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Message from the Minister

As Minister of Public Safety, I am pleased to present to Parliament the Canada Border Services Agency's (CBSA) Report on Plans and Priorities for 2009–10.

The CBSA has a dual mandate to secure the border and to facilitate travel and trade. This report describes how the CBSA will continue to meet this mandate by modernizing its administration of Canadian laws and regulations at the border, including the inland and overseas enforcement of immigration and refugee laws. Priorities include the continued arming of CBSA officers and building the capacities required to facilitate and secure our ports of entry during Canada's hosting of the 2010 Olympic and Paralympic Winter Games.

The CBSA just marked its fifth anniversary. Over these five years, the Agency focused on integrating its three legacy organizations and modernizing border operations amid an unprecedented intensification of the security environment. Having matured as an Agency, the CBSA is developing a new strategic vision focused on border integrity, which entails innovative risk management combined with a clarified orientation to public service to enable the integrated, professional delivery of border programs.

The Agency is embarking on this change agenda to ensure that it can meet its dual mandate in the context of global economic and social challenges, intense budgetary pressures and continuing demands for new border services. Such change will rely on a corporate culture that nurtures the CBSA's values of integrity, respect and professionalism, and on corporate support that efficiently organizes people and systems, optimally allocates funding and clearly measures performance.

The CBSA faces one of the most critical challenges of government today: enforcing Canadian border laws to keep Canada safe and prosperous. I am convinced that the commitment and professionalism of CBSA staff will allow the Agency to continue rising to this challenge.

The original version was signed by the Honourable Peter Van Loan, P.C., M.P., Minister of Public Safety.

Section I: Departmental Overview

Raison d'être and Responsibilities

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:

• assessing whether people and goods can lawfully enter Canada;
• detaining and removing people who may pose a threat to Canada;
• administering trade legislation and agreements;
• enforcing trade remedies that help protect Canadian industry; and
• collecting duties and taxes on imported goods.

Created in 2003, the CBSA is an integral part of the Public Safety portfolio, which is responsible for integrated national security, emergency management, law enforcement, corrections, crime prevention and border operations.

Operating Environment

Over the past five years, the CBSA has evolved into an integrated border management agency, delivering its programs and services in a highly complex environment. The CBSA is responsible for the processing of close to 100 million people and $400 billion in trade each year at approximately 1,200 points of service across Canada and some international locations. Within this context, and by prudently managing resources and continually seeking opportunities to improve operational and cost efficiencies, the Agency delivers a wide range of programs and services for people and goods. In addition, the CBSA focuses on using strong risk management, effective partnerships and excellence in client service to deliver its mandate.

Risk Management

Every day, CBSA employees make thousands of real-time decisions that directly affect the security and prosperity of Canada. This work is done within a rapidly evolving environment where changes in international and domestic economic conditions, migration trends and technology, and threats to Canada's population and to plant and animal health, have immediate impacts on border management activities.

The Agency manages many operational risks, including the possible entry into Canada of illicit drugs; terrorists; goods that could cause chemical, biological, radiological, nuclear or explosive events; irregular migrants; counterfeit goods; firearms; and contaminated food, plants or animals. In addition, CBSA employees monitor departures from Canada to effectively control any export of strategic advanced technology that could be used in the development of weapons. The volume, range and geographic dispersal of the Agency's border activities dictate the need for effective intelligence and risk-management strategies to ensure border integrity.

Given the complex and dynamic environment in which the CBSA operates, and the new and emerging risks that the Agency must respond to, there is a need to improve capacity to identify and interdict high-risk people and goods. In 2009–10, the CBSA will improve its risk-based approach to modern border management by streamlining the Agency's intelligence function and enhancing its targeting capabilities. This will enable the CBSA to more effectively identify and assess risks and allocate resources for the interdiction and mitigation of those risks. A key tenet of modern border management is to identify, assess and mitigate risks to Canada as close to their source as possible. As part of its risk management strategy, the CBSA will continue to move as much border management activity as possible away from the physical border and perform only those activities at the border that are best carried out there.

Effective risk management also depends on having the necessary plans in place to deal with exceptional circumstances. The CBSA continues to improve, and validate through exercises, its plans and capacity to provide critical business operations during and after an emergency situation. In 2010, Canada will host the Olympic and Paralympic Winter Games and, in preparation for the event, operational plans are well under way to ensure that the border will remain open to the thousands of expected athletes, media representatives and tourists while remaining secure from any threats.

The Agency's ability to identify and interdict a wide range of risks at the border depends on having well-trained and experienced border services officers on duty. To ensure that they have the necessary skills and training, particularly with respect to the Agency's immigration and food, plant and animal inspection responsibilities, the CBSA will implement a revised national training strategy that addresses these areas.

