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The CBSA has two strategic outcomes under its 2009-10 Program Activity Architecture. The first strategic outcome and two supporting program activities focus on the Agency's mandate and responsibility to support Canada's national security priorities. The second strategic outcome and four supporting program activities focus on the Agency's mandate and responsibility to facilitate the movement of legitimate people and goods, including food, plants and animals, across the border.
In 2009-10, the CBSA developed a new, more robust Program Activity Architecture and Performance Measurement Framework for 2011-12. They provide an accurate and exhaustive inventory of the Agency's programs, as well as a complete Performance Measurement Framework with new performance indicators and targets. In developing the 2011-12 Program Activity Architecture and Performance Measurement Framework, the Agency obtained approval from the Treasury Board of Canada Secretariat to delay major changes and improvements to its 2009-10 Program Activity Architecture and Performance Measurement Framework, with the result that performance targets are unavailable for 2009-10. In the absence of this information, the Agency is reporting on available performance indicators.
Strategic Outcome: | Canada's population is safe and secure from border-related risks. | |
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Description: | In providing integrated border services, the CBSA prevents the movement of unlawful people and goods across the border. | |
Supporting Program Activities: |
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Performance Indicators |
2009-10 Performance |
2008-09 Performance |
Percentage of people examinations that resulted in an enforcement action.* |
1.9% |
2.2% |
Percentage of shipment examinations that resulted in an enforcement action. | 11.8% | 12.2% |
*An enforcement action is the act of compelling adherence to the law via the levying of sanctions (criminal and administrative), seizure of property and detention of culpable persons.
The Risk Assessment program activity “pushes the border out” by seeking to identify high-risk people and goods as early as possible before their arrival at Canada's border. This program activity assesses information from a wide range of sources to support decisions on visa applicants at overseas missions, and to screen irregular migrants and cargo at ports of embarkation and, where possible, prevent their departure. The CBSA also uses advance passenger and cargo information from carriers, importers, exporters and other partners to identify high-risk people and goods before they arrive.
2009-10 Financial Resources ($ thousands) |
2009-10 Human Resources (full-time equivalents) |
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Planned Spending |
Total Authorities |
Actual Spending |
Planned | Actual | Difference |
163,916 | 245,828 | 131,930 | 1,332 | 1,234 | 98 |
Expected Result |
Performance Indicators |
2009-10 Performance | 2008-09 Performance |
---|---|---|---|
High-risk people and shipments are not allowed to enter Canada. | Percentage of screened people who may pose a threat who are intercepted before their arrival in Canada. | 75%1 | 66% |
Percentage of intelligence-led seizures.2 | 6.5% | 8.4% |
1 The percentage increase is primarily due to changes in visa requirements in 2009.
2 Seizures can be made as a result of an intelligence indicator or lookout, or as a result of random inspections or selective examinations.
The purpose of the Risk Assessment program activity is to prevent high-risk people and goods from entering Canada. Throughout the travel and supply chain continuum, the CBSA uses automated risk-analysis systems, as well as officers stationed in foreign countries, to assess the risks presented by people or goods destined for Canada. To make the most effective use of its limited resources, the CBSA assesses as much as possible the potential risk posed by travellers and goods before they arrive in Canada. This pre-arrival identification of high-risk people and goods benefits the travelling public and the international trade and travel industries by enabling the Agency to focus its examination and interdiction activities on high-risk people and goods, while enabling low-risk, legitimate travellers and commercial goods to enter Canada with minimal delay and intervention.
The CBSA achieved the following progress against the commitments made in its 2009-10 Report on Plans and Priorities.
The CBSA's intelligence function collects, analyzes, distributes and shares data on threats to national security, including information on terrorism, weapons proliferation, war crimes, organized crime, smuggling, fraud and irregular migration. In 2009-10, the Agency undertook several initiatives to improve the quality and use of intelligence products. It began developing standardized reporting protocols to improve intelligence analyses and reviewed options to improve the CBSA's intelligence analyst capacity. In addition, the Agency is partnering with the Department of National Defence to jointly develop customized intelligence training at a considerable cost and time savings. Although the CBSA made a commitment in 2009-10 to establish a centralized distribution system to share intelligence products with internal and external partners in border management, the Agency was unable to fulfill this commitment due to competing priorities.
