Executive Vice-President's Transition Binder 2019: Strategic Policy Branch (SPB)
International Strategic Framework for Fiscal Year 2019 to 2022

Executive summary

The Canada Border Services Agency (CBSA) operates in a complex and fluid global environment, with the Agency’s work linked to events beyond Canada’s border and the efforts of our international partners. The CBSA must be vigilant in monitoring and responding to both global economic and migration trends and risks. In order to keep pace with new technologies, changing trade and travel patterns, and respond to emerging issues, the Agency must continually evolve to protect Canada and Canadians. Similarly, opportunities to enhance the facilitation of legitimate trade and travel are essential, as evidenced by the growth in cross border e-commerce, trusted trader and traveller programs, and the number of free trade agreements.

To meet these challenges and opportunities, the CBSA needs to be agile and capable of quick and effective responses. Key to this is working with our international partners to identify and leverage opportunities for information sharing, advance shared border management priorities, and play a leadership role on the international stage to promote effective and efficient global border management practices.

The International Strategic Framework (ISF) is the Agency’s foundational international document, providing overarching guidance for the Agency’s international engagement, to ensure we are working with the right partners and in the right fora, in order to: enhance global border management practices and norms; further CBSA operational and program needs; and, support Government of Canada (GC) and Public Safety (PS) priorities. The ISF details the following:

• The CBSA’s operating environment and international drivers, with an emphasis on CBSA Renewal
• Imperatives for international engagement
• Instruments and tools the Agency can utilize internationally
• Delineates the respective internal roles and responsibilities for international engagement
• International logic model

The ISF is updated on a 3-year cycle. For the 2019 to 2022 cycle, the ISF is adopting a thematic approach based on the specific priorities and issues the CBSA is seeking to address internationally. These thematic priorities will be reviewed on an annual basis to ensure alignment with key CBSA and Government of Canada priorities. Three thematic priorities, with corresponding issues, have been identified:

• Irregular migration: removals and irregular arrivals
• Contraband: drugs
• Facilitation: E-commerce and border of the future

Detailed action plans for each priority issue are annexed to the ISF. Each plan designates the key international interlocutors the Agency needs to work with (bilateral, multilateral and GC), outlines the specific activities to undertake, and presents a number of performance measures, which will mature over time, to track progress.

Introduction

International border management is the interconnected network of national border management agencies, the private sector, and multilateral institutions working together towards the common purpose of ensuring that borders are secure against threats to public safety, security and economic prosperity, while simultaneously facilitating the movement of legitimate trade and travel. This is not a static environment and requires ongoing renewal. The CBSA must meet these challenges by continuing to transform and modernize the way it manages the Canadian border.

The ISF is designed to identify the CBSA’s priorities for international engagement so that we may focus our efforts and resources where they are most warranted, maintain flexibility to respond to unexpected events, make a valuable contribution to Canada’s international agenda, and best serve the interests of Canadians. The ISF is the foundation of the Agency’s international engagement efforts, which guides current and future decisions around:

• international engagement and travel
• how best to deal with emerging operational issues and trends
• international network footprint
• new capacity building investments

For 2019 to 2022, the ISF will focus on the border management challenges and issues the CBSA is seeking to address and advance internationally.

Objective

The ISF is the foundation of the CBSA’s international strategic engagement efforts, which guides all aspects of the Agency’s international activities, and further supports the GC international priorities. The framework focuses the CBSA’s engagement towards a limited number of key thematic issues that can be advanced internationally, enabling the Agency’s priorities and agenda. It prioritizes the Agency’s international efforts and guides its response to emerging global issues, opportunities, and challenges. The ISF informs the CBSA’s objectives and priorities for international engagement, and ensures that Agency resources are appropriately allocated to meet these objectives.

Agency context

The mandate of the CBSA is to provide integrated border services that support national security and public safety priorities and facilitate the free flow of people and goods. The range of the Agency’s responsibilities is extensive and complex given the growth in international trade, global migration patterns, and enhanced facilitation of people and goods.

In order to fulfill its mandate, the CBSA engages extensively with the international community. This ranges from overseas operations, bilateral discussions, participation in multilateral fora, undertaking capacity building projects, through to formal, treaty-level agreements with other countries. It is within this context that the Agency advances Canadian interests in border facilitation and security as a recognized leader in global border management.