Partnerships

The CBSA depends on cooperation, both domestically and internationally, to successfully deliver on its mandate. Domestically, the Agency administers and enforces the policies and programs of many departments and agencies (Citizenship and Immigration Canada and the Canadian Food Inspection Agency are the most prominent among these). The CBSA also works closely with its partners in border security, namely the Royal Canadian Mounted Police (RCMP), the organization responsible for border-related enforcement activities between ports of entry, as well as the Canadian Security Intelligence Service. For example, the CBSA will be undertaking a pilot project with the RCMP to monitor Quebec–United States crossings, both at and between ports of entry, as part of the Government of Canada's efforts to enhance the effectiveness of border operations.

Internationally, the CBSA will continue to work closely with the United States, its most important partner in border integrity, by strengthening strategic cooperation and enhancing the volume, quality and timeliness of bilateral operational information sharing. Moving forward, the Agency will also seek opportunities to cooperate with other strategic partners. For example, given the importance of Europe as a source of people and goods destined for Canada, the CBSA will look to develop a more strategic relationship with the European Union. In addition, in 2009–10, the Agency will focus on strengthening its engagement with non-traditional partners, including countries around the Pacific Rim.

Client Service

The CBSA serves many clients and stakeholders, and it seeks to maintain their trust by upholding the values of integrity, respect and professionalism. In support of this commitment, the CBSA is implementing an integrity and professional standards strategy to ensure that the Agency's employees reflect these values in their conduct and activities, both on and off duty. The strategy also aims to ensure that the CBSA's programs and systems support these values.

The CBSA will place a renewed focus on service orientation through the development of reasonable and transparent service standards over the next two years. This will enable the Agency to set clear service expectations for its clients and effectively measure the performance of its programs.

As part of its focus on improved service orientation, the CBSA is coordinating a single window initiative on behalf of 10 federal departments and agencies. This is a key priority for commercial stakeholders. The initiative will streamline the collection of advance commercial trade data by creating a single electronic interface for businesses to submit information to meet import and export regulatory requirements. It will also benefit the trade community by increasing competitiveness, reducing delays and improving the clearance and release times of goods.

Strategic Outcomes and Program Activity Architecture

Shown below are the CBSA's two strategic outcomes and a graphic of the CBSA's Program Activity Architecture for 2009–10.

Strategic Outcome 1: Canada's population is safe and secure from border-related risks.

Description: In providing integrated border services, the CBSA prevents the movement of unlawful people and goods across the border.

Strategic Outcome 2: Legitimate travellers and goods move freely and lawfully across our borders.

Description: In providing integrated border services, the CBSA facilitates the flow of legitimate people and goods in compliance with border legislation and regulations.

Program Activity Architecture Crosswalk

2008–09	2009–10
Strategic Outcome Border management that contributes to the safety and security of Canada and facilitates the flow of persons and goods	Strategic Outcome 1 Canada's population is safe and secure from border-related risks	Strategic Outcome 2 Legitimate travellers and goods move freely and lawfully across our borders
Security	Risk Assessment Program
	Enforcement Program
Access		Facilitated Border Program
		Conventional Border Program
		Trade Program
		Recourse Program
Science- and Technology-based Innovation	Risk Assessment Program	Facilitated Border Program
	Enforcement Program	Conventional Border Program
		Trade Program
	Internal Services
Internal Services	Internal Services

Note: Since the financial information related to the Annual Reference Level Update initiatives was prepared using the CBSA's new Program Activity Architecture, it is not possible to show the redistribution of financial resources from 2008–09 to 2009–10 in the above crosswalk.

Explanation of Changes

The CBSA's 2008–09 strategic outcome was divided into two outcome statements. The revised wording is more specific and better aligns with the Agency's mandate. The two strategic outcomes facilitate the development of performance measures to track the progress towards the achievement of each outcome. Adopting two strategic outcomes also contributes to the development of refined and more targeted program activities.

With six program activities, the CBSA's 2009–10 Program Activity Architecture provides a better sense of what each program activity does. The Science- and Technology-based Innovation program activity has been realigned to five of the Agency's six program activities because it relates to how the CBSA does business and not to what the Agency actually does. As a result, the CBSA has been able to eliminate duplication in programs from the various levels of its Program Activity Architecture, and the link between strategic outcomes, program activities and program sub-activities is now more evident. The changes will take effect on April 1, 2009.

Planning Summary

Total Financial and Human Resources

The following tables provide summary data on the total financial and human resources of the CBSA for the next three fiscal years.

