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Section 1: Overview

Minister's Message

The Honourable Stockwell Day, P.C., M.P.

As Minister of Public Safety, I am pleased to present to Parliament the Report on Plans and Priorities for the Canada Border Services Agency (CBSA).

Over the past two years, the Government of Canada has made public security a top priority. The Public Safety portfolio encompasses federal organizations that deal with national security, emergency management, law enforcement, corrections, crime prevention and border management, resulting in a more concerted and integrated effort to ensure Canadians' health, safety and security.

The Government has placed particular emphasis on developing a smart, secure border that protects our communities while also facilitating trade, travel and migration, which in turn fosters our economic prosperity and social values. Of particular importance is our long-standing cooperation with the United States on border issues and initiatives to secure our shared border and to optimize Canadian access to the U.S. market. Canada is committed to working with the United States to ensure that its border policies — such as the Western Hemisphere Travel Initiative — are implemented as smoothly as possible and continue to facilitate trade and legitimate travel by our citizens.

In order to enhance the security of our border, the Government has also provided the resources to arm CBSA officers and eliminate work-alone situations. More than 250 armed officers are now trained and deployed, and this initiative will continue to be a top priority for the Government.

A secure, yet accessible border promotes Canada as a welcoming nation and a haven for those seeking a new and better life. But just as we open our border to legitimate immigrants and refugees, we must ensure the integrity of the system and close our doors to people who pose a threat to our national security and to the safety of our communities. We will therefore continue to prioritize the removal of inadmissible individuals, especially those involved in criminality.

I have always believed that a safe, secure border depends most decisively on the quality of our people. I see the successes of CBSA employees every day, and I am continually impressed with the dedication and professionalism they bring to the public service. Every one of them is instrumental in protecting Canada's border, in keeping our communities safe and in maintaining Canada's open and prosperous economy. Their commitment further motivates me to ensure they have the support and resources required to do their job.

The Honourable Stockwell Day, P.C., M.P.
Minister of Public Safety

President's Message  

Alain Jolicoeur - President - Canada Border Services Agency

The border plays a critical role in ensuring both the security and prosperity of Canada: in managing the border, the Canada Border Services Agency (CBSA) must be vigilant against dangerous people and goods, yet we must also ensure the border is a gateway to prosperity.

Since the Government of Canada adopted the integrated border management model in December 2003 and established the CBSA, we have made significant progress. The CBSA has gone a long way toward the full integration of our programs, both at home and abroad. And we continue to achieve progress in putting in place a sophisticated border management regime with a scientific approach to risk assessment that achieves an appropriate balance between security and the economy. We are confident that our people and processes make Canada's border among the safest and most efficient in the world.

We are on the right track, our border is both more secure and more efficient than it was in 2003, but much work remains to be done. We face a wide and diverse range of challenging tasks for 2008–2009. Together, these will continue to transform and further modernize Canada's border management. In particular, the Agency will concentrate on strengthening our risk-management practices and integrating our existing strategies, processes and tools into a comprehensive risk-management framework. We will also focus on measures to accelerate the recruitment and training of border services officers and to ensure our employees have the support they need to fulfill their responsibilities.

The CBSA is facing increasing requests for border services beyond the level its resource base can support. The CBSA has also endured resource shortfalls in both its corporate and program capacities. The 2008 Budget included funding to address a range of financial pressures and it will help provide stability to the Agency in the short term. We have conducted an extensive review of our resource requirements and consultations with stakeholders on options to address requests for additional services. We are working to ensure the proper allocation of resources required to respond to these challenges.

Our plans rely on employees who display professionalism, respect and integrity in serving the public. Every day I am impressed by the way in which our employees perform their duties, often under difficult circumstances. I look forward to working together to address our challenges in the year to come.

Alain Jolicoeur
President
Canada Border Services Agency

Management Representation Statement

I submit for tabling in Parliament, the 2008–2009 Report on Plans and Priorities for the Canada Border Services Agency.

This document has been prepared based on the reporting principles contained in the Guide to the Preparation of Part III of the 2008–2009 Estimates: Reports on Plans and Priorities and Departmental Performance Reports:

  • It adheres to the specific reporting requirements outlined in the Treasury Board of Canada Secretariat guidelines;
  • It is based on the Agency's strategic outcome and program activities that were approved by Treasury Board;
  • It presents consistent, comprehensive, balanced and reliable information;
  • It provides a basis of accountability for the results achieved with the resources and authorities entrusted to it; and
  • It reports finances based on approved planned spending numbers from the Treasury Board of Canada Secretariat.

