.
Examples of Acts Administered by the CBSA
CBSA Service Locations
The CBSA provides services at approximately 1,200 service points across Canada and at some international locations, including the following:
Management Priorities | Type and Status | Link to Strategic Outcome: Border management that contributes to the safety and security of Canada and facilitates the flow of persons and goods. |
---|---|---|
A modern management regime The CBSA will continue to practice results-based management, deliver value for money and monitor progress through regular assessments. |
Type Mostly met
|
The Agency strengthened its risk management and human resources planning functions, which will provide additional and more accurate information to support resource allocation decisions that will best achieve the Agency's strategic outcome. Improving performance measurement and implementing integrated risk management will be continuing priorities in 2009–10. |
Financial Resources 2008–09 |
||
---|---|---|
Planned Spending | Total Authorities | Actual Spending |
1,508,942 | 1,856,814 | 1,647,636 |
Human Resources 2008–09 |
||
---|---|---|
Planned |
Actual |
Difference |
13,726 |
14,635 |
(909) |
There was a $209 million difference between total authorities and actual spending. The $147 million lapse in operating expenditures was related mainly to project delays associated with eManifest, the arming of CBSA officers, the Container Security Initiative and the procurement of specialty equipment, such as radiation detection equipment. The $62 million lapse in capital expenditures was related mainly to delays in infrastructure projects at the CBSA Learning Centre in Rigaud, Quebec, and at smaller ports of entry requiring facility upgrades to end work-alone situations, and to delays in the procurement of specialty equipment.
Performance Indicator | 2008–09 Performance | Performance Trend |
---|---|---|
Number of people processed |
The total number of people processed in 2008–09 declined by 5.67 percent as compared to 2007–08 (96,491,015 people processed). The most significant decline was observed in the rail mode in which the number of people processed declined by 9.48 percent as compared to 2007–08 (282,368 people processed), followed by the highway mode in which the number of people processed declined by 7.97 percent as compared to 2007–08 (69,958,953 people processed). The number of people processed in the air mode was relatively stable with a marginal increase of 0.31 percent observed as compared to 2007–08 (23,357,348 people processed), while a slight increase was observed in the marine mode (2.07 percent) as compared to 2007–08 (2,892,349 people processed). |
|
Air |
23,429,399 | |
Highway |
64,381,388 | |
Marine | 2,952,421 | |
Rail | 255,612 | |
Total | 91,018,820 | |
Number of shipments* processed |
The total number of shipments processed in 2008–09 declined by 3.82 percent as compared to 2007–08 (13,069,564 shipments processed). The most significant decline was observed in the rail mode in which the number of shipments processed declined by 7.65 percent as compared to 2007–08 (393,679 shipments processed), followed by the highway mode in which the number of shipments processed declined by 4.25 percent as compared to 2007–08 (9,116,681 shipments processed). Declines in the number of shipments processed were also observed in the marine and air modes. In the marine mode, the number of shipments processed declined by 2.89 percent as compared to 2007–08 (477,047 shipments processed), while in the air mode, the number of shipments processed declined by 2.17 percent as compared to 2007–08 (3,082,157 shipments processed).
|
|
Air |
3,015,197 | |
Highway |
8,728,789 | |
Marine | 463,242 | |
Rail | 363,566 | |
Total | 12,570,794 | |
Number of enforcement actions** – people |
86,557 |
The number of enforcement actions taken against people decreased by 7.37 percent as compared to 2007–08 (93,456 actions taken). |
Number of enforcement actions** – commercial goods |
30,117 |
The number of enforcement actions taken in relation to commercial goods increased by 6.44 percent as compared to 2007–08 (28,295 actions taken). |
* shipment: A singular computation of imported or exported goods identified by an invoice or accounting document, received from either the vendor or consignee and maintained in the records of a carrier as per the Customs Act.
** enforcement action: The act of compelling adherence to the law via the levying of sanctions (criminal and administrative), seizure of property and detaining of culpable persons.
The CBSA operates within the context of constantly changing economic and political environments. In response to a heightened security environment, the Agency has been enhancing its automated risk assessment systems and intelligence and targeting activities to address the most prominent border threats facing Canada, including terrorism, organized crime, firearms smuggling, illicit drugs, contraband goods, and irregular migration, as well as to ensure health and product safety. Border management continues to evolve at an increasing pace, with more advance information being required from people and on goods seeking entry into Canada and more efforts and resources being focused on mitigating potential risks as far away as possible from the physical border.
In 2008–09, the CBSA processed over 91 million travellers and 12 million shipments. This is a decrease in volume compared to the previous year, and is largely attributable to economic conditions: a combination of high oil prices during summer 2008 followed by a subsequent decline in the value of the Canadian dollar and the economic downturn beginning in late summer 2008. Volumes are expected to remain static over the course of the next year with the exception of a short-term increase in demand for border services in 2010 for the Olympic and Paralympic Winter Games. In preparation for the Games, the CBSA continued operational planning to secure the border and facilitate the entry of the many athletes and visitors expected to attend.
Under the Security program activity, the CBSA undertook a number of initiatives to strengthen how it manages risk and enforcement activities in Canada.
In 2008–09, the Agency improved its intelligence-gathering and analysis capacity by implementing a new organizational model for its Intelligence Directorate and establishing new performance measures. This realignment helped to strengthen the linkages between headquarters, regional and international intelligence personnel and provided clear points of contact for the CBSA's domestic and international counterparts. This in turn has helped to facilitate the exchange of pertinent intelligence information to better target high-risk people and goods seeking entry into Canada. The Agency also improved its ability to gather and analyze information on people seeking to enter Canada before they depart from their home country. In addition, the CBSA expanded its international presence by increasing the number of its migration integrity officers from 44 to 55. Migration integrity officers, stationed in 45 locations overseas, gather and analyze intelligence on visa and immigration application fraud, organized crime, irregular migration, public security and terrorism, war crimes and crimes against humanity.
