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Message from the Minister

The Honourable Vic Toews, P.C., Q.C., M.P.
Minister of Public Safety

As Minister of Public Safety, I am pleased to present to Parliament the Canada Border Services Agency's Report on Plans and Priorities for 2010-11.

As one of the world's most integrated border services administrations, the CBSA is engaged in an array of programs vital to Canada's social and economic well-being. These include customs, national security, enforcement of immigration and refugee policy, food, plant and animal inspection at the border, and the collection of import duties and other border levies. Amidst a challenging border risk environment and an economic recovery that depends on timely cross-border commerce, our success will rest on the excellence with which we manage and deliver border services within existing resource allocations.

To support service excellence, this plan focuses on three strategic priorities: targeting high risks as early as possible in the travel, immigration and supply chain continuums; offering efficient border processes for legitimate people and goods; and improving the consistency of business delivery and service standards through resource allocations that are based on a solid understanding of program priorities, expected results and shifting states of risk. Therefore, this plan gives priority to initiatives that are intelligence-driven, risk-based, and support both management decision-making and parliamentary oversight.

While we continue to deploy sophisticated technology to pursue our strategies, the skill of our people matters more than ever before. Professional, courteous and vigilant border service sends an appropriate message both to those we wish to welcome and to those we wish to deter.

___________________________________
The Honourable Vic Toews, P.C., Q.C., M.P.
Minister of Public Safety

Section 1: 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:

• administering legislation (over 90 acts) that governs the admissibility of people, goods and plants and animals into and out of Canada;
• detaining those people who may pose a threat to Canada;
• identifying and 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, including the enforcement of trade remedies that help protect Canadian industry from the injurious effects of dumped and subsidized imported goods;
• administering a fair and impartial redress mechanism; and
• collecting applicable duties and taxes on imported goods.

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

Operating Environment

Since its inception in 2003, the CBSA has demonstrated its ability to deliver on both the security and facilitation aspects of its mandate. Over the past five years, border security has improved through the increased use of advance information, automated risk assessment systems and partnerships with key international border management partners. Border processes are also becoming more efficient as membership grows in trusted traveller and trader programs, and the Agency's investment in its people, systems and technology contributes to better screening processes. This means that the Agency is better positioned to focus on people and goods of high or unknown risk, while enabling low-risk people and goods to cross the border with minimal delay and intervention.

As economies around the world begin to recover in 2010–11 from the economic downturn, it is anticipated that the volume of travellers and shipments will increase from the over 90 million people and 15 million shipments processed in 2009–10. It is also expected that over the next decade Canada will continue to be a destination of choice for legitimate travellers and goods, as well as a target for people and shipments that pose a risk to Canada and its population. While handling increased volumes, the Agency will also have to manage a constantly changing threat environment, as illustrated by the recent attempted bombing on December 25, 2009 of a U.S. airliner bound for Detroit, Michigan from Amsterdam, The Netherlands. This situation underscores the importance of close interaction and cooperation with key border management partners, including the Royal Canadian Mounted Police and United States Customs and Border Protection, so that scarce resources can be coordinated and directed to deal with emerging threats and the expected increase in the volume of travellers and shipments.

To a large extent, the movement of people and goods across the border is driven by factors beyond the CBSA's control, including economic and social factors, both in Canada and globally. This makes it difficult for the Agency to predict with certainty the type and volume of its workload from year to year. For example, the international financial crisis that was driven by the failure of the United States housing market resulted in an unprecedented decrease in the volume of shipments entering Canada in 2009–10. Coincident with the recent financial crisis, the Canadian dollar continues to be uncharacteristically strong against the U.S. dollar, which has led to spikes throughout 2009–10 in cross-border shopping, sometimes resulting in increased border wait times at ports of entry.

In addition to variable external factors, border management priorities are also evolving. While the collection of customs duties and taxes continues to be an important function at the ports of entry, the CBSA must also address significant concerns related to border security, irregular migration and the health of people entering Canada. These important public policy concerns require a border management regime that effectively addresses both security concerns and facilitation objectives. Without the appropriate policy considerations, maintaining a secure border clearance process may have a detrimental impact on efforts to minimize the time required and burden imposed on travellers and goods moving across the border — key considerations to maintaining Canada's economic competitiveness and prosperity.

