ARCHIVED - RPP 2006-2007
Immigration and Refugee Board of Canada

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Section 2: Detailed Analysis of Program Activities

As noted in Section 1, the IRB has developed an Integrated Business Plan for 2006-2007. A key part of this plan is the identification of the areas of activities (plans) that are common to the four program activities and that contribute to achieving the strategic priorities set out for the next fiscal year. The plans and expected results associated with these common elements are primarily aimed at achieving the IRB's first two strategic priorities, and are presented in the table below.

Common Elements:
Plans and Expected Results for 2006-2007

Strategic Outcome: Provide Canadians with well-reasoned, timely decisions on immigration and refugee matters efficiently, fairly and in accordance with the law.
STRATEGIC PRIORITY Integrate common procedural, administrative and adjudicative activities in all Divisions to further promote quality, consistency and efficiency measures
Plans	Expected Results
Policy Instruments and Procedures
Develop policies and procedures on dealing with Vulnerable Persons	IRB decision-makers and personnel in all Divisions demonstrate a consistent understanding of vulnerability and associated sensitivities Appropriate match between procedure and the particular circumstances of a vulnerable person
Develop a standardized approach to how the IRB deals with cases involving non-disclosure of information (S.86 cases)	Cases involving nondisclosure of information are treated in a consistent manner
Elaboration of IRB detention/security framework and implementation of selected elements across the Divisions	Enhanced framework to address detention/security issues developed and in place Elements of the framework are identified as priority, and are developed and implemented
Initiate the development of a common/shared policy on the use of videoconferencing	Completed common policy on the use of videoconferencing
Performance Measures
Initiate a standardized approach to present IRB performance indicators, including meaningful cross-divisional indicators, both quantitative and qualitative	A standardized approach and common presentation for IRB performance indicators, both quantitative and qualitative, in order to produce more consistent analyses
Adjudicative Culture
Develop and implement IRB common guidelines and procedures in relation to counsel conduct	A common approach to dealing with counsel conduct across the Divisions ensuring consistency across the IRB
STRATEGIC PRIORITY Continue to build an organizational culture that supports its people, and is flexible and innovative
Plans	Expected Results
Continue to implement a competency-based HR management strategy across the IRB, including developing competency profiles for functional groups and tools to support their use	Effective competency-based HR management strategy, including the development of new profiles Management equipped with the tools to use competency profiles
Implement policy on redeployment between the RPD and IAD allowing increased mobility between Divisions	Spikes in workflow mitigated by movement of decision-makers between divisions (IAD/RPD) and by bringing on part-time and short-term GIC and public servant appointments, where necessary Increased mobility between Divisions and flexibility in workload planning Operational demand and expertise driving assignments
Cross-training between Divisions and joint training and professional development in place where appropriate	Joint training developed for IRB Divisions
Provide strategic communications advice and information that reflect changes to procedural, administrative and adjudicative activities	Effective and timely communications advice and information to foster greater understanding of changes within the IRB An increased level of relevant and useful information on the IRB's Infonet Employees of HQ and Regional offices have a clear understanding of their respective roles and responsibilities within the IRB
International
Within the International Program, Divisions and Operations to define respective international priorities	Resources only allocated to most strategically significant and value-added international engagement IRB provided with the opportunity to establish position of leadership on the international scene
Coordinate international conference participation	IRB participation remains relevant to international partners (i.e. moving from refugee/asylum focus to include immigration/migration, immigration appeals, admissibility hearings and detention review issues) A well-integrated international conference participation coordination function that provides maximum strategic benefits for the IRB

Linkage with Government Agenda
Responsiveness	Innovation	Accountability

The IRB Integrated Business Plan also identifies the elements, tribunal values, operations, and corporate management and services that are distinct to each program activity and that will contribute to realizing our strategic priorities for 2006-2007. These are highlighted in the following detailed analysis.