To improve its targeting activities, the CBSA developed proposals for a new governance framework and centralized organizational structure. This will help the Agency to better manage targeting activities and improve national consistency. In addition, the CBSA developed and piloted a new training program for border services officers who are involved in targeting and the risk assessment of advance information on people and goods entering Canada. These measures to improve targeting activities respond to concerns raised in the 2007 October Report of the Auditor General of Canada, Chapter 5, “Keeping the Border Open and Secure.”
To strengthen its enforcement activities, the CBSA reinforced its commitment to focus on high-priority removals, especially individuals who pose a threat to the security of Canada, such as those involved in terrorist activities, organized crime and crimes against humanity. This included a review of the CBSA's warrants practices and policies to better track the Agency's removal inventory and focus CBSA resources on locating high-priority individuals wanted for removal. This activity responds to the concerns raised in the 2008 May Report of the Auditor General of Canada, Chapter 7, “Detention and Removal of Individuals.”
Under the Access program activity, the CBSA undertook initiatives to improve the free flow of legitimate people and goods across the border.
In 2008–09, the Agency conducted a Core Services Review of the air mode in consultation with key airport stakeholders. The Review led to an air services policy framework that established a consistent, open and equitable approach to requests for new or enhanced publicly funded border services. New services identified in the framework were initiated at six airports starting on April 1, 2009, based on funding from Budget 2009.
In support of the Agency's post-release verification activities for commercial goods, the CBSA implemented a compliance strategic framework that sets out the criteria to assess risk and to select verification priorities for trade programs. This risk-based approach allows the Agency to ensure compliance with trade legislation and regulations and helps to provide a level playing field for Canadian businesses by ensuring the accuracy of trade data and the proper assessment, collection, relief and deferral of duties and taxes.
The CBSA was designated as the lead Government of Canada agency to work on the smooth implementation of the Western Hemisphere Travel Initiative, a U.S. law that requires all travellers, including Canadian and American citizens, to present a valid passport or other secure document when entering the United States from within the western hemisphere. The CBSA actively worked with the United States and other federal departments and agencies and provincial governments to expand the number of approved secure documents to ensure that a critical mass of compliant documents was in circulation by June 1, 2009, when the Initiative was implemented for land and sea travel. This work resulted in the implementation of the Initiative with minimal border disruption.
Under the Science- and Technology-based Innovation program activity, the Agency implemented innovative systems and tools to improve border security. This included the development and implementation of technologies and systems to assess risk in the commercial environment. The CBSA continued its multi-year development of eManifest, a major Crown project, to improve how the Agency processes and screens commercial goods imported into Canada through the use of advance information and automated risk assessments. Further progress was made on the Harmonized Risk Scoring — Advance Trade Data initiative to improve the effectiveness of the CBSA's current automated risk assessment and targeting processes in the marine mode to be consistent with similar programs used by the United States and other key international partners.
The CBSA employs innovative solutions to assess risks posed by people travelling to Canada. In 2008–09, the CBSA continued to phase in the Integrated Primary Inspection Line system at land border ports of entry. The system enables CBSA officers to quickly and efficiently run automated risk assessments of people against enforcement databases. The CBSA also consulted with the airline industry on the Advance Passenger Information/Passenger Name Record program. Under this program, commercial air carriers transmit air passenger data to the Agency so that CBSA officers can perform a pre-arrival risk assessment of all passengers.
The CBSA operates a world-class laboratory that offers a diverse range of scientific, analytical and research advisory services, particularly in the fields of biometrics and contraband detection. In 2008–09, the CBSA designed enhancements to the portal radiation detection systems that form part of the Agency's radiation detection program.
Under the Internal Services program activity, the CBSA continued to build on its modern management regime.
In 2008–09, an executive dashboard with key performance indicators was piloted in support of the Agency's efforts to strengthen its performance management regime. In addition, the CBSA implemented a human resources strategic plan that addresses the challenges of ensuring that the Agency's workforce is adaptable, responsive and representative of the Canadian population. In 2008–09, the Agency recruited over 1,000 border services officers and trained 923 border services officers and 444 veteran employees in the CBSA's three program areas (customs; immigration; and food, plant and animal inspection).
Because the CBSA is an intelligence-driven, risk-based organization, integrated risk management is an integral component of how it selects its priorities and allocates its resources to effectively manage its responsibilities. In 2008–09, the CBSA established an Integrated Risk Management Framework that, when fully implemented, will help the Agency to anticipate and plan for potential operational and corporate threats, which will result in a more responsive organization. The Framework is expected to be fully implemented in 2011.
In addition to the Framework, the CBSA uses a number of tools to help identify the Agency's key threats and risks. In 2008–09, the Agency's annual Border Threat and Risk Assessment fully integrated, for the first time, the threats and risks related to the Agency's immigration and food, plant and animal inspections responsibilities. In the assessment, the CBSA evaluated and rated 28 risks related to people and goods according to the mode of transport. The Agency also prepared a port risk assessment that provided a national ranking of the CBSA's ports of entry according to their relative risk and outlined the key threats and risks that are present at the highest-risk ports of entry. With these tools in hand, the Agency is able to better set inspection priorities and allocate resources according to the level of threat and type of risk.
In 2008–09, the Agency began work to better align its compliance management plan to the Agency's identified threats and risks. Now named the Risk-based Operational Plan, the CBSA intends to use this Plan to operationalize the threat and risk priorities identified in the Agency's ongoing risk assessments and to incorporate relevant information from other important sources such as the Agency's environmental scans and risk assessments from the Canadian Food Inspection Agency. While still in the development stage, the Plan, when completed, will be the cornerstone of the Agency's approach to risk analysis (i.e. how the Agency translates its various risk assessments into operational priorities by region and by mode).