Total Financial Resources
($ thousands)

2009-10	2010-11	2011-12
1,500,160	1,516,195	1,673,965

Total Human Resources
(Full-time equivalents)

2009-10	2010-11	2011-12
13,810	13,661	13,789

Planned spending changes from 2009–10 to 2010–11

The planned spending increase of $16.0 million is a result of adjustments made to approved expenditures in multi-year initiatives, including the following items:

Increases

• improving the CBSA's program integrity ($31.6 million);
• the upgrade of the CBSA's port of entry capacity at Kingsgate, Pacific Highway and Huntingdon (all in British Columbia) and at Prescott, Ontario ($26.0 million);
• the construction of residential housing at Beaver Creek and Little Gold in the Yukon Territory and at Pleasant Camp, British Columbia ($5.0 million);
• the Great Lakes/St. Lawrence Seaway Marine Security Operations Centre ($1.0 million);
• the National Anti-drug Strategy ($0.9 million);
• the Canadian Experience Class immigration stream ($0.7 million); and
• other items ($1.0 million).

Decreases

• the arming of CBSA officers and efforts to address work-alone situations
  ($12.9 million);
• eManifest reporting ($12.1 million);
• the 2010 Olympic and Paralympic Winter Games in Vancouver and Whistler, British Columbia ($10.6 million);
• the funding for the expansion of NEXUS ($5.2 million);
• the sunset funding related to An Act to amend the Immigration and Refugee Protection Act (certificate and special advocate) and to make a consequential amendment to another Act ($4.6 million);
• the CBSA's contribution to the government procurement reform initiative ($3.1 million);
• the funding to address short-term immigration pressures ($1.0 million); and
• the biometrics project ($0.7 million).

Planned spending changes from 2010–11 to 2011–12

The planned spending increase of $157.8 million (primarily project funds, not salaries) is a result of adjustments made to approved expenditures in multi-year initiatives, including the following items:

Increases

• the cash flow adjustment related to the realignment between fiscal years, which is consistent with the Economic and Fiscal Statement actions to improve spending projections (a decrease of $65 million in 2010–11 and an increase of $65 million in 2011–12 for a total year-to-year increase of $130 million);
• improving the CBSA's program integrity ($24.7 million);
• eManifest reporting ($8.1 million);
• the upgrade of the CBSA's port of entry capacity at Kingsgate, Pacific Highway and Huntingdon (all in British Columbia) and at Prescott, Ontario ($6.0 million);
• the arming of CBSA officers and efforts to address work-alone situations ($2.1 million); and
• other items ($0.5 million).

Decreases

• the construction of residential housing at Beaver Creek and Little Gold in the Yukon Territory and at Pleasant Camp, British Columbia ($7.5 million);
• the CBSA's contribution to the government procurement reform initiative ($3.7 million); and
• the biometrics project ($2.4 million).

Planning Summary Table

Strategic Outcome 1: Canada's population is safe and secure from border-related risks.

Performance Indicators	Targets
Percentage of people examinations that result in an enforcement action Percentage of shipment examinations that result in an enforcement action	To be developed in 2009–10 To be developed in 2009–10

Program Activity*	Forecast Spending 2008-09 ($ thousands)	Planned Spending ($ thousands)			Alignment to Government of Canada Outcomes**
		2009-10	2010-11	2011-12
1.1 Risk Assessment	226,525	163,916	145,677	235,402	A strong and mutually beneficial North American partnership
1.2 Enforcement	406,983	328,998	321,298	367,145	Safe and secure communities
Total Planned Spending	633,508	492,914	466,975	602,547

 

Strategic Outcome 2: Legitimate travellers and goods move freely and lawfully across our borders.

Performance Indicators	Targets
Percentage of time border wait time standards for people are met Percentage of time border wait time standards for shipments are met	To be developed in 2009–10 To be developed in 2009–10

Program Activity*	Forecast Spending 2008-09 ($ thousands)	Planned Spending ($ thousands)			Alignment to Government of Canada Outcomes**
		2009-2010	2010-2011	2011-2012
2.1 Facilitated Border	42,774	41,053	34,616	51,100	Strong economic growth
2.2 Conventional Border	577,660	538,674	543,537	544,936	Strong economic growth
2.3 Trade	51,225	44,507	44,285	44,762	A fair and secure marketplace
2.4 Recourse	9,435	9,356	9,355	9,337	A fair and secure marketplace
Total Planned Spending	681,094	633,590	631,793	650,135

 

Internal Services

Program Activity*	Forecast Spending 2008-09 ($ thousands)	Planned Spending ($ thousands)
		2009-10	2010-11	2011-12
Internal Services	314,750	373,656	417,427	421,283
Total Planned Spending	314,750	373,656	417,427	421,283

*For program activity descriptions, please access the Main Estimates at http://www.tbs-sct.gc.ca/est-pre/estimate.asp.

**Government of Canada outcomes: http://www.tbs-sct.gc.ca/ppg-cpr/framework-cadre-eng.aspx?Rt=1037.

The figure below shows the allocation of the CBSA's planned spending by program activity for 2009–10.