The CBSA's ongoing ability to leverage its knowledge of the traveller and trader continuum and work effectively with international partners in border management is integral to an effective border management regime. By building on its previous achievements in improving the processing of legitimate people and goods, the Agency will develop a comprehensive trusted trader strategy; develop a model to support the optimal allocation of border management resources; establish a comprehensive inventory of service standards; develop a quality assurance program to monitor the issuance of temporary resident permits; evaluate in 2010–11 an automated option to clear Canadian citizens and permanent residents returning to Canada at the Vancouver International Airport; and advance the implementation of a single government reporting system for shipments coming into Canada.

Risk Management

Within a dynamic operating environment, it is a challenge to consistently deliver on both the enforcement and facilitation aspects of the Agency's mandate in processing the high volume of transactions related to travellers and commercial goods resulting from the administration of border related legislation. The Agency must ensure that the costs and delays imposed by clearance processes on legitimate people and shipments crossing the border are minimized while at the same time identifying and interdicting diverse security threats as early as possible in the travel and supply chain continuum. This is especially important within North America, where the economies of Canada and the United States rely on rapid, yet secure border clearance processes. To effectively deliver on its mandate, the CBSA relies on a risk-based approach to border management, whereby the Agency focuses its efforts on people and goods that are considered high risk while facilitating the border clearance of low-risk travellers and goods.

In 2010–11, the CBSA will continue to strengthen the effectiveness of its risk-based, intelligence-driven approach to border management by implementing the next phase of eManifest, a major crown project, under which highway and rail carriers will begin to electronically transmit cargo and conveyance data to the Agency; strengthening its risk targeting by improving the delivery and application of targeting activities and information technology systems; and implementing a national intelligence priority-setting cycle to better identify gaps in program knowledge, develop intelligence requirements and more effectively task regional operations.

Managing Operational Risk

The CBSA has put in place mechanisms to identify the most significant threats to Canada's border security, including a border threat and risk assessment process that evaluates and rates contraband and other prohibited or controlled goods, and border threats related to immigration and inspection of food, plants and animals. Based on analysis undertaken within the Government of Canada, as well as international border management organizations, the most significant threats facing border security today are:

• terrorism (both terrorists and terrorism-related material);
• firearms, drugs, child pornography and other contraband;
• food and product safety;
• the health of persons entering Canada (e.g. freedom from pandemic disease);
• the proliferation of dual-use goods (equipment, technology or any type of good that may be used in connection with programs of weapons of mass destruction); and
• illegal migrants (e.g. criminals, including war criminals, and economically-driven migrants).

These threats are expected to be the principal areas of concern for border integrity for the next five to 10 years. To prepare for and respond to these threats and others, the Agency began developing a Border Risk Management Plan in 2009–10 that aims to optimize the CBSA's capacity to identify, interdict and mitigate threats to border security. The Plan translates threats into program delivery priorities and operational plans; identifies program and operational gaps in high-risk areas; supports risk-based resource allocation; and identifies reporting mechanisms for performance to ensure results are incorporated into future threat and risk assessments. It also responds to recommendations made in the 2007 October Report of the Auditor General of Canada, Chapter 5, "Keeping the Border Open and Secure". The Plan will be implemented in 2010–11.

Managing Corporate Risk

A sound corporate management platform with appropriate controls is essential to managing the risks associated with the successful delivery of programs. In 2003, the CBSA was formed by bringing together sectors of three legacy organizations responsible for the delivery of programs related to immigration, customs and food inspection. At that time, the governance and accountability structure of the Agency was based on a model of shared and overlapping accountabilities to protect the integrity of the programs for which the CBSA is responsible. Six years later, with a thorough understanding of the linkages between the various legacy functions and what is required to maintain border integrity, the Agency's existing management model was becoming an impediment to program improvement. In response, in 2009–10, the CBSA embarked on an ambitious agenda to improve how it manages its business. Key components of the agenda for change include enhanced management controls based on more rigorous processes, clear priorities, performance measurement, and prudent fiscal and resource management. This change agenda will be achieved by implementing a new organizational structure and functional management model.

The first phase began in 2009–10 with the development of a new organizational structure. To be implemented April 1, 2010, the new structure will improve program accountability and clearly reflect the dynamics of the Agency's business lines and how they are delivered. Moving away from the existing shared accountability model, the new model will clearly articulate unique responsibilities as they relate to program management and program delivery.