The CBSA has identified the need for a more cohesive strategic direction that will bring together the many initiatives currently being pursued by the Agency. Preliminary policy work emphasizes an approach to border management that will seek to assess the admissibility of people and goods closer to the country of origin and to identify threats through enhanced information sharing in order to interdict risks as early as possible. Furthermore, the inauguration of a new U.S. administration in early 2009 provided the CBSA with an opportunity to refocus and advance its relationships with key U.S. border partners to address common risks, threats and opportunities.
A preliminary examination of the Agency's organization, culture and business model highlighted the need to realign the CBSA's organizational structure. When complete, this will be the first change to the CBSA's organizational structure since its inception in 2003. This realignment is intended to strengthen the lines of accountability and to help the Agency deliver its programs and services more effectively.
Finally, the Agency is renewing its efforts to implement performance measurement. While this was an element of the modern management priority for 2008–09, and considerable efforts were made to advance this initiative, more work is required. As noted in the Agency's 2009–10 Report on Plans and Priorities, the implementation of a performance measurement regime continues to be a priority in order to support better decision making and to monitor and continually improve the performance of the Agency's programs and services.
CBSA Activity | Benefits to Canadians |
---|---|
The CBSA works cooperatively with its North American counterparts to implement a border strategy that relies on technology, information sharing and biometrics to create a smart and secure border. |
The CBSA ensures that the border remains open to low-risk people and goods and closed to crime and terrorism. To ensure the safety and security of Canada, the CBSA leverages technology to identify, assess and interdict potential risks and threats to Canada as far away as possible from the physical border. |
The CBSA applies a responsible enforcement program and an effective sanctions regime to people and goods that contravene Canadian border laws. |
The CBSA promotes compliance with border legislation by taking enforcement actions and imposing penalties and sanctions as warranted. |
The CBSA collects import duties and taxes in excess of $22 billion a year. |
The CBSA provides a critical component of revenues for the Government of Canada. |
The CBSA implements sound comptrollership measures and conducts internal audits and program evaluations. |
The CBSA demonstrates fiscal prudence and management accountability. |
Program Activity |
Actual Spending 2007–08 |
Main Estimates 2008–09 |
Planned Spending 2008–09 |
Total Authorities 2008–09* |
Actual Spending 2008–09* |
Alignment to Government of Canada Outcomes |
---|---|---|---|---|---|---|
Security |
383,530 |
473,183 |
483,519 |
597,400 |
477,241 |
A strong and mutually beneficial North American partnership By providing effective and efficient border management that ensures the safety and security of Canadians while facilitating the free flow of people and goods, the CBSA contributes to the social well-being, economic success and safety and security of the North American continent. |
Access |
687,378 |
663,948 |
666,575 |
771,482 |
860,164 |
|
Science- and Technology-based Innovation |
377,799 |
358,011 |
358,848 |
487,932 |
310,231 |
|
Total |
1,448,707 |
1,495,142 |
1,508,942 |
1,856,814 |
1,647,636 |
*The breakdown of total authorities by program activity is based on the CBSA's 2007–08 Program Activity Architecture whereas the breakdown of actual spending is based on the Agency's revised 2008–09 Program Activity Architecture. In this transition, a large portion of expenditures, but not authorities, was transferred from the Science- and Technology-based Innovation program activity to Internal Services. The CBSA uses a formula to allocate Internal Services costs to its other three program activities, resulting in the largest share of expenditures being reallocated to the Access program activity. For 2009–10, the CBSA has adjusted the authorities to better align budgets with expected outcomes.
Figure 1.1 illustrates the trends of Main Estimates and actual expenditures for the past three fiscal years. Actual expenditures have steadily increased due mainly to the ratification of various collective agreements; increased staffing associated with various initiatives including eManifest, the arming of CBSA officers and efforts to address work-alone situations; replacing the Primary Automated Lookout System; and construction of new port-of-entry facilities in St. Stephen, New Brunswick.
Vote No. or Statutory Item (S) |
Truncated Vote or Statutory Wording |
Actual Spending 2006–07 | Actual Spending 2007–08 | Main Estimates 2008–09 | Actual Spending 2008–09 |
---|---|---|---|---|---|
10 | Operating expenditures | 1,113,152 | 1,263,345 | 1,300,600 | 1,433,100 |
15 | Capital expenditures | 30,144 | 34,903 | 50,910 | 53,000 |
(S) | Contributions to employee benefit plans | 136,845 | 149,791 | 143,632 | 161,233 |
(S) | Spending of proceeds from the disposal of surplus Crown assets | 241 | 141 | 246 | |
(S) | Refunds of amounts credited to revenues in previous years | 718 | 519 | 42 | |
(S) | Collection agency fees | 8 | 4 | ||
(S) | Court awards | 11 | |||
Total | 1,281,100 | 1,448,707 | 1,495,142 | 1,647,636 |
The $199 million increase in actual spending between 2007–08 and 2008–09 is mainly the result of the ratification of various collective agreements; increased staffing associated with various initiatives, including eManifest, the arming of CBSA officers and efforts to address work-alone situations; replacing the Primary Automated Lookout System; and construction of new port-of-entry facilities in St. Stephen, New Brunswick.
In providing integrated border services, the CBSA prevents the movement of unlawful people and goods across the border while facilitating the flow of legitimate people and goods that are in compliance with border legislation and regulations.
The Security program activity encompasses the CBSA functions that ensure the safety and security of Canadians. It includes most of the CBSA's international operations, some border operations and headquarters and support services. Through the Security program activity, the CBSA continually examines its operating environment and processes to identify new ways of improving border security without impeding the cross-border movement of legitimate people and goods.