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Refugee Protection Program Activity

The Refugee Protection Division delivers the IRB's refugee protection program activity, and continues to play a pivotal role in enabling the Board to achieve its strategic priorities. A major share of IRB resources are committed to this program activity, which is focused on rendering quality decisions in a consistent, timely manner on refugee protection claims made in Canada.

Financial Resources ($ millions)
2006-2007	2007-2008	2008-2009
86.4	85.3	85.3

Human Resources (Full-time Equivalents)
2006-2007	2007-2008	2008-2009
825	815	815

The difference in the financial resources and FTE figures for 2006-2007 and 2007-2008 is due mainly to the end of the temporary funding of $2.0 million relating to administrative measures in support of refugee reform within the Refugee Protection program activity.

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2006-2007 Outlook

For fiscal year 2006-2007, the Refugee Protection Division expects that it will receive approximately 22,000 new claims, 5 percent more than in fiscal year 2005-2006.

In 2006-2007, the Refugee Protection Division expects to finalize 22,500 cases, 12 percent less than in fiscal year 2005-2006. A continued downward trend of finalizations is anticipated, attributable to a reduced flexibility to schedule hearings and a continued focus on addressing a higher proportion of older, complex and time-consuming cases due to success in finalizing relatively simple, straightforward cases from the inventory.

Based on 22,500 claim finalizations, the average cost per claim is expected to be $3,500 for 2006-2007. Unit costs per claim range from $1,300 for an expedited case to $4,400 for complex cases. The projected overall average cost per claim of $3,500 is higher than the 2004-2005 actual average cost of $2,500 per claim. In 2004-2005, there were 35,800 claims finalized. The increase in cost per claim is mainly attributable to increases in salaries and funding for reforms to the refugee determination system, changes in the case mix as a larger share of complex cases are being projected for finalization thus requiring longer hearings, a higher share of fixed costs per unit caused by a drop in volume as well as transition costs associated with reductions in business volumes and required staffing levels.

The cost per claim includes the decision-making costs and costs of related activities such as case preparation, research, scheduling of hearings, legal services, foreign-language interpretation, technological support, translation services, as well as administrative support but it excludes extraordinary items such as the ICMS project development costs. It also includes a share of the costs from the corporate management and services program activity, which is allocated to the three decision-making program activities, based on expenditure trends.

Due to past success in reducing the inventory of claims pending (waiting for a decision), increased resources and improvements in case management processes, the Division is positioned to reduce its inventory to approximately 20,000 claims pending by the end of the 2006-2007 fiscal year, if appointments and re-appointments of decision-makers are made in a timely way.

The average processing time continues to drop, and the Division anticipates achieving an 11-month average processing time for the next fiscal year. This is contingent on receiving and maintaining the required level of decision-makers. The Division continues its efforts to seek efficiencies in case processing activities, with a view to decreasing the average processing time.

Key Plans and Expected Results

To achieve its forecasts for fiscal year 2006-2007, and in line with the strategic priorities set out for the organization, the refugee protection program activity will undertake the planned activities with the expected results outlined in the following table.