The CBSA will also begin to put in place other elements of its agenda for change, including a new functional management model. Under the management model, program management and resource allocations will be based on strong relationships between Headquarters and the regions, the clear articulation of program guidance, priorities, risks, targets and measures and ongoing monitoring of the Agency's performance to ensure that resources are allocated based on results. It is expected to take one to three years to fully implement the new functional management model.

In 2010–11, the Agency will begin to realign its budgets to the new organizational structure and begin to set performance expectations and standards for all of its programs and services. Additional adjustments will be made to implement the results of the Agency's 2009 Strategic Review. This preparatory work will allow program management areas in Headquarters to begin setting expectations and allocating budgets to those responsible for program delivery in 2010–11, with full implementation expected in the following one to two years. Performance updates will take place throughout the year, and resources will be allocated depending on performance, risk and priority. This will ensure, on a national basis, disciplined performance and resource management, based on clear expectations and will result in a better managed, more focused and effective Agency — one with a clearer sense of direction and clearer lines of authority, responsibility and control.

Strategic Outcomes and Program Activity Architecture

The CBSA's two strategic outcomes and Program Activity Architecture for 2010–11 are shown below.

2010–11 Program Activity Architecture

Strategic Outcomes	Canada's population is safe and secure from border-related risks.		Legitimate travellers and goods move freely and lawfully across the border.
Strategic Outcome Description	In providing integrated border services, the CBSA prevents the movement of unlawful people and goods across the border.		In providing integrated border services, the CBSA facilitates the flow of legitimate people and goods in compliance with border legislation and regulations.
Program Activity	Risk Assessment	Enforcement	Facilitated Border	Conventional Border	Trade	Recourse
Program Sub-activity	Screening Abroad	Port of Entry Enforcement - People	Facilitated - People	Conventional - People	Anti-dumping and Countervailing	Trade Disputes
	Targeting -People	Port of Entry Enforcement - Commercial	Facilitated - Commercial	Conventional - Commercial	Tariff, Origin and Valuation	Adjudications
	Targeting -Commercial	Inland Enforcement
		Criminal Investigations

For 2010–11, the CBSA made minor amendments to its 2009–10 Program Activity Architecture. These included the addition of new program sub-activities, as well as revised program activity and program sub-activity descriptions. The changes strengthen the Agency's Program Activity Architecture by providing a more complete inventory of the CBSA's programs and further clarity with respect to the logical relationship between the Agency's programs and its strategic outcomes.

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)

2010–11	2011–12	2012–13
1,629,707	1,793,738	1,748,680

Total Human Resources (Full-time equivalents)

2010–11	2011–12	2012–13
13,607	13,741	13,841

Planned spending changes from 2010–11 to 2011–12

The planned spending increase of $164.0 million is a result of adjustments made to approved expenditures, primarily to specific multi-year projects.

The most significant increase stems from the $130.0 million cash flow adjustment consistent with the 2008 Economic and Fiscal Statement actions to improve spending projections. Additional increases include $24.7 million to improve the CBSA's program integrity (A-Base Review); $8.1 million for eManifest; $6.0 million for the upgrade of three ports of entry in British Columbia(Kingsgate, Pacific Highway and Huntingdon) and one in Ontario (Prescott); $8.6 million for the arming of CBSA officers and efforts to address work-alone situations; $3.0 million for the ratification of various collective agreements, including the Frontière/Border group; and $0.4 million for other items.

The difference in planned spending between 2010–11 and 2011–12 also reflects decreased funding in certain areas, including $7.5 million for the provision of 17 new housing units at three remote ports of entry in the Yukon Territory and British Columbia; $3.7 million for the CBSA's contribution to the Government of Canada's procurement reform initiative; $3.2 million for enhancing Canada's anti-money laundering and anti-terrorist financing activities; $1.3 million to upgrade the Agency's Corporate Administrative System as part of a government-wide effort to improve financial decision making; and $1.1 million for the G-8 Summit.

Planned spending changes from 2011–12 to 2012–13

The planned spending decrease of $45.1 million is a result of adjustments made to approved expenditures, primarily to specific multi-year projects. The change reflects a $19.8 million increase in spending to improve the CBSA's program integrity (A-Base Review) and decreases related to specific projects, including a $36.0 million decrease related to the upgrade of three ports of entry in British Columbia (Kingsgate, Pacific Highway and Huntingdon) and one in Ontario (Prescott); and a $14.5 million decrease related to eManifest. Other decreases include a $12.7 million decrease related to the arming of CBSA officers and efforts to address work-alone situations; a $1.1 million transfer from the Department of National Defence to support the public security initiatives related to the funding for the Marine Security Operations Centres; and $0.6 million related to other items.