2008‑09 Financial Resources ($ thousands) | 2008‑09 Human Resources (full-time equivalents) | ||||
---|---|---|---|---|---|
Planned Spending | Total Authorities | Actual Spending | Planned* | Actual | Difference |
483,519 | 597,400 | 477,241 | 4,656 | 3,774 | 882 |
* The planned full-time equivalents for the Security program activity have been adjusted to better reflect the Agency's distribution of planned full-time equivalents.
Performance Indicator | Performance | Performance Trend and Summary |
---|---|---|
Percentage of examinations of people that resulted in an enforcement action. | 2.25 percent | Examinations of people that resulted in an enforcement action increased slightly in 2008‑09 as compared to 2007‑08 (2.09 percent). |
Percentage of examinations of goods (commercial) that resulted in an enforcement action. | 12.21 percent | Examination of goods (commercial) that resulted in an enforcement action increased in 2008‑09 as compared to 2007‑08 (11.05 percent). |
Value of seizures* made as a result of an intelligence indicator or lookout.** | 32.8 percent | The value of seizures made as a result of an intelligence indicator or lookout increased in 2008‑09 as compared to 2007‑08 (31.5 percent). In general, the value of seizures linked to intelligence or lookouts tends to be more significant than the percentage of seizures. |
Percentage of seizures made as a result of an intelligence indicator or lookout. | 8.4 percent | The percentage of seizures made as a result of an intelligence indicator or lookout declined in 2008‑09 as compared to 2007‑08 (10.9 percent). However, as noted above, the value of these seizures increased as compared to last year. |
* The value of seizures is expressed as a percentage of the total value of all seizures recorded in the CBSA's enforcement systems, which includes seizures as a result of a random inspection or officer selection.
** Significant (large) seizures can skew and/or inflate the results of this indicator from year to year.
The CBSA ensures the safety and security of Canadians through risk-based, intelligence-driven decision making to identify high-risk people and contraband goods bound for Canada. Screening people and goods at the earliest opportunity overseas, in transit and upon arrival at the Canadian border improves the Agency's ability to target and interdict inadmissible people and goods before they enter Canada.
Significant improvements were made to the CBSA's Intelligence program throughout 2008‑09. The Agency strengthened and realigned its intelligence activities, implemented a new organizational model for the Agency's Intelligence Directorate and established new performance measures. This realignment helped to strengthen the linkages between headquarters, regional and international intelligence personnel and to provide clear points of contact for the Agency's domestic and international counterparts to facilitate information sharing. These steps will result in a modernized and effective intelligence platform.
As part of the Agency's efforts to “push the border out,” the CBSA deploys officers abroad in key locations to gather intelligence related to the people. Migration integrity officers are the first opportunity for the Agency to identify high-risk people travelling to Canada and, in many cases, to stop them before they board an aircraft. Migration integrity officers gather, analyze and report on intelligence related to visa and immigration application fraud, irregular migration and other security concerns. Over 1,900 fraudulent documents were detected in 2008‑09 via anti-fraud verifications.
Figure 2.1: Interception Rate Abroad for Improperly Documented Passengers, 2005‑06 to 2008‑09
The CBSA's interception rate abroad (i.e. the percentage of improperly documented people seeking to fly to Canada that were intercepted abroad) has remained relatively constant and high.
In the commercial stream, Canada continues to partner with the United States on the Container Security Initiative. This Initiative aims to protect containerized shipping, the primary system of global trade, from being exploited or disrupted by terrorists. The CBSA deploys officers overseas as part of a multinational program designed to safeguard global maritime trade while allowing cargo containers to move faster and more efficiently through the supply chain at seaports worldwide.
The CBSA's efforts to ensure the safety and security of Canadians include the use of targeting and lookouts as an integral part of the Agency's intelligence-based enforcement strategy. Targeting uses sophisticated intelligence-gathering techniques and technology, including analysis and information sharing with Canadian and international partners.
The CBSA contributes to the safety and security of Canadians by investigating, arresting, detaining and removing people who enter Canada illegally, who have no legal right to remain in Canada or who pose a threat to Canadians. In order to protect the integrity of Canada's immigration program, the CBSA is also responsible for removing refugee claimants whose claims have been denied by the Immigration and Refugee Board of Canada.
Improving warrant policies and practices:
Improving policies and practices on detentions and removals:
Figure 2.2: Inadmissible Individuals Removed from Canada, 2006‑07 to 2008‑09
Detecting fraudulent documents:
Enhancing officer powers and information sharing:
The Arming Initiative strengthens the security of the border and enhances the safety of CBSA officers when they are confronted by persons involved in organized crime, firearms traffickers or other dangerous situations. In 2008‑09, the CBSA continued to ensure the effective implementation of the Initiative with the objective of training 4,800 officers to carry a duty firearm over a 10-year period.
Because of the demands of the implementation schedule, the recruitment and retention of qualified firearm trainers continues to be a challenge for the CBSA. To ensure that the pace of training is maintained, the Agency is considering various options, including the recruitment of regional trainers and basic firearms instructors. There has also been a delay in expanding the CBSA's national training facility in Rigaud, Quebec, to accommodate the Agency's arming-related training requirements. Originally scheduled to be ready in 2009‑10, the expansion is now on track for completion in 2011‑12.
The Doubling-up Initiative ensures that officers do not work alone and reaffirms the Agency's commitment to officer safety. In 2008‑09, the CBSA hired and deployed an additional 101 border services officers in support of this initiative. This brought the total number deployed to date to 200 new officers at 69 locations across Canada.