Alain Jolicoeur
President, Canada Border Services Agency

Raison d'être

Who We Are

The Canada Border Services Agency (CBSA) is responsible for border management that contributes to the safety and security of Canada and facilitates the flow of persons and goods, thereby contributing to Canada's prosperity. Created in December 2003, the CBSA is an integral part of the Public Safety portfolio, which was established to protect Canadians and maintain a peaceful and safe society.

The CBSA applies innovative approaches to border management and consistently develops and maintains strong partnerships domestically and internationally.

Through active monitoring and mitigation of ongoing risks, the CBSA aims to ensure that Canadians are protected from threats to public safety and health and from crime and terrorism, while keeping the border open to legitimate travel and commerce.

Table 1.1: The CBSA's Mandate, Mission and Values


Mandate The Agency is responsible for providing integrated border services that support national security and public safety priorities and facilitate the free flow of persons and goods, including animals and plants, that meet all of the requirements under the program legislation.
Mission To ensure the security and prosperity of Canada by managing the access of people and goods to and from Canada.
Values
  • Integrity
  • Respect
  • Professionalism

What We Do

While providing Canadians with integrated border services, the CBSA constantly identifies, analyzes and mitigates risk. Agency employees make thousands of real-time decisions every day that directly affect the security and prosperity of Canadians. In order to provide Canadians with effective and efficient border services, the CBSA collaborates with both domestic and international partners in areas as diverse as law enforcement, security, trade facilitation, immigration and public health.

To improve the delivery of border services, the CBSA constantly strives to “push the border out” by checking people and goods before they reach Canada. This includes screening people and goods in advance, and screening and gathering intelligence at various points along the travel continuum: upon departure, in transit and upon arrival.

The CBSA carries out its responsibilities with a workforce of approximately 13,000 employees, including over 7,200 uniformed CBSA officers who provide services at approximately 1,200 points across Canada and at 39 international locations.

The CBSA manages 119 land-border crossings and operates at 13 international airports. Of these land-border crossings, 61 operate on a 24/7 basis, as well as 10 of the international airports. Officers carry out marine operations at major ports, the largest being Halifax, Montréal and Vancouver, and at numerous marinas and reporting stations. Officers also perform operations at 27 rail sites. The CBSA processes and examines international mail at three mail processing centres in Vancouver, Toronto and Montréal.

The CBSA administers more than 90 acts, regulations and international agreements, many on behalf of other federal departments and agencies, the provinces and the territories. The Agency's legislative, regulatory and partnership responsibilities include the following:

  • administering legislation that governs the admissibility of people and goods, plants and animals into and out of Canada;
  • detaining those people who may pose a threat to Canada;
  • removing people who are inadmissible to Canada, including those involved in terrorism, organized crime, war crimes or crimes against humanity;
  • interdicting illegal goods entering or leaving the country;
  • protecting food safety, plant and animal health, and Canada's resource base;
  • promoting Canadian business and economic benefits by administering trade legislation and trade agreements to meet Canada's international obligations;
  • enforcing trade remedies that help protect Canadian industry from the injurious effects of dumped and subsidized imported goods;
  • administering a fair and impartial redress mechanism;
  • promoting Canadian interests in various international forums and with international organizations; and
  • collecting applicable duties and taxes on imported goods.

Benefits to Canadians

The Canada Border Services Agency Act gives the CBSA the mandate to provide integrated border services that support national security and public safety priorities and facilitate the free flow of persons and goods, including animals and plants, that meet all of the requirements under the program legislation.

The CBSA is a key federal partner in protecting Canadians from threats to public safety and health. To ensure that the border remains open to low-risk travel and commerce and closed to crime and terrorism, the CBSA works cooperatively with its North American counterparts in implementing a border strategy that relies on technology, advance information and sophisticated, integrated border management programs. The CBSA dedicates significant effort and resources to the development of cutting-edge technological solutions. The CBSA also invests in business continuity planning to ensure that the border stays open in the event of any emergency, such as a power failure, natural disaster or health or human crisis.