CBSA Planned Spending by Program Activity for 2009–10
($ thousands)

Expenditure Profile

The CBSA plans to spend $1,500 million in 2009–10 to meet the expected results of its program activities and contribute to its strategic outcomes. The figure below shows the Agency's spending trend from 2005–06 to 2011–12.

Spending Trend ($ thousands)

Since its creation in 2003, the CBSA has been managing substantial operational pressures. While spending increased steadily between 2005–06 and 2008–09, the increase resulted principally from project-specific funding related to Government of Canada priorities and was not available to address operational and corporate issues. In the long term, the full implementation of major innovation initiatives, such as eManifest, is expected to have a positive impact on the efficiency of border operations, thereby alleviating some of the operational pressures. In the interim, the CBSA is working to find solutions by allocating recently received program integrity funding to the areas of greatest risk and through internal reallocation to high-priority activities.

Voted and Statutory Items

($ thousands)

Vote No. or Statutory Item (S)	Truncated Vote or Statutory Wording	2008-09 Main Estimates*	2009-10 Main Estimates*
10	Operating expenditures	1,300,600	1,279,813
15	Capital expenditures	50,910	56,202
(S)	Contributions to employee benefit plans	143,632	147,014
	Total	1,495,142	1,483,029

*The Main Estimates can be accessed online at http://www.tbs-sct.gc.ca/est-pre/estime.asp.

The decrease of $12.1 million in net funding for the CBSA is related to the approved variation of resources from year to year related to the following:

• $65.0 million realignment between fiscal years, which is consistent with the Economic and Fiscal Statement actions to improve spending projections;
• $5.4 million reduction to adjust contributions to the employee benefit plans;
• $4.5 million reduction for the Passenger Name Record Push project;
• $3.9 million reduction for the Air Cargo Security Initiative, which has mostly focused the CBSA's interdiction efforts on imported goods and enforcing export controls on cross-border currency reporting and strategic goods;
• $3.7 million transferred to Foreign Affairs and International Trade Canada to provide support for departmental staff located at missions abroad;
• $3.7 million reduction as the CBSA's contribution to the government procurement reform initiative;
• $3.7 million reduction for the Container Security Initiative — Harmonized Risk Scoring (the objective of this initiative is to improve the effectiveness of the CBSA's automated risk assessment and targeting processes by incorporating an expanded set of risk indicators, additional trade data and a new scoring methodology);
• $2.9 million transferred from the Department of National Defence to support the activities, service levels and standards of CBSA personnel to be co-located and employed at the marine security centres in the Atlantic and Pacific regions; and
• $1.2 million reduction for the Container Security Initiative.

The above decreases are partially offset by the approved variation of resources from year to year related to the following:

• $50.0 million to improve the CBSA's program integrity;
• $13.3 million for the arming of CBSA officers and efforts to address work-alone situations;
• $9.3 million towards the coordination and management of integrated border services that will support the 2010 Olympic and Paralympic Winter Games in Vancouver and Whistler, British Columbia;
• $4.6 million to implement An Act to amend the Immigration and Refugee Protection Act (certificate and special advocate) and to make a consequential amendment to another Act; and
• $4.7 million in various adjustments.

Contribution of 2009–10 Priorities to Strategic Outcomes

CBSA Operational Priorities	Type	Link to Strategic Outcomes	Description
Enhance capacity to identify, assess and mitigate the risks posed by people and goods.	Previously committed to	Strategic Outcome 1	Why is this a priority? To help ensure Canada's population is safe and secure from border-related risks by preventing the movement of unlawful people and goods across Canada's border. Key plans to meet the priority: Optimize the CBSA's intelligence function Enhance targeting Improve information sharing with partners Refocus the CBSA's detention and removal activities Improve the CBSA's program delivery
Improve service levels for legitimate people and goods.	Previously committed to	Strategic Outcome 2	Why is this a priority? To support Canada's economic growth by facilitating the flow of legitimate people and goods that are in compliance with border legislation and regulations. Key plans to meet the priority: Develop a strategy for registered traveller programs Develop a single window for the electronic collection of trade data Improve employee awareness of integrity and professional standards Improve the CBSA's program delivery
CBSA Management Priorities	Type	Link to Strategic Outcomes	Description
Improve management tools, corporate procedures and organization to advance border management mandate.	Ongoing	Strategic Outcomes 1 and 2	Why is this a priority? To ensure the CBSA has in place a modern, risk-based regime and knowledgeable employees who can support the achievement of the CBSA's strategic outcomes. Key plans to meet the priority: Develop a business model to support a modern, risk-based approach to border management Validate business continuity plans Implement performance measurement Develop a national cross-training implementation plan for border services officers

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