Despite the CBSA's accomplishments in implementing the Doubling-up Initiative, the Agency continues to face important challenges, including the need for port replacements or upgrades to increase the space required for additional officers; the lack of available housing for new officers in isolated locations; and the recruitment and retention of officers for remote ports of entry. In response, a schedule to address infrastructure issues is being finalized. In addition, Budget 2009 provided funding for the construction of housing in the remote ports of Beaver Creek and Little Gold in the Yukon Territory and in Pleasant Camp, British Columbia. A specific recruitment campaign was also launched to recruit officers for remote ports of entry.
In 2008‑09, the CBSA worked to expand and enhance the ability of its officers to enforce border legislation by amending the Customs Act to include customs controlled areas at ports of entry. These designated areas are close to or associated with border clearance processes, such as airport tarmacs and seaport docks, where domestic travellers or workers may come into contact with international travellers and/or goods that have not yet been cleared by the Agency.
Bill S-2, An Act to amend the Customs Act, received royal assent in June 2009 and now gives the Agency expanded authorities to introduce customs controlled areas. The amendments also provide the CBSA with the necessary powers to control the movement of all people, goods and conveyances entering these areas, including the authorization to stop, question and search people and goods in these areas in order to better combat internal conspiracies and organized crime at ports of entry.
Partners in Protection is a CBSA program that enlists the cooperation of private industry to enhance border and trade chain security, combat organized crime and terrorism and help detect and prevent contraband smuggling. The program was recently modified to enhance the risk assessment process of applicants.
The CBSA ensures the safety and security of Canadians by identifying and interdicting unlawful or dangerous goods that pose a threat to the health, safety or security of Canadians. State-of-the-art detection technologies, such as radiation detection equipment to protect infrastructure at critical border points that might be the target of terrorism, enable the Agency to keep pace with increasingly sophisticated criminals and terrorists and to detect and interdict restricted, prohibited and controlled goods such as drugs, firearms, explosives, radiological threats and currency.
The Access program activity contributes to the CBSA's strategic outcome by ensuring the free flow of lawful people and goods, promoting compliance with border legislation and ensuring a level playing field for legitimate people and goods. It includes regional border operations and headquarters and support services involved in managing the access of people and goods into Canada. Through the Access program activity, the CBSA continually reviews its operating environment and procedures to identify innovative ways of improving the processing of people and goods without compromising national security or public safety.
2008‑09 Financial Resources ($ thousands) | 2008‑09 Human Resources (full-time equivalents) | ||||
---|---|---|---|---|---|
Planned Spending | Total Authorities | Actual Spending* | Planned | Actual | Difference |
666,575 | 771,482 | 860,164 | 8,135 | 9,579 | (1,444) |
Expected Results | Performance Indicator | Standard | Performance Trend and Summary |
---|---|---|---|
The flow of lawful people is facilitated. | Percentage of time border wait time standards are achieved for people. | The Monday to Thursday wait time standard for people is 10 minutes; it is 20 minutes Friday through Sunday and on holidays. | The border continued to operate smoothly for people seeking entry into Canada throughout 2008‑09. Overall, wait time standards for people were adhered to 90.3 percent of the time. There were occurrences of wait time standards being exceeded. These were mainly isolated to long weekends and statutory holidays at the 22 busiest land ports of entry where the largest volume of people are processed. |
The flow of lawful goods (commercial traffic) is facilitated. | Percentage of time border wait time standards are achieved for goods (commercial traffic). | The Monday to Thursday wait time standard for commercial traffic is 10 minutes; it is 20 minutes Friday through Sunday and on holidays. | The border continued to operate smoothly for commercial traffic seeking entry into Canada throughout 2008‑09. Overall, wait time standards for commercial traffic were adhered to 95.9 percent of the time. There were occurrences of wait time standards being exceeded. These were isolated to the 19 busiest ports of entry where the largest volume of goods (commercial) are processed. |
* The breakdown of total authorities by program activity is based on the CBSA's 2007‑08 Program Activity Architecture whereas the breakdown of actual spending is based on the Agency's revised 2008‑09 Program Activity Architecture. In this transition, a large portion of expenditures, but not authorities, was transferred from the Science- and Technology-based Innovation program activity to Internal Services. The CBSA uses a formula to allocate Internal Services costs to its three other program activities, resulting in the largest share of the expenditures being reallocated to the Access program activity. For 2009‑10, the CBSA has adjusted the authorities to better align budgets with expected outcomes.
Over the past several years, the CBSA has been expected to meet increased demands for border services from air travel industry stakeholders. At the same time, it has become increasingly difficult for the Agency to maintain existing program and service levels with limited resources. As a result, one of the Agency's greatest challenges has been how to determine fairly and transparently which requests for additional levels of border clearance services at airports should be implemented (i.e. which airports should receive funding for additional border services officers or extended hours of service).
The CBSA completed a Core Services Review in 2008‑09. This Review led to an air services policy framework that came into effect April 1, 2009. The framework establishes a consistent, open and equitable approach to requests for new or enhanced publicly funded border services. It also offers a means to compare airports of similar size in order to ensure the consistent delivery of programs and services related to border security and passenger clearance. Through the application of this framework, the CBSA will be able to demonstrate that it is allocating resources in a way that supports local economic development while ensuring the efficient use of public funds. Based on the new framework, Budget 2009 provided funding for additional services at six airports for one year beginning April 1, 2009. Plans are under way to conduct similar reviews of service levels for the rail and marine modes.
The CBSA is responsible for determining the admissibility and eligibility of people making a refugee claim at a port of entry. Over the past several years, the number of refugee claims has steadily increased (see Figure 2.3). Given that these pressures must be addressed through existing resources, the incremental workload has placed tremendous pressure on CBSA port-of-entry resources. In response to the high volumes of refugee claimants from Mexico and the Czech Republic, the CBSA established specialized units dedicated to processing refugee claims at certain ports of entry, including Pearson International Airport in Toronto, Ontario, and Trudeau International Airport in Montréal, Quebec. As a result, refugee claims were processed more quickly and with fewer claimants being detained while awaiting examination.