The collection of import duties and taxes represents an important function for the CBSA. Revenue collection by the CBSA is significant, with an average daily collection of $10.1 million in import duties, $58.3 million in goods and services tax/harmonized sales tax (GST/HST) and various excise duties, taxes and liquor-board fees. In total these revenues account for over $26 billion a year.

Examples of Acts Administered by the CBSA

Table 1.2: Acts Administered by the CBSA

  • Customs Act
  • Customs Tariff
  • Immigration and Refugee Protection Act
  • Excise Act
  • Excise Tax Act
  • Export and Import Permits Act
  • Food and Drugs Act
  • Plant Protection Act
  • Health of Animals Act
  • Criminal Code
  • Citizenship Act
  • Proceeds of Crime (Money Laundering) and Terrorist Financing Act

Partners and Stakeholders

The Canada Border Services Advisory Committee (CBSAC) provides independent advice and serves as a sounding board on major trends and developments that may affect the management of Canada's border, as well as on the priorities, business and operations of the CBSA. The CBSAC, which meets annually, comprises some 22 stakeholders representing the private sector, the immigration community, travellers, the general public and academia. Two sub-committees of the CBSAC, one to address matters affecting travellers and one to discuss issues relevant to the trade community, each meet twice yearly.

The CBSA is committed to consulting Canadian commercial stakeholders on the strategies, policies, operational programs and administrative procedures that govern and affect Canada's commercial trade. In support of this commitment, the Border Commercial Consultative Committee (BCCC) provides CBSA officials and commercial stakeholders with a forum for dialogue on Canada's border operations. The BCCC meets three times a year and is composed of 27 of the CBSA's major private-sector stakeholder organizations.

Given the nature of its work, the CBSA is involved with many government departments and agencies at home and abroad. Minimizing risk and maximizing security and economic advantages depend in part on reliable and timely interaction with partners and stakeholders in Canada. In collaboration with its portfolio partners, in particular, Public Safety Canada, the RCMP, the Canadian Security Intelligence Service and the Correctional Service of Canada, the CBSA contributes to the health, security and economic prosperity of Canadians.

The CBSA works closely with Citizenship and Immigration Canada (CIC), one of its key strategic partners. The CBSA and CIC support each other in the delivery of Canada's immigration program. This collaborative working relationship ensures that the objectives of the Immigration and Refugee Protection Act are met, and that Canada's immigration program is administered in line with the objectives of the Government of Canada. As well, the CBSA provides a variety of enforcement and intelligence operations to CIC to ensure that persons wishing to enter Canada are legitimately admissible and pose no security risk to Canada and its citizens. In 2008–2009, the CBSA will continue to work with CIC and Foreign Affairs and International Trade Canada to support its employees abroad and to provide assistance to CIC's visa officers abroad.

The CBSA has strong partnerships with the Department of Finance and the Canada Revenue Agency (CRA) on matters relating to the collection and reporting of the GST/HST and other revenues. The CRA is also one of the CBSA's major service providers with respect to the revenue and IT infrastructure systems that support the CBSA's operations. The CBSA maintains a close working relationship with the Department of Finance regarding Agency resources and the administration of trade legislation such as the Customs Tariff and the Special Import Measures Act.

The CBSA works on increasing cooperation and relationship building with government departments, such as Foreign Affairs and International Trade Canada, Health Canada and Transport Canada, to address major terrorist, pandemic and other human or national security risks. Dependable and timely communications with partners and stakeholders are key to minimizing risk and maximizing economic advantages for Canadians.

Negotiating and implementing key agreements and arrangements with strategic international partners is essential to enhance the CBSA's awareness and knowledge of international issues of strategic value. These arrangements also help the CBSA to prevent, investigate and combat border offences, and to facilitate information exchange and cooperation on critical global issues such as trade and security. 

The CBSA recognizes that border management evolves through the development and implementation of multilaterally accepted rules and standards. By consistently developing its international presence and building strong networks and partnerships, the Agency is able to “push the border out,” enhance its targeting and risk-management practices and engage in outreach activities that contribute to the delivery of the CBSA's mandate.

At the bilateral level, the Agency works to foster closer ties with a number of partners by pursuing alliances and advancing shared agendas, administering existing operational arrangements and developing new ones, and negotiating customs mutual assistance agreements.