Program Activity: Refugee Protection
Plans and Expected Results for 2006-2007

Strategic Outcome: Provide Canadians with well-reasoned, timely decisions on immigration and refugee matters efficiently, fairly and in accordance with the law.
STRATEGIC PRIORITY Integrate common procedural, administrative and adjudicative activities in all Divisions to further promote quality, consistency and efficiency measures
Plans	Expected Results
Distinct Elements and Tribunal Values
Further monitoring of RPD Action Plan in order to ensure implementation	Increased efficiency and consistency in case management Hearings focused on determinative issues
Pursue measures to further streamline RPD processes	Improved streamlining as a result of strict application of rules on disclosure and Guideline on PIF receipt within 28 days and in the application of pre-hearing applications
Further reduce pending inventory, processing times and cost by claim by monitoring and expanding Fast Track Initiative, reducing adjournments and postponements, and through more sophisticated streamlining	Consistent application of streamlining instructions and relevant and responsive instructions Reduction in postponement rates Reduced pending inventory and processing times
Continue to implement and monitor the strategic approach to quality decision-making through quality issue sessions, discussion groups, additional National Documentation Packages, Jurisprudential Guides and Persuasive Decisions, as needed, and Guidelines for Vulnerable Persons	Increased ability to respond to and discuss emerging trends and documentary evidence Promotion of quality, consistency and efficiency in decision-making High-quality and nationally consistent country documentation
Facilitate the process of making appointments and re-appointments in a timely way	Reduction in lost productivity, less adjournments and increased morale of members
Training developed and delivered on various topics including state protection, delivery of reasons, exclusion and Vulnerable Persons Guidelines	Decision-makers equipped with the knowledge and skills to effectively apply the concepts of state protection and exclusion to their decision-making as well as enhancing their sensitivities towards Vulnerable Persons appearing before them; legal challenges based on flawed application of concept minimized Decision-makers equipped with the knowledge and skills to deliver effective and sound reasons
Review and deliver new member training, and deliver focus training for experienced members in all areas identified by RPD	New decision-makers equipped with the knowledge and skills to perform duties; experienced members equipped with the knowledge and skills in all areas identified by RPD
STRATEGIC PRIORITY Improve case management processes through the successful implementation of ICMS
Plans	Expected Results
ICMS Operations
Development and implementation of Release 4	End-to-end case processing developed and in place for RPD The Operations Branch acquires the capacity to support ICMS and the IRB user community
Delivery of required training and simulation exercise	Timely delivery of ICMS and other training to enable the organization and the user community to fully optimize the implementation of the application
Post-implementation evaluation focusing on "lessons learned" carried out	Lessons are learned and documented in preparation for Stages 2 and 3

Linkage with Government Agenda
Responsiveness	Innovation	Accountability

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Admissibility Hearings and Detention Reviews Program Activity

The Immigration Division delivers the IRB's admissibility hearing and detention review program activity. Admissibility hearings are held for foreign nationals or permanent residents who are alleged to be inadmissible to Canada pursuant to the provisions of IRPA. Detention reviews are held concerning permanent residents and foreign nationals who are detained under IRPA authority, and must be conducted within specific timeframes set out in IRPA. Decision-makers must balance the rights of individuals to liberty with the security interests of Canadians and persons in Canada. The number of admissibility hearings and detention reviews conducted by the IRB depends on the number of cases referred to it by CBSA and CIC.

Financial Resources ($ millions)
2006-2007	2007-2008	2008-2009
15.2	15.5	15.5

Human Resources (Full-time Equivalents)
2006-2007	2007-2008	2008-2009
90	90	90

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2006-2007 Outlook

The Immigration Division anticipates that the volume of admissibility hearings will remain stable, and expects that 2,000 admissibility hearings will be finalized in 2006-2007. The number of cases being referred to the Division has declined since IRPA was implemented. However, the proportion of complex cases involving war crimes, organized crime, terrorism, transnational crime and foreign criminality has increased.

The number of detention reviews conducted by the Immigration Division has also remained stable. The Division anticipates that it will finalize approximately 11,500 detention reviews in 2006-2007. An important factor in detention reviews, criminality is an element that is present in a high proportion of cases, particularly those that involve long-term detention.

Based on 2,000 admissibility hearings and 11,500 detention reviews, the average cost per admissibility hearing and detention review is expected to be $1,100 and $800, respectively for 2006-2007. These average costs are slightly higher than the 2004-2005 actual average costs, due mainly to increases in salaries and a higher share of fixed costs per unit caused by a slight drop in the projected

The costs per admissibility hearing and detention review include decision-making costs and costs of related activities such as case preparation, scheduling of hearings, legal services, foreign-language interpretation, technological support, translation services, transcribing services, as well as administrative support but it excludes extraordinary items such as the ICMS project development costs. It also includes a share of the costs from the Corporate Management and Services program activity, which is allocated to the three decision-making program activities, based on expenditure trends.