Figure 2.3: Refugee Claims by Mode, 2004‑05 to 2008‑09
In 2008‑09, the CBSA continued to address compliance issues by conducting education and outreach activities to inform the public of border legislative requirements. Greater awareness of these requirements leads to fewer infractions by, and faster clearance for, legitimate people and goods being imported and exported. In addition, greater compliance improves efficiency by allowing the Agency to focus its enforcement efforts on high-risk people and goods.
2006‑07 | 2007‑08 | 2008‑09 | |
---|---|---|---|
Border Information Service telephone inquiries | 1,001,493 | 1,353,573 | 899,093 |
Client-requested written advice | 186 | 3,825 | 3,386 |
Client meetings | 1,077 | 2,209 | 1,487 |
Information sessions | 655 | 1,166 | 915 |
Promotional events | 342 | 344 | 309 |
Walk-ins and general inquiries | n/a | n/a | 4,063 |
Media events | n/a | n/a | 9 |
Note: Fluctuations in annual numbers are in part related to external demand that cannot be controlled by the CBSA. For instance, the introduction of a new initiative or economic factors, such as a high Canadian dollar that stimulates interest in cross-border shopping, can result in increased inquiries.
The CBSA's trade compliance activities help provide a level playing field for Canadian manufacturers and exporters in the global trade market by ensuring the accuracy of trade data and the proper assessment, collection, relief and deferral of duties and taxes. To ensure compliance, the CBSA uses a risk-based system to select appropriate targets to verify that specific importers in identified sectors are complying with legislation and regulations. The Agency also seeks to identify and correct any inaccuracies in the application of import requirements and to assess any outstanding duties and taxes owing. To avoid congestion and cargo clearance backlogs at the border and to expedite the release of non-threatening goods into the Canadian marketplace, compliance verification work is conducted after the border clearance process, otherwise known as post-release verification.
In support of the Agency's post-release verification activities, the CBSA implemented the compliance strategic framework that sets out the criteria to assess risk and select verification priorities for trade programs. Aided by these improved criteria, the Agency verified or audited the books and records of 2,443 importers and assessed an additional $83 million in revenue.
The CBSA worked with the United States to successfully manage the implementation of the U.S Western Hemisphere Travel Initiative at the land border on June 1, 2009. The Initiative is a U.S. law that requires all travellers, including Canadian and American citizens, to present a valid passport or other approved secure document when entering the United States from within the western hemisphere. While the new law applies only to people seeking entry to the United States, the CBSA actively worked with the United States to minimize the impact on border operations.
The CBSA administers and assists in the negotiation of free trade agreements that help to open new markets for Canada by increasing opportunities for, and the predictability of, export sales. This helps Canadian businesses to fully participate in global market opportunities, creates additional export-related jobs in Canada and results in stronger profits for Canadian businesses.
The CBSA continued to assist Foreign Affairs and International Trade Canada by providing key input on customs procedures in the negotiation of free trade agreements. The Agency also continued negotiations on four free trade agreements:
The CBSA provides Canadians with administrative review mechanisms that are timely, objective, consistent and transparent to determine the accuracy of CBSA enforcement actions related to people and goods. These review processes promote compliance with border legislation and ensure that legislation is applied consistently.
In order to ensure the best possible service for Canadians, the CBSA instituted a service standard of acknowledging new adjudications and trade dispute appeals within 30 days of receipt 85 percent of the time. The CBSA's adjudications program provides clients with an administrative review of the Agency's enforcement-related actions, while the CBSA's trade disputes program provides clients with an administrative review of the Agency's trade program decisions relating to re-determinations of tariff classification, value for duty, origin and marking.
Figure 2.4: Adjudications and Trade Disputes – Performance Against Standard, 2006‑07 to 2008‑09
Note: The varying performance of the CBSA's trade disputes program is in part due to the Customs Act that allows trade dispute notices to be filed at any CBSA office in Canada. Because it takes additional time to forward dispute notices to the trade disputes group at headquarters, the Agency may make first contact with the client more than 30 days after the dispute was filed.
The Science- and Technology-based Innovation program activity supports the Agency's strategic outcome by utilizing the CBSA's science and technology capacity to modernize border management and increase the effectiveness and efficiency of border operations.
The operating environment of the CBSA is one of continually shifting challenges and opportunities. In response, the Agency employs innovative, leading-edge technology to facilitate the flow of legitimate people and goods, while protecting Canada from the threats of terrorist attacks, irregular immigration, illegal drugs and other contraband.
2008‑09 Financial Resources ($ thousands) | 2008‑09 Human Resources (full-time equivalents) | ||||
---|---|---|---|---|---|
Planned Spending | Total Authorities | Actual Spending | Planned* | Actual | Difference |
358,848 | 487,932 | 310,231 | 935 | 1,282 | (347) |
* The planned full-time equivalents for the Science- and Technology-based Innovation program activity have been adjusted to better reflect the Agency's distribution of planned full-time equivalents.
Performance Indicator | Performance | Performance Trend and Summary |
---|---|---|
Percentage of time a mission- critical application or national operational system* is available | 99.35 percent | The percentage of time that the seven highest-impact systems were available remained relatively stable for 2008‑09 as compared to 2007‑08 (99.85 percent).** |
* This indicator measures the availability of the seven information technology systems that are crucial to the management of the border.
** No data was available for one of the seven systems for 2007‑08.
To better ensure that high-risk people are examined and low-risk people benefit from facilitated entry into Canada, the CBSA is committed to improving how and where it performs risk assessments. In 2008‑09, the CBSA advanced a number of innovative projects that support the risk assessment of people seeking to enter Canada.