At the multilateral level, the CBSA works within the institutions that are most effective in advancing Canada's interests and in which the CBSA can maximize its influence and contributions, namely the G8, the World Customs Organization, the Four Country Conference (which deals with immigration enforcement issues), the Asia-Pacific Economic Cooperation, the World Trade Organization, the International Air Transport Association, the International Civil Aviation Organization and the Intergovernmental Consultations on Asylum, Refugee and Migration Policies in Europe, North America and Australia.

Organizational Information

Figure 1.1: The CBSA's Organizational Chart

Figure 1.1 : The CBSA's Organizational Chart

The CBSA is organized into seven branches. Each one is headed by a vice-president, who reports directly to the President. The Executive Vice-President provides support to the President and concentrates on the leadership of the Agency's program and operational management, as well as on the management of financial resources and comptrollership.

Operations are delivered in eight regions: Atlantic, Quebec, Northern Ontario, Greater Toronto Area, Windsor–St. Clair, Niagara–Fort Erie, Prairies and Pacific. CBSA officers are also located in 39 points abroad.

The Admissibility and Enforcement branches develop the programs and policies that the Operations Branch delivers. The Innovation, Science and Technology Branch works with these branches to develop technological solutions to ensure that the CBSA maximizes its capacity to support effective and efficient operations, and manages the Agency's information technology (IT) relationship with the CRA.

Underpinning all of the CBSA's policy, program and operational work are the critical strategic and enabling functions that span the Strategy and Coordination, Human Resources and Comptrollership branches. The CBSA works closely with its Department of Justice Legal Services Unit to ensure the continuity of legal and litigation services and legal support for the CBSA and its service providers. Everything the CBSA does is focused on maximizing and supporting the performance of the front line.

Voted and Statutory Items Displayed in the Main Estimates

Table 1.3: Voted and Statutory Items Displayed in the Main Estimates


(Thousands of dollars)

Vote or
Statutory Item

Truncated Vote or
Statutory Wording

2008–2009
Main Estimates

2007–2008 
Main Estimates

10

Operating expenditures and contributions

1,300,600

1,242,329

15

Capital expenditures

50,910

52,819

(S)

Contributions to employee benefit plans

143,632

145,217

 Total

 

1,495,142

1,440,365

 
The increase of $54.8 million in net funding for the CBSA is primarily related to the approved variation of resources from year to year related to the following items:
  • the arming of CBSA officers and efforts to address work-alone situations ($57.0 million);
  • the Canadian Experience Class immigration stream ($22.2 million);
  • the Container Security Initiative — Harmonized Risk Scoring/Advance Trade Data ($4.4 million);
  • the 2010 Olympic and Paralympic Winter Games in Vancouver/Whistler, British Columbia ($1.7 million); and
  • the Enforcement Action Plan of the National Anti-Drug Strategy ($1.7 million).
The above increases are partially offset by the approved variation of resources from year to year related to the following items:
  • the Security and Prosperity Partnership of North America initiatives (-$10.5 million);
  • the Asia-Pacific Gateway and Corridor Initiative (-$10.3 million);
  • the contribution of the CBSA to the government-wide Procurement Reform Initiative (-$8.7 million); and
  • a reduction due to the cancellation of the Visitor Rebate Program (-$2.2 million).

Departmental Planned Spending Table and Full-time Equivalents

Table 1.4: The CBSA's Planned Spending and Full-time Equivalents


(Thousands of dollars)

2007–2011

 

Forecast Spending
 2007–2008

Planned Spending
2008–009

Planned Spending
2009–2010

Planned Spending
2010–2011

 

 

 

 

 

Security

401,580

473,183

450,297

420,709

Access

677,708

681,658

685,944

628,198

Science- and Technology-based Innovation

378,787

358,011

344,008

318,931

Budgetary Main Estimates (gross)

1,458,075

1,512,852

1,480,249

1,367,838

Less: Respendable revenue

(17,710)

(17,710)

(17,710)

(17,710)

Total Main Estimates

1,440,365

1,495,142

1,462,539

1,350,128

Adjustments

 

 

 

 

Carry forward from 2006–2007

172,869

 

 

 

Supplementary Estimates

 

 

 

 

Funding for screening and anti-fraud activities to support the Canadian Experience Class and the Temporary Foreign Worker Program within Canada's immigration system

5,875

 

 

 