Key Plans and Expected Results

To achieve its forecasts for fiscal year 2006-2007, and in line with the strategic priorities set out for the organization, the admissibility hearings and detention reviews program activity will undertake the planned activities with the expected results outlined in the following table.

Program Activity: Admissibility Hearings
and Detention Reviews
Plans and Expected Results for 2006-2007

Strategic Outcome: Provide Canadians with well-reasoned, timely decisions on immigration and refugee matters efficiently, fairly and in accordance with the law.
STRATEGIC PRIORITY Integrate common procedural, administrative and adjudicative activities in all Divisions to further promote quality, consistency and efficiency measures
Plans	Expected Results
Distinct Elements and Tribunal Values
Develop harmonized and informal processes to help meet the legislative timeframes and operational requirements to achieve finalization of all cases referred by CBSA and CIC	Improved efficiency and consistency in case management both at the national and regional levels by standardizing processes and adopting a cross-regional consistency approach
Building on the best business practices of IRB, the Immigration Division will introduce and implement innovative approaches to its processes	Modernized processes resulting in improved efficiency and productivity
Further develop, maintain and promote tools that will support quality, consistency and efficiency in decision-making in the areas of ethics, communications, quality control, and service delivery	Deal with cases simply, quickly and efficiently in accordance with legislative requirements; movement to core administrative tribunal values and processes: Close to 100% of all conclusions meet the legal requirement for detention reviews A more streamlined process for admissibility hearings Increased sharing of best practices among regions and decision-makers A less court-like behaviour Increased visibility of the Division internally and externally on the international levels
Continue to monitor retirements in order to identify staffing requirements	More flexibility on resource allocations The Division is prepared to integrate new decision-makers over the next 2 years resulting in seamless succession and fully qualified members and associated knowledge base available on a continuous basis Better identification of emerging issues in order to improve the planning of impacts on the operations and the development of a more focused training plan
Deliver focused and quality training on an ongoing basis in order to meet ID members' specific training needs and address emerging issues (including terrorism, organized crime, etc.)	Focused training developed and delivered on terrorism and organized crime
Continue to implement learning culture and develop training tools	Expertise maintained on key recurrent and thematic issues as evidenced by continued coverage and depth of knowledge within the Division (no knowledge gaps across the Division)

Linkage with Government Agenda
Responsiveness	Innovation	Accountability

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Immigration Appeal Program Activity

The Immigration Appeal Division delivers the IRB's immigration appeal program activity. It hears immigration appeals from Canadian citizens and permanent residents whose applications to sponsor close family members to Canada have been refused. Other key functions include hearing appeals from permanent residents, foreign nationals with a permanent resident visa, and protected persons who have been ordered removed from Canada, as well as from permanent residents outside of Canada who have not fulfilled their residency obligation.

Financial Resources ($ millions)
2006-2007	2007-2008	2008-2009
15.2	12.9	12.9

Human Resources (Full-time Equivalents)
2006-2007	2007-2008	2008-2009
135	120	120

The difference in the financial resources and FTE figures for 2006-2007 and 2007-2008 is due mainly to the end of the temporary funding of $1.9 million to address short-term pressures to reduce the inventory of sponsored family-class applications in the Immigration Appeal program activity.

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2006-2007 Outlook

The Immigration Appeal Division expects the high level of new appeals to continue. In fiscal year 2006-2007, the Division anticipates 6,500 appeals will be filed, which is a volume consistent with the number of appeals received over the last two years.

Approximately 6,500 appeals are expected to be finalized, representing an increase of 18 percent over the previous fiscal year. However, the level of finalizations is contingent on the level of resources, as well as on the effective implementation of major changes in the way that appeals are processed. Some of these changes require cooperation or additional resources from CBSA and CIC. The organization will continue to pursue effective internal communications and promote public service values and ethics.

In 2006-2007, the IAD will work on a fundamental transformation of the way it conducts its work through the IAD Innovation initiative, which was launched in September 2005. Also, the complement of IAD members and staff is expected to increase in the next fiscal year as a means of increasing the capacity of the Division.