The Integrated Primary Inspection Line system provides CBSA officers with the ability to quickly and efficiently run automated risk assessments of people against the enforcement databases of the CBSA and Citizenship and Immigration Canada. The system was first implemented at airports and, based on its success, was approved for expansion to other modes. It is currently being phased in at land border ports of entry, in part to replace the Primary Automated Lookout System.
In addition to improving risk assessment capacity at the land border, the Agency has developed a more robust capacity in the air mode through continued improvements to the Advance Passenger Information/Passenger Name Record program. Through this program, the CBSA performs a pre-arrival risk assessment of traveller data that is transmitted by commercial air carriers.
For 2008‑09, the CBSA had also committed to the implementation of the Automated Border Clearance pilot (formerly known as the Electronic Primary Inspection Line). The Automated Border Clearance pilot will allow Canadian citizens and permanent residents to use kiosks to clear the border upon returning to Canada. At the same time, the CBSA can perform automated risk checks. However, the pilot was not implemented in fall 2008 as originally scheduled due to delays in formalizing program requirements and technical difficulties encountered with the kiosk hardware. Significant progress was made in project development, design and training, and the pilot began the testing phase in April 2009. The Agency remains committed to formally launching this initiative in 2009‑10.
Similar to the efforts being undertaken to improve risk assessments of people, the CBSA is developing and implementing technologies and systems to better assess risk in the commercial mode.
eManifest, a major Crown project, is about getting the right information at the right time to enable the CBSA to identify and mitigate potential threats to Canada while facilitating the movement of low-risk shipments across the border. It is the third phase of the Advance Commercial Information program and requires all businesses in the trade chain to provide the CBSA with electronic data on their crew, cargo and conveyance within specified time frames before their conveyance reaches Canada. While the Advance Commercial Information program established this requirement for the air and marine modes, eManifest will expand it to the highway and rail modes.
Harmonized Risk Scoring – Advance Trade Data is an initiative to improve the effectiveness of the CBSA's current automated risk assessment and targeting processes by incorporating an expanded set of risk indicators, additional trade data and a new scoring methodology. It will enable the CBSA to address information gaps within the marine commercial supply chain by harmonizing assessment processes with the United States, and to the extent possible, aligning with international standards established by the World Customs Organization.
In 2008‑09, enhancements were made to TITAN, the Agency's current automated risk-assessment system, namely the development of a new scoring algorithm for the marine mode.
The Government of Canada, under its National Security Policy, made a commitment to examine how to use biometrics in border and immigration systems. In support of the National Security Policy and this commitment the CBSA is working to leverage biometric technology.
In 2008‑09, the Agency developed biometrics principles that support the CBSA's continued use and expansion of biometric technologies. This included a stocktaking exercise of biometric-related initiatives and the presentation of draft joint biometrics principles with U.S. partners at the Four Country Conference (a meeting between representatives of Canada, Australia, the United Kingdom, the United States and, in the future, New Zealand). The CBSA also continued to work with international partners to develop a framework for the systematic exchange of biometric data. This includes a “real time” system for information sharing under the High Value Data Sharing Protocol that was signed by the deputy ministers of the four countries in June 2008. Lastly, a privacy impact analysis was completed on the impact of biometrics activities in Canada that was subsequently submitted to the Office of the Privacy Commissioner of Canada.
The CBSA has a world-class laboratory that offers a diverse range of scientific, analytical and research advisory services. The Agency provides laboratory and scientific services to internal programs and external partners, departments and agencies. The CBSA's research on scientific products and solutions helps modernize border management and increases the effectiveness and efficiency of border operations, particularly in relation to security and enforcement. The Agency is also able to perform in-house physical and chemical analyses of industrial commodities and the forensic examination of documents.
The Agency continued to advance and redevelop its revenue management programs and systems to fully integrate revenues collected from its customs, immigration and food, plant and animal inspection activities. This contributes to a modernized revenue accounting and management regime.
In 2008‑09, the Agency completed an analysis and review of its revenue management programs and systems, and it is considering how to best leverage the recommendations in the report as part of future initiatives and projects.
The CBSA's Internal Services program activity focuses on the ongoing implementation of a modern management regime that is results-based, delivers value for money and, through a regular process of monitoring, allocates or reallocates resources to the Agency's priorities. The CBSA is reporting on its Internal Services activities in 2008‑09 because Internal Services was included in the Agency's 2008‑09 Report on Plans and Priorities.
The CBSA strives to ensure that its human resources regime meets the business needs of the Agency, complies with government-wide requirements and provides timely and efficient human resources services to its employees.
The Informal Conflict Management System team continued its collaborative efforts to promote the fair and effective resolution of conflict at the CBSA. The primary focus in 2008‑09 was on program and policy development. Notable achievements included increasing mediation capacity and designing a new performance measurement and reporting tool. The proactive approach to informal conflict management skill building and awareness resulted in 71 rights-based recourses being averted or withdrawn.
The CBSA's values and ethics team designed, developed and delivered values and ethics sessions tailored to different levels of management and staff. In 2008‑09, 35 one-day sessions on values, ethics and disclosure of wrongdoing were delivered in regional offices and attended by 540 employees and managers. The sessions included specific information on the provisions and requirements of the Public Servants Disclosure Protection Act and on internal disclosure procedures at the CBSA. Critical thinking tools to help prevent unethical behaviour in the workplace were also provided.
In 2008‑09, key activities to implement a modern management regime at the CBSA included the development of an Integrated Risk Management Framework. While the Framework is designed primarily to identify and assist in the mitigation of corporate risks, it will also help the Agency deal effectively with operational threats and risks. This is consistent with the recommendations made in the 2007 October Report of the Auditor General of Canada, Chapter 5, “Keeping the Border Open and Secure.”