Funding related to government advertising programs

5,094

 

 

 

Funding for the purpose of creating an independent automated revenue ledger for the agency, which is separate from the one currently being shared with the Canada Revenue Agency, in order to allow for efficient, accurate and timely reporting of revenues

2,650

 

 

 

Funding for the establishment of Electronic Primary Inspection Line booths at Vancouver International Airport as a pilot project for clearance of low-risk returning residents

2,348

 

 

 

Funding to conduct a feasibility study to explore viable options to resolve the difficulties experienced in obtaining accurate, timely, complete and reliable financial information

2,070

 

 

 

Funding in support of initiatives associated with the 2010 Olympic and Paralympic Winter Games in Vancouver and Whistler, British Columbia

1,941

 

 

 

Funding for enhanced enforcement activities relating to the National Anti-Drug Strategy that are aimed at reducing the supply and demand for illicit drugs

1,264

 

 

 

Funding for the evacuation of Canadian citizens from Lebanon

429

 

 

 

Reinvestment of royalties from intellectual property

390

 

 

 

Resources to enable departments to support the work of the internal inquiry

339

 

 

 

Funding for activities that are essential to the continued implementation of the Public Service Modernization Act

309

 

 

 

Funding related to the assessment, management and remediation of federal contaminated sites

131

 

 

 

Funding for the implementation of the action plan to strengthen Canada's regulatory system and establish a Centre of Regulatory Expertise within the Treasury Board of Canada Secretariat

59

 

 

 

Transfer from Infrastructure Canada for the Border Infrastructure Fund relating to investments in infrastructure to reduce border congestion

15,000

 

 

 

Transfer from Citizenship and Immigration Canada to cover the costs associated with the creation of a new migration integrity officer position abroad

334

 

 

 

Transfer from Transport Canada for public security initiatives

5

 

 

 

Transfer to Foreign Affairs and International Trade Canada to provide support to departmental staff located at missions abroad

(1,135)

 

 

 

Transfer to the Canada Public Service Agency to support the National Managers' Community

(111)

 

 

 

Total Supplementary Estimates

36,992

 

 

 

Other

 

 

 

 

Pay list expenditures – TB Vote 23

19,121

 

 

 

Employee benefit plans

1,453

 

 

 

Collective agreements – TB Vote 15

1,224

 

 

 

Internal audit – TB Vote 10

700

 

 

 

Projected lapse 

(206,976)

 

 

 

Response to the Supreme Court of Canada decision on the bill to amend the Immigration and Refugee Protection Act

 

10,960

5,010

 

Advertising campaign – Western Hemisphere Travel Initiative

 

2,650

 

 

Electronic Primary Inspection Line

 

190

 

 

Total Adjustments

25,383

13,800

5,010

0

Total planned spending1

1,465,748

1,508,942

1,467,549

1,350,128

Less: Non-respendable revenue

(46,008)

(46,008)

(46,008)

(46,008)

Plus: Cost of services received without charge

124,569

126,810

126,171

124,183

Total CBSA Spending
1,544,309
1,589,744
1,547,712
1,428,303
Full-time Equivalents
13,097
13,726
13,738
12,925
 
Planned spending changes from 2008–2009 to 2009–2010

The planned spending decrease of $41.3 million is primarily related to the approved variation of resources from year to year related to the following items:

  • the arming of CBSA officers and efforts to address work-alone situations (-$22.2 million);
  • eManifest reporting (-$6.0 million);   
  • the bill to amend the Immigration and Refugee Protection Act (-$6.0 million);
  • Passenger Name Record (PNR Push initiative) (-$4.5 million);
  • the securing of Canada's air cargo transportation system (-$3.4 million);
  • the Container Security Initiative – Harmonized Risk Scoring/Advance Trade Data (-$3.0 million);
  • sunsetting funding for the advertising campaign related to the Western Hemisphere Travel Initiative (-$2.7 million); and
  • the 2010 Olympic and Paralympic Winter Games in Vancouver and Whistler, British Columbia ($9.3 million).
Planned spending changes from 2009–2010 to 2010–2011

The planned spending decrease of $117.4 million is primarily related to the approved variation of resources from year to year related to the following items:

  • the sunset of the Border Security Initiative (-$90.6 million), the War Crimes Program (-$6.7 million) and short-term immigration pressures (-$1.0 million)
  • the 2010 Olympic and Paralympic Winter Games in Vancouver and Whistler, British Columbia (-$10.6 million);
  • eManifest reporting (-$9.5 million);
  • sunsetting funding related to the bill to amend the Immigration and Refugee Protection Act (-$5.0 million)
  • sunsetting funding for the Asia-Pacific Gateway and Corridor Initiative (-$4.8 million); and
  • the arming of CBSA officers and efforts to address work-alone situations ($7.6 million).