The CBSA uses targeting as a means to identify, and focus inspection activities on, high-risk persons, importers, exporters, carriers and conveyances. In 2009-10, the CBSA's efforts to enhance targeting centred on improving management practices and initiating a targeting project for containerized shipping.
As recommended in the Agency's Pre-Arrival Targeting Evaluation Study, the CBSA improved the management of targeting by consolidating and centralizing targeting activities for all people and goods entering Canada. This will ensure national consistency and improve effectiveness, as well as facilitate improvements in performance measurement and the training of intelligence analysts. To address a recommendation made in the 2007 October Report of the Auditor General of Canada, Chapter 5, “Keeping the Border Open and Secure,” the Agency also launched a comprehensive targeting training program in November 2009.
The CBSA also initiated the Bay Plan project that will enhance the Agency's ability to identify risk within the marine trade supply chain. Under this initiative, marine carriers will send an electronic message to the CBSA, in advance of a vessel's arrival, to identify the position and characteristics of all containers on the vessel. With this advance information, CBSA officers can target shipments and analyze discrepancies to more accurately assess the risk posed by each container. In 2009-10, the Agency developed the capacity to receive Bay Plan electronic messages from marine carriers. Voluntary transmission of information from marine carriers will begin in fall 2010. Advance electronic reporting will become mandatory after the passage of new regulations.
The CBSA continually seeks ways to strengthen its capacity to obtain and share information with key domestic and international partners, which helps improve the effectiveness of risk assessments and prevent high-risk people and goods from entering Canada. In 2009-10, the Agency made the following progress:
The Agency's comprehensive intelligence and targeting programs are delivered nationally and internationally, which poses administrative management challenges. In 2009-10, the CBSA conducted a review of these critical programs and put in place performance standards. Monthly performance reports in all regions and in headquarters have been implemented, ensuring that standards are being applied consistently, domestically and internationally, to improve the effectiveness of these programs.
Other initiatives undertaken in 2009-10 to improve the Agency's capacity to identify high-risk people and goods before their arrival at Canada's border include the following:
The Enforcement program activity helps to ensure the safety and security of Canada's population by taking appropriate enforcement action against people and goods that are not compliant with border-related legislation and regulations. In addition, the CBSA investigates criminal offences under Canada's border-related legislation.
2009-10 Financial Resources ($ thousands) |
2009-10 Human Resources (full-time equivalents) |
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Planned Spending |
Total Authorities |
Actual Spending |
Planned | Actual | Difference |
328,998 | 398,664 | 215,108 | 2,018 | 1,882 | 136 |
Expected Result |
Performance Indicators |
2009-10 Performance | 2008-09 Performance |
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Non-compliant people and goods are not allowed to enter or stay in Canada. | Percentage of criminals removed from Canada versus total removals. | 12.6% | 13.8% |
Enforcement Activities | |||
Inadmissible people removed from Canada | 14,775 | 13,200 | |
Drug seizures | 11,580 | 11,571 | |
Value of currency seized ($ thousands) | 45,100 | 40,700 | |
Firearms seized | 460 | 509 | |
Prohibited weapons seized | 8,791 | 3,708 | |
Tobacco seizures | 3,343 | 2,932 | |
Soil, plants and plant products interceptions | 10,712 | 19,971 | |
Meat, meat products, animals, and animal products interceptions | 17,671 | 31,059 |
The Enforcement program activity protects the national security and public safety of Canadians by safeguarding the importation of goods, including food, plants and animals; enhancing Canada's reputation as a safe trading nation through increased focus on export security; and controlling the entry of people, particularly those involved in terrorism, organized crime, war crimes or crimes against humanity. This is achieved by interdicting contraband, people and goods who may pose a criminal and/or security threat. The Enforcement program activity also protects the integrity of Canada's immigration program by screening, monitoring, investigating, arresting, detaining and removing those persons in violation of the Immigration and Refugee Protection Act.