In 2008‑09, an executive dashboard was piloted to provide senior managers with the data they need to stay apprised of the Agency's performance and to make course adjustments as needed. The dashboard contains a small number of key performance indicators that reflect corporate management concerns (e.g. the enterprise risk profile) and how the Agency demonstrates and reports on its performance to others (e.g. Parliament, the Office of the Auditor General of Canada and the Treasury Board of Canada Secretariat). The development of additional informative indicators is ongoing and, when completed, will result in an inventory of indicators to help measure the performance of the Agency's various programs and services. The CBSA has also taken steps to establish performance targets for areas such as the management of warrants in the Intelligence program and will continue to establish targets for other programs throughout 2009‑10.
The Agency's performance measurement framework was not completed in 2008‑09 due to the need to further revise the CBSA's Program Activity Architecture. The CBSA has committed to developing a more robust Program Activity Architecture and a revised performance measurement framework for 2011‑12.
To ensure that the Agency has sufficient space to accommodate existing staff and its planned workforce for the next three years, the CBSA undertook a review of its long-term accommodation strategy, which is now being finalized. The strategy includes consolidating headquarters in a campus of new buildings, and a site was secured by Public Works and Government Services Canada in early 2009.
New port-of-entry facilities at Douglas, British Columbia, were completed in September 2008. Port infrastructure at St. Stephen, New Brunswick, was completed on schedule and will be operational when the new international bridge is opened to traffic in the second half of 2009. Budget 2009 identified additional funds for the expansion and modernization of border facilities at Prescott (Ontario) and at Kingsgate, Pacific Highway and Huntingdon (all in British Columbia).
Over the next five years, 15 to 20 small port-of-entry facilities will be replaced. The development of a standard small-port template design has been completed, and advance site surveys on many of the proposed locations will be completed in 2009‑10.
Condensed Statement of Financial Position For the period ending March 31, 2009 |
Percentage Change | 2009 | 2008 |
---|---|---|---|
Financial assets | -15.87 | 2,566,532 | 3,050,710 |
Non-financial assets | 14.33 | 391,076 | 342,051 |
Total assets | -12.83 | 2,957,608 | 3,392,761 |
Total liabilities | -76.31 | 537,559 | 2,268,884 |
Total equity | 115.33 | 2,420,049 | 1,123,877 |
Total liabilities and equity | -12.83 | 2,957,608 | 3,392,761 |
Condensed Statement of Financial Position For the period ending March 31, 2009 |
Percentage Change | 2009 | 2008 |
---|---|---|---|
Total expenses | 19.85 | 1,866,659 | 1,557,505 |
Tax revenues | -8.50 | 22,622,415 | 24,724,683 |
Non-tax revenues | 29.57 | 100,844 | 77,828 |
Total revenues | -8.38 | 22,723,259 | 24,802,511 |
Net results | -10.27 | 20,856,600 | 23,245,006 |
The CBSA's total assets were $2.958 billion at the end of 2008‑09, a decrease of $435 million (or -13 percent) over the total assets of $3.393 billion for 2007‑08. Financial assets (cash, accounts receivable and advances, and taxes receivable) represent the largest portion at $2.567 billion or 87 percent of total assets.
Total liabilities were $538 million at the end of 2008‑09, a decrease of $1.731 billion (76 percent) over the total liabilities of $2.269 billion for 2007‑08. Accounts payable and accrued liabilities represent the largest portion of liabilities at $276 million or 51 percent of total liabilities.
Total expenses were $1.867 billion for 2008‑09, an increase of $309 million (19.85 percent) over the total expenses of $1.558 billion for 2007‑08. The majority of the funds, $1.022 billion (or 55 percent), was spent on the Access program activity; $518 million or 28 percent of total expenses was spent on the Security program activity.
The Agency's total revenues were $22.723 billion for 2008‑09, a decrease of $2.08 billion (or -8 percent) over the total revenues of $24.803 billion for 2007‑08. Excise taxes (goods and services tax/harmonized sales tax, gas, etc.) represent the majority of revenues at $17.348 billion or 76 percent of total revenues. Customs import duties represent a significant portion of revenues at $4.036 billion or 18 percent of the total revenues.
The CBSA's financial statements are available on the Agency's Web site at http://www.cbsa-asfc.gc.ca/agency-agence/reports-rapports/menu-eng.html.
All supplementary information tables of the 2008‑09 Departmental Performance Report can be found on the Treasury Board of Canada Secretariat's Web site at http://www.tbs-sct.gc.ca/.
Table 1: Sources of Respendable and Non-Respendable Revenue
Table 2: User Fees/External Fees
Table 3: Details on Project Spending
Table 4: Status Report on Major Crown Projects
Table 5: Horizontal Initiatives
Table 6: Sustainable Development Strategy
Table 7: Green Procurement
Table 8: Response to Parliamentary Committees and External Audits
Table 9: Internal Audits and Evaluations
To contact the CBSA and for more information on its activities, please visit the CBSA's Web site at http://www.cbsa-asfc.gc.ca. Links to other Web sites of interest are provided below.
Canada Revenue Agency
http://www.cra-arc.gc.ca
Canadian Food Inspection Agency
http://www.inspection.gc.ca
Canadian Security Intelligence Service
http://www.csis.gc.ca
Citizenship and Immigration Canada
http://www.cic.gc.ca
Department of Finance Canada
http://www.fin.gc.ca
Foreign Affairs and International Trade Canada
http://www.international.gc.ca
Health Canada
http://www.hc-sc.gc.ca
Public Safety Canada
http://www.publicsafety.gc.ca
Royal Canadian Mounted Police
http://www.rcmp-grc.gc.ca
Transport Canada
http://www.tc.gc.ca