CBSA Renewal

The CBSA has embarked on an ambitious Renewal Agenda that will position the Agency to be ready for the future, establish a sustainable operating model, and align the way the Agency works to adapt to the changing global environment. CBSA Renewal has 3 main goals for the border of the future:

1. Improve compliance: help travellers and traders follow the regulations
2. Automate and optimize: speed up border crossings for low-risk travellers and goods
3. Harness the power of analytics: target and spot the greatest threats

A key linkage to pursuing CBSA Renewal will be working closely with our international partners, especially through the Five Eyes groups of the Border Five (B5), Migration Five (M5), and Five Country Ministerial (FCM). This will also include playing a leadership role on the international stage to promote and advance effective and efficient global border management practices, through organizations such as the World Customs Organization (WCO), as well as negotiating international agreements and arrangements.

International drivers

Managing Canada’s border is influenced by a dynamic international operating environment. Border management must continually adapt to keep pace with changes and disruption around the world. Consequently, an important vantage point for the ISF is identifying the critical international trends under which the Agency operates. This forms the international context against which our engagement can be fashioned and refined.

International trends

• Increasing trade and traveller volumes
• Volatile international economic and security dynamic
• Climate change and resource scarcity
• Shifts in global economic power
• Surge in irregular migration

Imperatives for international engagement

Border management is a shared international responsibility, and improvements to individual border management organizations directly benefit Canadians and the wider international community. Fulfilling the CBSA’s mandate is inherently dependent on working with foreign partners and mutually enhancing our respective approaches to border management. The international function is used as a key enabler to advance the CBSA agenda.

Through its international engagement efforts, the CBSA can:

• address shared border management challenges and opportunities
• push the border out by working with key, strategic partners to bolster its overall border security
• support the Government of Canada’s international trade agenda
• influence international border management practices and standards
• strengthen the capacity for Canada and key partners to implement effective border measures

Priorities for international engagement

The ISF is adopting a thematic approach to guide the Agency’s international engagement efforts, based on the Agency’s business priorities on the specific issues the CBSA is seeking to address through international engagement. Based on the Agency’s business priorities, the international function will be used as a key enabler to advance the CBSA agenda. Three thematic priorities have been identified: irregular migration, Contraband, and Facilitation – which will be advanced through outreach with key partners by utilizing the necessary instruments the Agency has at its disposal in its international engagement toolkit. Detailed action plans will be developed for each priority issue (annexed to the ISF), and will include key activities and measures to track performance.

Methodology

Identification of priorities was based on an analysis of a number of corporate documents, including the 2019 to 2020 Departmental Plan, CBSA Strategic Framework 2018 to 2021, CBSA Environmental Scan 2018 to 2019, CBSA Strategic Directions 2030, and the Enforcement and Intelligence Priorities 2017 to 2018 – 2019 to 2020. The identification of the key bilateral and multilateral partners under each thematic priority and issue were predicated on specific data points from CBSA sources, including the Refugee Claims Analysis Report and the Drug Analysis Report. This was supplemented by a consultative process across the Agency and a review of other Government of Canada ISF models.

This was supplemented by an internal consultation process involving Branches and Directorates that undertake international engagement activities, and a review of other Government of Canada ISF models. The identification of key countries and multilateral fora was based on key statistical data (such as removals inventory, refugee claimants from the Refugee Claims analysis Report, drug seizures from the Drug Analysis Report), in tandem with consultations with the OPIs.

Process for international priorities determination

In recognition of the constantly changing operating environment, identified issues are not exhaustive and reflect a snapshot in time. This does not preclude the Agency from responding to emerging pressures unforeseen during the review process, and reallocating resources, as required.

Existing international cooperation

The CBSA engages extensively with the international community, both at the bilateral and multilateral levels, reflecting the diverse range of border management issues that benefit from international cooperation. Consequently, the Agency has a number of existing international commitments, stemming from ongoing capacity building projects and whole-of-government and/or PS Portfolio bilateral cooperation (for example, the Declaration of Intent with Israel), which cannot be discharged. The CBSA must also respond to emerging international operational pressures, such as Operation Syrian Refugees and Syrian White Helmets.

This includes the work of the CBSA’s International Network, which is a critical instrument in the Agency’s international toolkit to address the thematic priorities and associated issues. The Network plays a crucial role in pushing the borders out by intercepting irregular migration and contraband at the first available opportunity in the continuum and assisting in removals operations. While the work of the International Network is critical in fulfilling both existing commitments and new priorities promulgated by the ISF, its physical footprint is far more static and requires careful consideration before a position can be either moved or created to meet new needs. In addition, staffing the Network must follow established guidelines and processes, with due regard to specific competencies required for the position.