Based on 6,500 appeal finalizations, the average cost per appeal is expected to be $2,100 for 2006-2007. The average cost per appeal is slightly higher than the 2004-2005 actual average cost per appeal due mainly to increases in salaries.

The cost per appeal includes the decision-making costs and costs of related activities such as case preparation, scheduling of hearings, legal services, technological support, translation services, as well as administrative support but it excludes extraordinary items such as the ICMS project development costs. It also includes a share of the costs from the Corporate Management and Services program activity, which is allocated to the three decision-making program activities, based on expenditure trends.

Based on the Division's consistently high productivity and the expected increase in capacity in 2006-2007, the Division will be in a strong position to match the expected intake, preventing a further increase in pending inventory.

Despite sustained high productivity through case management innovations, the average processing time is expected to be 10 months for fiscal year 2006-2007. Reducing the average processing time is contingent on maintaining an adequate level of resources and effective implementation of the major changes in the IAD Innovative initiative.

Key Plans and Expected Results

To achieve its forecasts for fiscal year 2006-2007, and in line with the strategic priorities set out for the organization, the immigration appeal program activity will undertake the planned activities with the expected results outlined in the following table.

Program Activity: Immigration Appeal
Plans and Expected Results for 2006-2007

Strategic Outcome: Provide Canadians with well-reasoned, timely decisions on immigration and refugee matters efficiently, fairly and in accordance with the law.
STRATEGIC PRIORITY Integrate common procedural, administrative and adjudicative activities in all Divisions to further promote quality, consistency and efficiency measures
Plans	Expected Results
Distinct Elements and Tribunal Values
Review Alternative Dispute Resolution (ADR) practices and procedures, and case selection	Completion of short-term action items in the IAD Innovation action plan
Expand and improve early review process	Timely progress in medium-term and long-term action items
Facilitate the process of making appointments and re-appointments in a timely way	Reduction in lost productivity, less adjournments
Develop innovative approach to obtain more information from both parties earlier, to support earlier screening, streaming and resolution	New ADR case selection criteria developed Maintain at least 50% resolution rate More appeals resolved through early review
Members take more proactive control of the hearing process – more limits on issues, questioning, evidence, submissions (relevance), more interventions by members	Developed standard hearing process that allows more intervention by members to enable them to exercise more discretion in conduct of hearings
Analyze nature and scope of adjournments and postponements; and develop action plans to reduce the postponement/adjournment rate	Adjudicative tools to encourage or compel parties to provide earlier and fuller disclosure; changes in forms, including an expanded notice of appeal Reduction in postponement rate (e.g. reduce from 35% to 25% postponements per completion) and reduction in adjournment rate (e.g. reduce from 14% to 10% postponements per completion)
Review ADR in-house training	Delivery of in-house ADR training
Develop customized training plan for new members (if necessary)	Revised new member training program and learning plan with a focus on newer member needs

Linkage with Government Agenda
Responsiveness	Innovation	Accountability

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Corporate Management and Services Program Activity

The corporate management and services program activity provides important infrastructure to support the IRB's decision-making function as an effective, accountable, efficient operation, and to implement government-wide management and improvement initiatives. The IRB continues to make significant commitments to provide decision-makers with up-to-date and innovative management practices, infrastructure tools and resources in order to sustain a high volume of quality decisions at the Board.

The corporate management and services program activity at the IRB encompasses executive offices, planning, finance, administration, communications, human resources, legal services, information management and information technology.

As noted in Section 1, the planned spending and FTEs for corporate management and services are proportionally allocated to the three decision-making program activities.

Key Plans and Expected Results

In line with the strategic priorities set out for the organization, the corporate management and services program activity will undertake the planned activities with the expected results outlined in the following table.