The CBSA achieved the following progress against the commitments made in its 2009-10 Report on Plans and Priorities.
A key responsibility of the CBSA is to detain and remove people who are inadmissible to Canada under the Immigration and Refugee Protection Act. In the 2008 May Report of the Auditor General of Canada, Chapter 7, “Detention and Removal of Individuals”, recommendations were made to the Agency that it should develop suitable policies and procedures for detentions and removals to ensure that risks, situations and individuals are treated in a consistent manner. Recommendations for improved data and level of analysis were suggested, which will in turn enable the Agency to better manage detentions and removals. In response, the CBSA took key actions in 2009-10, including:
The Agency will formalize arrangements with provinces in the Atlantic region, as well as with Saskatchewan and Manitoba, through letters of cooperation versus formal bilateral agreements due to the low number of detainees in these provincial detention facilities.
Other initiatives undertaken in 2009-10 to improve the Agency's enforcement activities include the following:
Strategic Outcome: | Legitimate travellers and goods move freely and lawfully across the border. | ||
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Description: | In providing integrated border services, the CBSA facilitates the flow of legitimate people and goods in compliance with border legislation and regulations. | ||
Supporting Program Activities: |
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Performance Information |
2009-10 Performance | 2008-09 Performance | Percent Change* |
Total number of people processed: | 85,890,895 | 91,018,820 | -5.6% |
Air | 22,629,552 | 23,429,399 | -3.4% |
Highway | 60,078,754 | 64,381,388 | -6.7% |
Marine | 2,930,290 | 2,952,421 | -0.8% |
Rail | 252,299 | 255,612 | -1.3% |
Total number of shipments released: | 11,859,347 | 12,570,794 | -5.7% |
Air | 2,812,311 | 3,015,197 | -6.7% |
Highway | 8,294,431 | 8,728,789 | -5.0% |
Marine | 428,124 | 463,242 | -7.6% |
Rail | 324,481 | 363,566 | -10.8% |
*The decreases are largely attributable to the global economic downturn.
The Facilitated Border program activity encompasses the administration and oversight of the program requirements, policies, regulations and standards necessary to expedite border transits of pre-approved, low-risk people and goods. Providing alternative ways of crossing the border reduces border congestion and wait times while managing risk. This contributes to a strong Canadian economy through the business and tourism sectors.
2009-10 Financial Resources ($ thousands) |
2009-10 Human Resources (full-time equivalents) |
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Planned Spending |
Total Authorities |
Actual Spending |
Planned | Actual | Difference |
41,053 | 44,333 | 33,539 | 429 | 435 | (6) |
Expected Results |
Performance Indicators |
2009-10 Performance | 2008-09 Performance |
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People known to be in compliance with applicable legislation enter Canada with minimal delay or no further processing. | Percentage of NEXUS* members who are examined as compared to the overall examination rate. | 2.4% as compared to 7.0% for non-members | N/A |
Percentage of CANPASS (Air)* members who are examined as compared to the overall examination rate. | 4.6% as compared to 7.0% for non-members | ||
Shipments known to be in compliance with applicable legislation enter Canada with minimal delay or no further processing. | Percentage of Customs Self Assessment shipments that are examined as compared to the overall examination rate. | 0.2% as compared to 1.7% for non-members | 0.2% as compared to 1.4% for non-members |
*CANPASS (Air) and NEXUS are self-service programs designed to facilitate and expedite processing for frequent, low-risk, pre-approved travellers.
The Facilitated Border program activity encompasses several trusted traveller programs, the largest of which is NEXUS with over 396,000 members, an increase of over 39 percent from 2008-09. These programs simplify border clearance for low-risk travellers through an advance risk assessment that is a pre-requisite for membership. Various simplified clearance processes are available, depending on the program and port of entry, including self-serve kiosks, designated lanes and reporting to border services officers by telephone. These programs save time for members and enable CBSA officers to focus on high-risk people.