Planning Summary Table

At present, the CBSA is developing a new Program Activity Architecture and Performance Measurement Framework for 2011–12. As part of this exercise, performance indicators and targets are being developed to support the new framework, and complete performance information will be included in the Agency's 2011–12 Report on Plans and Priorities. In the interim, the CBSA will continue to report on available performance information.

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

Performance Indicators: The percentage of improperly documented people seeking to fly to Canada that were intercepted. The total number of people removed. The percentage of removals involving high-priority individuals (criminality).
Program Activity	Forecast Spending 2009-10 ($ thousands)	Planned Spending ($ thousands)			Alignment to Government of Canada Outcomes
		2010–11	2011–12	2012–13
1.1 Risk Assessment	229,154	123,199	197,890	189,266	A strong and mutually beneficial North American partnership
1.2 Enforcement	394,936	313,013	352,560	364,645	Safe and secure communities
Total Planned Spending	624,090	436,212	550,450	553,911

The increase in forecast spending is due mainly to the carry-forward into 2009–10 of significant investments in arming and eManifest that were originally planned for earlier years and funding related to the ratification of various collective agreements.

Strategic Outcome 2: Legitimate travellers and goods move freely and lawfully across the border.

Performance Indicators: Number of people processed. Number of shipments processed.
Program Activity	Forecast Spending 2009–10 ($ thousands)	Planned Spending ($ thousands)			Alignment to Government of Canada Outcomes
		2010–11	2011–12	2012–13
2.1 Facilitated Border	46,599	30,363	46,972	49,933	Strong economic growth
2.2 Conventional Border	595,242	531,342	542,810	541,930	Strong economic growth
2.3 Trade	54,673	43,995	47,085	46,384	A fair and secure marketplace
2.4 Recourse	9,446	9,011	8,579	8,579	A fair and secure marketplace
Total Planned Spending	705,960	614,711	645,446	646,826

The increase in forecast spending is due mainly to the carry-forward into 2009–10 of significant investments in arming and eManifest that were originally planned for earlier years and funding related to the ratification of various collective agreements.

Internal Services

Program Activity	Forecast Spending 2009–10 ($ thousands)	Planned Spending ($ thousands)
		2010–11	2011–12	2012–13
Internal Services	451,908	578,784	597,842	547,943
Total Planned Spending	451,908	578,784	597,842	547,943

The increase in forecast spending is due mainly to the carry-forward into 2009–10 of significant investments in arming and eManifest that were originally planned for earlier years and funding related to the ratification of various collective agreements. The increase in planned spending from 2009–10 to 2010–11 and future years is due mainly to the realignment of budgets between program activities in 2009–10. Budgets for the CBSA's information technology services and real property are included under this program activity.

The figure below shows the allocation of the CBSA's planned spending by program activity for 2010–11.

Expenditure Profile

The CBSA plans to spend $1,630 million in 2010–11 to achieve the expected results of its program activities and contribute to its strategic outcomes. The figure below shows the Agency's spending trend from 2006–07 to 2012–13.

The CBSA's sunset program spending is approximately $300,000 for 2010–11, 2011–12 and 2012–13, respectively.

Since its creation in 2003, the CBSA has been managing substantial operational pressures. While spending increased steadily between 2006–07 and 2009–10, the increase resulted mainly from project-specific funding related to Government of Canada priorities and was not available to address operational and corporate pressures. 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 (A-Base Review) to the areas of greatest risk and through internal reallocation to high-priority activities.

The decrease from 2009–10 to 2010–11 is due mainly to the cash flow adjustment resulting from the 2008 Economic and Fiscal Statement actions to improve spending projections.