1 Planned spending to the end of fiscal year 2007–2008 is $1,465 million. Compared with the spending authority of $1,672 million, the anticipated lapse of $207 million is mainly attributable to IT projects and real property projects.

Summary Information

Financial and Human Resources

Table 1.5: Financial and Human Resources


(Thousands of dollars)
Financial Resources

2008–2009

2009–2010
2010–2011

1,508,942

1,467,549

1,350,128



 
(Full-time equivalents)
Human Resources

2008–2009

2009–2010
2010–2011

13,726

13,738

12,925


Departmental Priorities

The following table lists the CBSA's priorities and provides an indication of where the Agency will devote a large portion of its time and resources over the planning period.

Table 1.6: Departmental Priorities


Strategic Outcome: Border management that contributes to the safety and security of Canada and facilitates the flow of persons and goods.

Strategic Priorities 2008–2009

Type

Expected Results

1. Effective delivery of programs and services

Ongoing

The CBSA will increase its ability to identify and interdict people and goods of high or unknown risk, while expediting the flow of low-risk travellers and trade.

2. Innovating for the border of the future

Ongoing

The CBSA will develop and implement leading-edge border management processes and technologies that improve Canada's border security and economic prosperity.

3. Strong internal and external relationships

Ongoing

The CBSA will improve its capacity to work effectively with all its partners, stakeholders, clients and employees.

4. A modern management regime

Ongoing

The CBSA will practice results-based management, deliver value for money and monitor progress through regular assessments.


Program Activity Architecture Crosswalk

Departments that have received approval from Treasury Board to amend their strategic outcomes, program activities and/or program activity descriptions must provide a crosswalk that compares the old and new structures. The crosswalk provides information at the program activity level, as well as an explanation of when and why the restructuring took place.

Table 1.7: The CBSA's Program Activity Architecture Crosswalk


Strategic Outcome

2007–2008

Efficient and effective border management that contributes to the security and prosperity of Canada.

2008–2009

Border management that contributes to the safety and security of Canada and facilitates the flow of persons and goods.
Explanation of change: The strategic outcome was changed to reflect and align more effectively with the CBSA's mandate. The revised wording is more concrete and better accommodates the development and tracking of performance measures. The new strategic outcome will take effect on April 1, 2008.
Program Activities

2007–2008

  • Access
  • Security
  • Science- and Technology-based Innovation
  • Corporate Management and Direction

2008–2009

  • Access
  • Security
  • Science- and Technology-based Innovation
  • Internal Services
Explanation of change: The Corporate Management and Direction program activity was changed to Internal Services in accordance with the Treasury Board of Canada Secretariat's Management, Resources and Results Structure Policy. Internal Services includes the 13 standard sub-activities that the policy requires all departments and agencies to adopt. This change will take effect on April 1, 2008.

Program Activity Architecture

The CBSA has developed a Program Activity Architecture (PAA) to present the way in which the resources under the Agency's control are allocated and managed to achieve intended results. The PAA groups related program activities and links them logically to the Agency's strategic outcome. The PAA includes a performance measurement framework by which expected results and performance measures are linked to each activity and against which actual results are reported. This format establishes the structure for the display of the estimates, public accounts and parliamentary reporting, and it serves as the basis for resource allocation by Parliament, the Treasury Board of Canada Secretariat and departmental management.

Figure 1.2 presents the linkages between the CBSA's program activities and sub-activities, all of which contribute to the attainment of the Agency's strategic outcome and to the associated Government of Canada outcome area, namely a strong and mutually beneficial North American partnership. As the Agency is still relatively new, having been created less than five years ago, it must continue to validate, refine and improve upon its PAA with a view to the future. Managing for results is a continual learning process and over the next year, the CBSA will re-examine its PAA and modify it as required to ensure that this structure provides a proper description of the benefits and services the Agency delivers and an effective basis for program management and resource allocation.