The CBSA facilitates trade through its trusted trader programs that include Free and Secure Trade (59 approved importers, 648 approved carriers and over 76,000 approved drivers), Partners in Protection (1,043 members), and the Customs Self Assessment program (80 approved importers and 799 approved carriers). These programs require a secure supply chain and the advance risk assessment of importers, carriers and drivers. Members have access to streamlined border clearance processes, including designated lanes that reduce delivery times and costs, providing members with a competitive advantage.
The CBSA achieved the following progress against the commitments made in its 2009-10 Report on Plans and Priorities.
In 2009-10, the CBSA developed a registered traveller strategy that included a review of key policy and program issues. The strategy focused on streamlining the various traveller programs while identifying compatibility issues between them, as well as examining the types of technology and innovation needed to expand international partnerships. As stated in Budget 2010 the Government of Canada has committed to enhance its trusted traveller and trusted trader programs to ensure that they are better coordinated and that their fees more closely reflect their cost. Maintaining the effectiveness and efficiency of these programs is important to facilitate the border processing of legitimate people.
The Conventional Border program activity encompasses the administration and oversight of the policies, regulations, procedures, alliances and working partnerships necessary to maintain border control while enabling the free movement of legitimate people and goods into and out of Canada. This contributes to a stronger and more prosperous North America.
2009-10 Financial Resources ($ thousands) |
2009-10 Human Resources (full-time equivalents) |
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Planned Spending |
Total Authorities |
Actual Spending |
Planned | Actual | Difference |
538,674 | 601,949 | 547,540 | 6,304 | 6,572 | (268) |
Expected Results |
Performance Indicators |
2009-10 Performance | 2008-09 Performance |
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Legitimate people are allowed to enter Canada within established time standards. | Percentage of time border wait time* standards for people are met. | 90.0% | 90.3% |
Legitimate shipments are cleared to enter Canada within established time standards. | Percentage of time border wait time standards for shipments are met. | 96.3% | 95.9% |
*Border wait time performance is based on a 10-hour ‘peak business hours' period, focusing on the day and early evening hours when volumes tend to be at their highest.
The CBSA contributes significantly to the Government of Canada's priorities of enhancing the well-being of Canadians and promoting economic prosperity. The CBSA works to facilitate the movement of legitimate trade and travellers by processing all the people, vehicles and commercial goods entering Canada, while carrying out its duties to ensure that Canadians are safe and secure from border-related risks. In addition, the CBSA provides a major component of revenues for the Government of Canada. In 2009-10, the Agency collected over $21 billion in taxes and duties, down from the $22.6 billion (11.8 percent of the Government of Canada's tax revenues) collected in 2008-09.
The CBSA achieved the following progress against the commitments made in its 2009-10 Report on Plans and Priorities.
The Single Window Initiative will provide a single electronic interface for the collection and dissemination of commercial trade data, required by 10 government departments, in advance of goods arriving in Canada. This will benefit businesses by eliminating reporting duplication and facilitating the clearance and release of goods crossing the border. It will also increase the accuracy of information and improve the departments' ability to assess compliance. In 2009-10, the Agency developed the system to electronically transfer existing CBSA trade data to participating departments and agencies. The system is expected to begin collecting and transmitting data in the fall of 2010.
The Agency has implemented an integrity and professional standards strategy to foster an increased awareness of the CBSA's values and ethics and support the conduct of its business with integrity, respect and professionalism. In 2009-10, values, ethics and disclosure of wrongdoing awareness sessions were delivered to over 900 participants in the regions and at headquarters, providing CBSA employees with valuable information on public service and CBSA values, the CBSA Code of Conduct and the Public Servants Disclosure Protection Act. In addition, the Agency developed a mandatory online security awareness module and implemented more rigorous recruitment and personnel standards for external hiring.