However, the ISF cannot capture all of these engagements, as it is focused on a limited set of priority issues that require the Agency’s focused attention. While these activities may not be reflected in the ISF, they nonetheless remain responsibilities the Agency must continue to fulfill and action going forward. Importantly, it also includes, for 2020, the CBSA’s role as Chair of the B5 and co-Chair (with IRCC) of the M5. The B5 and M5 are key multilateral partners for the CBSA in advancing international policies and priorities related to border security, border management, economic prosperity, and trade and travel facilitation, as well as issues related to migration. The Chair of the B5 and M5 rotates annually between participating countries. In 2020, CBSA will have the significant responsibility of chairing and hosting the various Heads and Deputy Heads meetings, as well as some of the working groups, for both the B5 and the M5, throughout 2020. This commitment will require CBSA to lead on advancing the objectives and priorities of these multilateral groups, while ensuring they align with CBSA’s international priorities.

Toolkit for international engagement

With the complexity of international border management, greater effectiveness is increasingly dependent on border administrations working together. In order to strike an effective balance between enforcement and facilitation, the CBSA utilizes a broad array of tools and instruments to engage internationally, as noted below.

International engagement instruments and tools

This list provides a few key examples of instruments and tools, but is not exhaustive:

• Cooperation plans/engagement strategies (Agency and GC approaches)
• Capacity building
• International arrangements and agreements
• International Network
• Information-sharing
• Joint operations and targeting
• Sharing best practices
• Working with GC partners

Roles and responsibilities

In order for the Agency to maintain positive relationships with key partners and to create the conditions necessary for success in advancing priorities, effective internal coordination of international engagement is required. The table below delineates the respective roles and responsibilities in the CBSA with respect to international engagement.

Strategic Policy Branch

• Establish the strategic policy agenda, with foresight, for the Agency
• Identify opportunities and challenges
• Create and identify greater synergies between initiatives across the Agency
• Ensures that the Agency’s views are represented in the policy proposals developed by other government departments

International Policy and Partnerships Directorate

• Set international policy priorities
• Drive bilateral and multilateral engagement
• Provide specialized services, including the negotiation, development, and advice related to international arrangements and agreements
• Work with three operational branches to support their work
• Manage the International Network, which provides liaison with foreign partners, information collection, interdiction, and situational awareness
• Develop and manage the CBSA’s capacity building initiatives

Other branches

• Content experts and functional leads on respective files (which can include an international dimension)
• Key stakeholders and partners in furthering the CBSA’s international agenda

Key contact

International Policy and Partnerships Directorate
Director General: Mr. Talal Dakalbab (talal.dakalbab@cbsa-asfc.gc.ca)

Effective date

The ISF is in effect for 3 years, 2019 to 2022. The thematic priorities and identified issues, listed in the Annexes, will be confirmed on an annual basis.

Annex A: ISF 2019 to 2022 placemat

[redacted]

Annex B: Irregular migration: Engaging with recalcitrant countries (removals)

Issue

Engagement with recalcitrant countries in support of removals operations.

Objective

Increase the awareness of international obligations as well as cooperation from and coordination with recalcitrant countries to support the timely removal of inadmissible foreign nationals from Canada.

Overview

As part of its enforcement of the Immigration and Refugee Protection Act (IRPA), the CBSA has a statutory obligation to remove any foreign national that is the subject of an enforceable removal order, including failed asylum claimants and high risk individuals involved in serious criminality, human rights violations, organized crime, and national security. Uncooperative individuals and countries remain the primary impediments to removals.

Government of Canada

The removal of inadmissible foreign nationals in a timely manner is a core part of Canada's immigration enforcement program. Timely removals help to maintain the integrity of Canada's immigration and asylum system and serve as a deterrent to others who are inadmissible. Canada respects its obligations, including under the Refugee Convention, not to remove any individual to a foreseeable, real and personal risk of death, torture, or serious human rights violation.

CBSA Nexus

The removals process is an integral part of the CBSA's security mandate. Foreign nationals subject to removal from Canada have access to recourse, including appeal provisions, judicial review at Federal Court, and, if eligible, a pre-removal risk assessment.^{Footnote 1} Until all due process is completed, the CBSA cannot enforce a removal order.

The CBSA's capacity to carry out a removal order is contingent upon cooperation from foreign governments. Despite international obligations to accept the return of their nationals, a number of countries' laws and policies prevent the Agency from affecting removals in a timely manner. The majority of cases within the CBSA removals working inventory originate from countries that either refuse to issue travel documents for their citizens or take a significant amount of time to issue proper documentation.

Interlocutors

Key countries (top 6)

Note: Top 6 are based on Intelligence and Enforcement Branch's list of top 36 uncooperative country inventory.