Figure 1.2: Program Activity Architecture

Figure 1.2: Program Activity Architecture

The CBSA's strategic outcome also supports the Government of Canada's other outcome areas, namely safe and secure communities, and a fair and secure marketplace.

Program Activities by Strategic Outcome

In accordance with Treasury Board requirements, the CBSA has adopted a PAA that considers all activities undertaken by the Agency and provides a structure that aligns them with the CBSA's mandate. The PAA reflects the CBSA's operations and includes its strategic outcome and three program activities.1

Each of the three program activities has related sub-activities. The descriptions in the following pages provide context for understanding the CBSA's work and breadth of activities over the planning period. Within each program activity, specific programs or services are highlighted to illustrate the planned activities that the CBSA will undertake in the 2008–2009 fiscal year.

Table 1.8: Program Activity by Strategic Outcome


(Thousands of dollars)

Program
Activities

Expected
Results

Planned Spending

Contributes to the following CBSA strategic priorities

2008–2009

2009–2010

2010–2011

Strategic Outcome: Border management that contributes to the safety and security of Canada and facilitates the flow of persons and goods.

Access

The lawful flow of persons and goods is facilitated.

666,575

668,753

610,488

Priorities 1, 2 and 3

Security

Borders protected against potential threats to Canada's safety and security.

483,519

454,660

420,709

Priorities 1, 2 and 3

Science- and Technology-based Innovation

Innovative solutions contribute to the safety and security of Canada and facilitate the flow of persons and goods.

358,848

344,136

318,931

Priorities 1, 2, 3 and 4


1 In keeping with Treasury Board of Canada Secretariat direction, the CBSA has not reported on the Internal Services program activity in this section. For more information on this program activity and its links to departmental priorities, see Section IV, Other Items of Interest.

Departmental Plans and Priorities

The CBSA has developed a three-year strategic plan for 2008–2009 to 2010–2011. The plan identifies four priorities that support the CBSA's strategic outcome and includes a set of strategies to guide the Agency's activities for a three-year period. Outlined within each strategy are the activities that the Agency will undertake to make progress against each priority.

Table 1.9: Strategies and Priorities


Strategic Outcome: Border management that contributes to the safety and security of Canada and facilitates the flow of persons and goods.

Strategic Priority 1
Effective delivery of programs and services

Strategies

Expected Result

  • Build and maintain program expertise across the CBSA 
  • Manage corporate and operational risks to ensure effective program delivery
  • Continue with the implementation of the Arming and Doubling-up initiatives
  • The CBSA will increase its ability to identify and interdict people and goods of high or unknown risk, while expediting the flow of low-risk travellers and trade.

Strategic Priority 2
Innovating for the border of the future

Strategy

Expected Result

  • Improve service delivery through innovation

 

  • The CBSA will develop and implement leading-edge border management processes and technologies that improve Canada's border security and economic prosperity.

Strategic Priority 3
Strong internal and external relationships

Strategies

Expected Result

  • Continue the development of an international strategy for the CBSA
  • Maintain and develop strong partnerships and relationships
  • The CBSA will improve its capacity to work effectively with all its partners, stakeholders, clients and employees.

Strategic Priority 4
A modern management regime

Strategies

Expected Result

  • Continue to develop and implement the tools essential for managing a complex organization
  • Continue efforts to ensure that the CBSA's workplace is fair, enabling, healthy and safe
  • The CBSA will practice results-based management, deliver value for money and monitor progress through regular assessments.

Delivering on CBSA Priorities

This 2008–2009 Report on Plans and Priorities (RPP) sets out an ambitious agenda of priorities and goals for the next three years. Throughout 2008–2009, the CBSA will move ahead with the activities outlined in this RPP that will help it advance its priorities and, ultimately, move the CBSA closer to its vision of “a smart border, a smart organization.”

In fiscal year 2008–2009 and beyond, the CBSA will face significant pressures that will challenge its ability to fulfill its mandate, to advance its strategic plan and to ensure program integrity and sustainability. As well, while the CBSA has made progress to enhance its central corporate functions, sustaining such improvements and meeting the growing requirements for accountability and modern management will stretch limited resources even more.