In 2009-10, as part of the Agency's implementation of its Change Agenda and reorganization, the CBSA began work on a new management model to introduce a systematic approach to managing and strengthening the delivery of its programs. The new model identifies 10 national program activities that will enable the CBSA to set goals, allocate budgets and monitor the performance of the activities based on key performance indicators. It represents a significant change in the way the CBSA manages its operations and distributes funds by fostering a more dynamic working relationship between the program areas (responsible for setting priorities) and the regions (responsible for the delivery of program activities). It ensures more effective allocation of resources and consistency in service delivery across the country.
The CBSA has undertaken other initiatives to improve the Agency's capacity to allow the free movement of legitimate people and goods into and out of Canada, including the following:
The Trade program activity ensures that the Canadian economy and business community gain maximum benefits from the administration of international and regional trade agreements and domestic legislation governing trade in commercial goods. In this context, the CBSA is responsible for the development and administration of rules, policies, programs and activities that govern the trade-related aspects of the movement of goods into Canada.
2009-10 Financial Resources ($ thousands) |
2009-10 Human Resources (full-time equivalents) |
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Planned Spending |
Total Authorities |
Actual Spending |
Planned | Actual | Difference |
44,507 | 51,642 | 70,253 | 426 | 810 | (384) |
Expected Results |
Performance Indicators |
2009-10 Performance | 2008-09 Performance |
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Canadian business benefits from a level playing field through the imposition of duties and taxes. | Number of Canadian jobs protected as a result of applying the Special Import Measures Act. | 32,952 | 31,472 |
Canadian business benefits from a level playing field through the imposition of duties and taxes. | Value of Canadian production protected as a result of applying the Special Import Measures Act. ($ thousands) |
7,041,000 | 5,840,000 |
CBSA officials deliver client service programs to educate import and export traders and to assist them in making correct declarations. The CBSA conducts compliance verification audits supported by scientific analysis to measure compliance with trade rules and to correct errors in declarations. In 2009-10, the Agency verified 2,677 trade declarations with a total import value of $12.9 billion, which represents 3.2 percent of the value of all goods imported into Canada during this period. Compliance activities may result in the collection of duties and taxes in addition to those owing from the initial self-assessment by importers. These activities provide a level playing field for Canadian manufacturers and exporters in the global trade market by ensuring the accuracy of trade data; the proper assessment, collection, relief and deferral of duties and taxes; and the consistent interpretation and application of international agreements. They also enable the CBSA to detect dangerous and prohibited goods and prevent their entry into Canada.
Through its work on free trade negotiations, the CBSA helps to open new markets for Canadians by increasing the opportunities for, and the predictability of, export sales. This contributes to the creation of jobs and boosts Canadian profits, which in turn stimulates the economy. This activity also helps to increase imports, making more products available at more affordable prices.
The CBSA achieved the following progress against the commitments made in its 2009-10 Report on Plans and Priorities.
Business simplification initiative: The Agency continued to streamline commercial policies and processes to make it easier as well as less costly and time-consuming for commercial clients to meet their compliance obligations. In 2009-10, the Agency eliminated 326 business reporting obligations, exceeding the original target of 280.
The Recourse program activity provides the business community and individual travellers with an accessible redress process that ensures a fair and transparent review of trade program decisions and enforcement-related actions. This program activity also ensures that the decisions taken by CBSA officials accurately reflect the Agency's policies, guidelines and legislation, and contribute to the security and economic prosperity of Canada.
2009-10 Financial Resources ($ thousands) |
2009-10 Human Resources (full-time equivalents) |
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Planned Spending |
Total Authorities |
Actual Spending |
Planned | Actual | Difference |
9,356 | 10,022 | 8,100 | 122 | 96 | 26 |
Expected Result |
Performance Indicators |
2009-10 Performance | 2008-09 Performance |
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A review process is available and accessible for the CBSA's trade administration decisions and enforcement-related actions. | Percentage of reviews acknowledged within 30 days of receipt. (Target: 85%) |
85% | 83% |
Percentage of decisions rendered by recourse appealed to tribunals and courts* that were decided in the CBSA's favour (upheld, withdrawn or settled). | 92% | 84% |
*External reviewers include the Canadian International Trade Tribunal, Canada Agricultural Review Tribunal, Federal Court of Canada, Canadian Human Rights Commission and the Canadian Human Rights Tribunal.