Program Activity: Corporate Management and Services
Plans and Expected Results for 2006-2007

Strategic Outcome: Provide Canadians with well-reasoned, timely decisions on immigration and refugee matters efficiently, fairly and in accordance with the law.
STRATEGIC PRIORITY Improve case management processes through the successful implementation of ICMS
Plans	Expected Results
Corporate Management and Services
Provide on-going maintenance of ICMS applications once implemented	The ICMS application (Release 4) is functional and is supported as an integrated business management system The Information System (IS) Directorate acquires the capacity to provide effective ongoing maintenance to the ICMS
Transition ICMS IT resources, tools, procedures and infrastructure to the IS Directorate	Effective and timely communications advice, plans and products to keep staff and stakeholders informed of ICMS progress
Implement a change management strategy with respect to the ICMS project that includes comprehensive communications and training plans	Timely delivery of ICMS training and effective communications, enabling the organization to optimize the successful implementation of the new system Obstacles and barriers to the successful implementation of ICMS are identified and addressed
STRATEGIC PRIORITY Implement a horizontal and fully integrated management plan that reflects the IRB's reality
Plans	Expected Results
Corporate Planning and Accountability
Update the Risk Management Plan to reflect strategic priorities, the Government Management Agenda and implement the Legal Risk Management System	Risk management continues to be part of planning and management activities Appropriate legal risk management measures are developed
Provide effective financial planning and budgeting using ABB, A-Base Reviews and other tools to support resourcing process within IRB	Resource allocation decisions reflect workload trends and priorities throughout the IRB Planning and budgeting process meet Expenditure Management Cycle of the Government
Develop an HR Planning tool to facilitate the integration of HR Planning in business planning	HR planning is initiated and integrated with business planning
Audit and Evaluation
Update the 3-year action plan to bring the IRB into compliance with the new internal audit policy	IRB complies with the new Audit Policy Suite
People Management
Implement identified priorities of the People Management Strategy, including the implementation of an integrated learning and professional development program for all IRB personnel	Implementation of identified priorities of the People Management Strategy, including the implementation of an integrated learning and professional development program for all IRB personnel
Implement HR Modernization measures and objectives including those related to compliance with the new PSLRA and PSMA	The IRB demonstrates through concrete actions its engagement towards HR Modernization and its most important resources, its people
Receive and analyze PSES results, and develop an action plan to address the results	The IRB demonstrates its commitment to its employees by responding to employee feedback
Revise the GIC recruitment process to ensure further alignment with the Member Competency Profile, including revisions to the screening test and interview guide for GIC recruitment	New competency-based regime is further strengthened and enhanced, based on the first two years of implementation
Examine the possibility of the development of a unique classification standard for the IRB	Move further in negotiations with central agencies with respect to a unique classification standard for the IRB
Financial Management
Implement formal management monitoring function	Financial management functions properly monitored
Security
Implement a comprehensive security program that includes a Business Continuity Plan updated annually and the implementation of the Management Information Technology Security (MITS) Action Plan	The IRB has a comprehensive security program that supports its business objectives by safeguarding employees and assets and assuring the continued delivery of services Complies with Government Security Policy
Procurement and Asset Management
Implement a comprehensive procurement and asset management program	The IRB procurement and asset management program meets the business needs of the IRB while respecting the principles and guidelines of the PWGSC "Way Forward"
Development of appropriate contracting regimes and controls on interpreter file	New contracting regime in place
Information Management
Implement the relevant elements of the Information Management (IM) action plan following the IM Capacity exercise	IRB is well positioned to make significant progress in the area of Information Management
Using Infonet, provide all employees with authoritative, comprehensive and well-structured information in support of their respective operational goals and obligations	Employees are well informed and provided with an effective work tool
Information Systems
Support IRB's activities with the appropriate infrastructure, desktop and network environment	Desktop and network environment upgraded with Windows XP and Office 2003 The IRB technology infrastructure post-ICMS is implemented and the quality assurance and architecture functions for all aspects of IRB are in place
Support all Systems users (external and internal) effectively and in accordance with service standards	Enhanced National Call Centre support services to IRB internal and external employees through the implementation of quality, consistency and efficiency measures while sustaining high volumes of resolutions and reduced processing times

Linkage with Government Agenda
Responsiveness	Innovation	Accountability

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