In 2008–2009, the Agency will develop an Integrated Risk Management Framework (IRMF) as part of its effort to manage both enterprise and operational risks to ensure effective program delivery. The IRMF will include a compliance management plan to be phased in at the beginning of the 2008–2009 fiscal year. With a view to ultimately integrate risk-management and compliance activities into the CBSA's three business lines — people; goods; food, plants and animals — this framework will also include an analysis of the various risk-assessment tools currently in place. To support front-line staff, the Agency will continue implementation of the Arming Initiative, which includes the training and deployment of additional armed CBSA officers, and the Doubling-up Initiative, which involves eliminating work-alone situations.

While the CBSA received additional funds ($433 million over five years) in October 2005 to increase capacity at the border, this funding is set to expire in 2010–2011. Renewal of this funding will be considered in light of the results of a Treasury Board-mandated third-party resource review completed in 2007–2008. This review concluded that, in the future, if there are no adjustments, the CBSA's resource base would be insufficient to fulfill its mandate. This recently completed review has provided insights into the challenges that the CBSA must overcome to carry out its core functions and responsibilities, while, at the same time, maintaining flexibility and building the capacity to move forward on its innovation agenda. The 2008 Budget identified new funds for the CBSA over the next two years; however, the CBSA still faces challenges in both corporate and program capacity over the medium and long term.

In 2008–2009, the CBSA will continue to work with central agencies to develop a strategy for moving forward on the results of the review. Acting on the findings and recommendations of this review is of critical importance to ensure that the CBSA remains vital in the future and that its base resources are sufficient to contribute to the security and prosperity of Canadians.

Challenges

No nation, including Canada, can guarantee absolute safety against threats at the border. The CBSA processes an average of 95 million travellers every year and approves the entry of over $400 billion in imported goods annually. It is impossible to stop and check every individual and every piece of merchandise. Therefore, the Agency's focus must be on risk management.

The genesis of the CBSA was a rare occurrence in that it was created overnight by putting together pieces of three different organizations and providing the combined entity with a new mandate. Since its creation, the Agency has faced three central challenges: building the CBSA as an integrated border management organization; balancing the Agency's dual mandate of securing the border while facilitating trade; and engineering a risk-based border management regime for clearing people and goods.

Over the past four years, the CBSA has developed a robust and sophisticated border management regime with a scientific approach to risk assessment and detection. The CBSA's risk-management approach is multi-layered. The Agency's operations are based on three fundamental strategies:

  • implementing pre-approval programs (e.g. the NEXUS and Free and Secure Trade [FAST] programs) to facilitate the movement of low-risk people and goods;
  • using advance information (by means of such programs as the Advance Commercial Information [ACI] program and the Advance Passenger Information/Passenger Name Record [API/PNR] program) on what and who is coming to the border; and
  • turning this information into intelligence using sophisticated science- and technology-based risk-assessment systems and employee expertise to identify people and goods of high and unknown risk.

While the CBSA is in the business of examining risk every day, an overall framework would be helpful to more systematically integrate into decision making the risks related to all activities within the Agency. The framework would also ensure that the necessary feedback loops are in place. To that end, an IRMF will be developed and presented to Agency management by the end of 2008–2009.

A key element of the IRMF, and one that will ultimately strengthen the management of many CBSA programs, will be improved targeting processes. Over 2008–2009, the Agency will take steps to ensure that targeters consistently document their referral decisions and the reasons for them, as well as the results of subsequent examinations. This will help to better link targeting decisions, including prescribed levels of examination, to identified levels of risk. A needs analysis to identify gaps in existing training and desired performance will also be conducted to improve on current targeter training and ensure greater nation-wide consistency in targeting processes.

The CBSA is now engaged in significant program initiatives that will further transform and modernize border management. The initiatives involve the following activities:

  • deploying new science and technology (such as biometrics) for identifying trusted travellers and sophisticated technologies for detecting radiation, drugs, guns and other contraband and potentially dangerous goods (see Section II, Access and Science- and Technology-based Innovation);
  • arming CBSA officers and eliminating situations where they are working alone (see Section II, Security);
  • implementing the eManifest system, which will require advance electronic reporting and risk assessments for commercial shipments arriving at the border (see Section II, Science- and Technology-based Innovation); and
  • working with the United States to ensure that the U.S. Western Hemisphere Travel Initiative is implemented as smoothly as possible and does not impede travel and cross-border trade (see Section II, Access).