Canadians are entitled to a fair and impartial review of actions and decisions taken by the CBSA. The Agency is committed to ensuring that its redress process is accessible and transparent, and provides a level playing field for travellers and traders. The CBSA does not charge for a review, and the non-adversarial nature of the process enables many clients to represent themselves.
The CBSA's Adjudications program ensures that enforcement actions are sustainable in law, prohibited items remain forfeit and all penalties or fines are applied appropriately. The CBSA's Trade Disputes program ensures that duties and taxes are applied appropriately and relevant trade data is accurately collected.
Internal Services is a group of related activities and resources that is administered to support the needs of programs and other corporate obligations of an organization. The main activities are governance and management support (management and oversight, communications, legal services), resource management services (human resources management, financial management, information management, information technology, travel, and other administration services) and asset management services (real property, materiel, acquisitions). The CBSA's Internal Services supports the achievement of the Agency's two strategic outcomes.
2009-10 Financial Resources ($ thousands) |
2009-10 Human Resources (full-time equivalents) |
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Planned Spending |
Total Authorities |
Actual Spending |
Planned | Actual | Difference |
373,656 | 485,267 | 634,574 | 3,179 | 3,710 | (531) |
The CBSA achieved the following progress against the commitments made in its 2009-10 Report on Plans and Priorities.
In 2009-10, the Agency developed a business model that describes all of its activities using a catalogue of services. Developed to support analysis and decision making, the model links target recipients to service outputs and the benefits generated by those services. It also maps services related to the CBSA's program activities, business process diagrams and the information technology systems that support service delivery.
The CBSA has in place business continuity plans that ensure organizational stability and continued service delivery during and after emergency situations. In 2009-10, the Agency identified and addressed gaps in these plans, in part through interdepartmental exercises and actual events. Plans will continue to be reviewed on a regular basis and updated to reflect program changes within the CBSA business environment.
Performance measurement provides the Agency with consistent and comparable data to support risk-based decision making and resource allocations and assess the Agency's progress towards achieving its strategic outcomes. In 2009-10, the CBSA created a new Program Activity Architecture and Performance Measurement Framework for 2011-12, both of which now form the basis of the Agency's performance measurement regime.
To address a recommendation made by the Auditor General in the 2007 October Report of the Auditor General of Canada, Chapter 5, “Keeping the Border Open and Secure,” the CBSA proposed an approach to the continued cross-training and building of program expertise for border services officers. This included the development and updating of learning products related specifically to customs, immigration, and food, plant and animal inspection. The Agency also developed generic learning paths that link training options to the skills and knowledge required for border services officers working in the four different modes (air, land, marine and postal). Training products addressing all required areas of knowledge are regularly updated to meet evolving needs.
The CBSA undertook other activities to improve its management tools, corporate procedures and organization, including the following:
Budget 2009 identified $80 million for the CBSA for accelerated infrastructure projects. The Agency completed preparations to improve its commercial examination capacity at four ports of entry: Prescott, Ontario; Kingsgate, Pacific Highway and Huntington ports of entry (all in British Columbia). The Agency also completed preparations to construct additional housing at three remote ports: Beaver Creek and Little Gold in the Yukon Territory; and Pleasant Camp, British Columbia. Construction was scheduled to begin at all sites in spring 2010. Funding was also made available for the CBSA's support role in Transport Canada's Air Cargo Security Program.
Most of the infrastructure projects were in the planning stage in 2009-10; construction is expected to take place over 2010-11 and 2011-12.
2009-10 Financial Resources ($ thousands) |
2009-10 Human Resources (full-time equivalents) |
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Planned Spending |
Total Authorities |
Actual Spending |
Planned | Actual | Difference |
- | 9,200 | 3,800 | - | 10 | (10) |