Canada's Economic Action Plan

Budget 2009 identified $80.0 million for the CBSA for accelerated infrastructure projects, of which $70.0 million has been allocated to the expansion and modernization of four border facilities. Expected to be completed by 2011–12, these infrastructure improvements will support the Agency by improving the commercial examination capacity at the port of entry in Prescott, Ontario, as well as at the Kingsgate, Pacific Highway and Huntingdon ports of entry (all in British Columbia). The remaining $10.0 million has been allocated to the construction of additional housing in the remote ports of entry in Beaver Creek and Little Gold in the Yukon Territory and in Pleasant Camp, British Columbia. To be completed by 2011–12, the residential housing will help the CBSA to continue delivering the Doubling-up Initiative which aims to ensure that CBSA officers across Canada do not work alone, even in remote areas. See Internal Services in Section II for more detailed information.

Budget 2009 also identified $2.9 million for the CBSA in 2009–10 to support the implementation of Transport Canada's security program for air cargo departing from Canadian airports. In its supporting role, the CBSA is carrying out database queries on applicants to Transport Canada's secure supply chain program. The resources allocated through Budget 2009 are being used to help implement specific components of the pilot project phases.

Voted and Statutory Items

($ thousands)

Vote No. or Statutory Item (S)	Truncated Vote or Statutory Wording	2009–10	2010–11
		Main Estimates	Main Estimates
10	Operating expenditures	1,279,813	1,360,708
15	Capital expenditures	56,202	94,980
(S)	Contributions to employee benefit plans	147,014	163,702
	Total	1,483,029	1,619,390

The increase of $136.4 million in net funding for the CBSA from 2009–10 to 2010–11 is related to the approved variation of resources from year to year. Increases include $104.0 million for the ratification of various collective agreements, including the Frontière/Border group; $31.7 million to improve the CBSA's program integrity; $30.0 million to modernize three ports of entry in British Columbia (Kingsgate, Pacific Highway and Huntingdon) and one in Ontario (Prescott), which supports the economic recovery plan of the government; $7.6 million for the arming of CBSA officers and addressing work-alone situations; and a $1.1 million transfer from the Department of National Defence to support the public security initiatives related to the funding for the Marine Security Operations Centres.

The above increases are offset by decreases related to specific projects. These include a $12.0 million decrease to enhance highway and rail cargo security and expedite processing at the border by developing and implementing eManifest; a $10.6 million decrease for the coordination and management of integrated border services that support the 2010 Olympic and Paralympic Winter Games in Vancouver and Whistler, British Columbia; and a $6.7 million re-profile adjustment related to the construction of the training facility at Rigaud, Quebec. Further decreases include $4.6 million related to the sunset of the funding 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; a $3.1 million contribution to the Government of Canada's procurement reform initiative; and $1.0 million related to the sunset of the short-term immigration pressures funding.

Contribution of Priorities to Strategic Outcomes

Operational Priorities	Type	Link to Strategic Outcome	Key Plans to Meet the Priority
Improve the capacity to target high risks as early as possible in the travel and supply chain continuum. Description: Increase and improve the information and analysis available to the Agency about people and goods before they arrive at a port of entry to prioritize examinations at the border. This will enable in-depth examinations of potential high-risk people and goods while allowing low-risk people and goods to clear the border with minimal intervention.	Previously committed to	Strategic Outcome 1	Implement the next phase of eManifest Strengthen risk targeting by improving the design, delivery and application of targeting activities Strengthen the Agency's risk analysis systems for people and goods Implement a national intelligence priority-setting cycle and develop a performance measurement program for the CBSA's Intelligence program Implement the Border Risk Management Plan
Improve the efficiency of border processes for legitimate people and goods. Description: Strengthen the Agency's examination processes by introducing new technology and infrastructure to separate known low-risk people and goods from those deemed to be high risk and move low-risk people and goods through the ports of entry with minimal intervention. Develop a performance measurement-based system for feedback to drive performance improvements and informed decision making in the field and at Headquarters.	Previously committed to	Strategic Outcome 2	Develop a comprehensive trusted trader strategy Develop a resource modelling framework Strengthen the CBSA's Service Strategy Develop a quality assurance program to monitor the issuance of temporary resident permits Evaluate the Automated Border Clearance pilot project Advance the implementation of the Single Window Initiative
Improve management tools, corporate procedures and organization. Description: Improve the Agency's performance by undertaking initiatives to strengthen performance measurement, decision making and resource allocation and reallocation. Ensure that the Agency has the right complement of staff with the right skills.	Ongoing	Strategic Outcomes 1 and 2	Implement the Agency's change agenda Implement the Agency's Human Resources Management Plan

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