[redacted]

Multilateral fora

• FCM
• M5
• European Migration Forum

Government of Canada

• CBSA-GAC Removals Working Group
• Global Affairs Canada
• Immigration, Refugee and Citizenship Canada
• Public Safety
• Royal Canadian Mounted Police

Tools

Recent efforts by the GC at countering irregular migration has highlighted the need for interdepartmental coordination and cooperation on removals. To that end, the Assistant Deputy Minister-level Removals Working Group (RWG), co-chaired by Global Affairs Canada (GAC) and the CBSA, and including IRCC and Public Safety (PS) Canada, has been re-engaged to enhance the GC's response to the growing number of challenges related to removals cases. Pursuant to relevant guidelines and associated legislation, the CBSA will have developed country-specific Removals and Repatriation Engagement Plans (RREPs) for the top five recalcitrant countries by the end of Fiscal Year 2019 to 2020 to guide and coordinate interdepartmental efforts accordingly in support of the Agency's removals objectives. Similar recalcitrant country-specific RREPs may be developed in the future for other recalcitrant countries. The RREPs rely on a number of tools at the GC's disposal to encourage recalcitrant countries to increase their cooperation on travel document issuance. [redacted]

The CBSA International Network plays a pivotal role in countering and deterring irregular migration to Canada. An increase to the CBSA international network by five new Liaison Officer positions has been approved and will allow the Agency to expand presence to mitigate risks related to irregular migration in key transit or source locations as well as support additional removal operations.

Capacity building (CB) and technical assistance activities are engagement tools that can also be utilized to support migration cooperation with bilateral partners that are reluctant or refuse to issue travel documents for their citizens. These approaches have been applied successfully by other countries and have proven effective in increasing removals. CB initiatives aim to strengthen the knowledge, abilities, skills, and behaviour of individuals and develop institutional (organizational) structures and processes in priority foreign migration and border management organization. Technical assistance can also be used to improve skills through the provision of training, sharing of expertise and transmission of working knowledge. The GC would strive to implement additional capacity building, migration cooperation and technical assistance activities with uncooperative countries to encourage these beneficiaries to positively engage with Canada on document issuance for their citizens.

[redacted]

Develop a communications strategy in cooperation with GC partners targeting prospective migrants from recalcitrant countries. Messaging would promote regular migration pathways, and highlight the CBSA's robust removals process, providing a deterrent to irregular migrants. The RWG will serve as the main interdepartmental forum to pursue and direct engagement with recalcitrant countries.

International high-level plan

Partner 1: [redacted]

Activities:

• [redacted]
• [redacted]
• [redacted]
• [redacted]

Timeline:

• Ongoing
• End of fiscal 2019 to 2020 and onward

Lead:

• Intelligence and Enforcement Branch
• Strategic Policy Branch

Partner 2: [redacted]

Activity: [redacted]

Timeline: End of fiscal 2019 to 2020 and onward

Lead:

• Intelligence and Enforcement Branch
• Strategic Policy Branch

Partner 3: [redacted]

Activity: [redacted]

Timeline: Spring 2019 and onward

Lead: Strategic Policy Branch

Partner 4: [redacted]

Activity: [redacted]

Timeline: Spring 2019 and onward

Lead: Strategic Policy Branch

Partner 5: [redacted]

Activity: [redacted]

Timeline: End of fiscal 2019 to 2020 and onward

Lead: Strategic Policy Branch

Partner 6: [redacted]

Activities:

• [redacted]
• [redacted]

Timeline: End of fiscal 2019 to 2020 and onward

Lead: Strategic Policy Branch

Partner 7: Removals Working Group

Activity: Further the objectives of the Border Action PlanStrategy and develop strategic approaches to engaging foreign governments on issues related to removals.

Timeline: Ongoing

Lead: Strategic Policy Branch

Partner 8: FCM / M5

Activity: Regular engagement/information gathering with respect to removal issues, including policy initiatives that have proven successful in areas of obtaining travel documents from recalcitrant countries and other removal initiatives (for example, Assisted Voluntary Returns and Reintegration-like programs)

Timeline: Not applicable

Lead: Not applicable

Measuring performance

Indicators

• Number of documents issued
• Change in the average wait time for the issuance of travel documents (by country)
• Removals and Repatriation Engagement Plans for Top Six Recalcitrant Countries Completed

Annex C: Irregular migration: Anticipate and deter irregular arrivals

Issue

Anticipate and deter irregular arrivals.

Objective

Increase cooperation with irregular migrant source and transit countries and continue to support efforts in anticipating and deterring irregular arrivals.

Overview

A surge in irregular migrants seeking entry to Canada has put mounting pressure on Canada’s border management, refugee and immigration systems. This issue is further complicated by the widespread use of fraudulent documents. Reducing the prevalence of irregular migration and improving the security of travel documents are key components of the CBSA’s international agenda.

According to the FCM 2018 Position Paper, there is a shift in irregular migration, from people seeking to evade detection in order to join underground economies, to using irregular routes in order to enter and remain in Five Eye countries as asylum seekers. This creates new challenges for our countries’ asylum systems as increased volumes lead to a growing administrative burden and increased strain on health and social services, which erodes public confidence in government institutions and immigration programs.

Government of Canada

Canada is seeing its greatest intake of asylum seekers crossing our land borders, outside the normal asylum process, making claims both at ports of entry and at the CBSA’s inland offices. Budget 20 announced Canada’s Irregular Migration Border Action Plan, and $1.18 billion over five years, with $55 million ongoing, to fund activities designed to reduce non-genuine asylum claims.

In 2018, Canada received a historic high of over 55,000 asylum claims, with three 3 key pathways used by irregular migrants to reach Canada:

1. abuse of Canadian Temporary Resident Visas (TRVs)
2. between the port (BTP) crossings
3. visa-exempt movements

As the overall number of claims increased and BTP arrivals slightly decreased, there was a shift back to the abuse of Canadian TRVs as a primary method used to access Canada. There are strong indicators that organized human smuggling networks are behind a proportion of arrivals on Canadian or U.S. visas for several countries in the top 20 to Canada.

Of the more than 50,400 claims received in 2017, some 20,593 people, or 41%, were apprehended crossing the border between designated ports of entry. Before 2017, land border interceptions averaged less than 500 individuals per year. By entering at a place other than a port of entry, migrants avoid being found ineligible to make an asylum claim in Canada via the Safe Third Country Agreement and sent back to the U.S.

[redacted]

CBSA Nexus

Since late 2016, Canada has experienced an increase of in-Canada asylum claimants including significant increases in those arriving between the ports of entry. This movement is primarily focused near the Lacolle, Quebec port of entry at Roxham Road. In 2017, there were 20,593 irregular arrivals of asylum claimants intercepted by the RCMP, while in 2018, the RCMP intercepted 19,419 migrants crossing between the ports.

Canadian visa policy changes also impact the Agency, as seen with Mexico and Romania. The CBSA must remain engaged with IRCC and international partners to develop effective risk mitigation strategies along the immigration continuum that will stem the flow of irregular migrants. Similarly, the CBSA must continue close cooperation with U.S. authorities on the management of our shared border, and develop risk mitigation and management strategies on northbound movement from the U.S. into Canada.

The CBSA is also engaged in Project FIELDS, which is a joint Frontex and Interpol initiative. The goal of the project is to combine the efforts of Frontex’s Reference Manual and INTERPOL’s Dial-Doc database to assist front line border and police officers in identifying fraudulent documents.

Interlocutors

Key countries (top 4)

Note: Top 5 based on the Refugee Claims Analysis Report

[redacted]

Multilateral fora

• FCM/M5
• UNHCR
• IOM
• RCM
• Interpol

Government of Canada

• Global Affairs Canada
• Immigration, Refugee and Citizenship Canada
• Public Safety
• Royal Canadian Mounted Police

Tools

• Leveraging Border Five partners and discussing best practices
• Leveraging other multilateral fora, including the Intergovernmental Consultations on Migration, Asylum and Refugees, and the International Organization for Migration
• Engaging key countries both domestically through missions in Canada, and internationally, to develop relationships
• Utilizing the International Network to: develop relationships with foreign counterparts, resolve issues, train foreign officials in fraudulent document detection, and interdicting foreign nationals
• Undertaking capacity building projects, to assist foreign administrations develop border management strategies to identify and intercept non-genuine travellers at the source
• Leveraging international fora hosted by non-governmental organizations and academia to discuss policy issues, programs and best practices related to irregular migration, refugees and global migration
• Implement information sharing arrangements, where applicable
• Engage airlines and air industry stakeholders

International high level plan

Partner 1: [redacted]

Activity: [redacted]

Timeline: not applicable

Lead: not applicable

Partner 2: [redacted]

Activity: [redacted]

Timeline: Through to May 2022

Lead: SPB

Partner 3: [redacted]

Activity: [redacted]

Timeline: ongoing

Lead: SPB

Partner 4: [redacted]

Activity: [redacted]

Timeline: Summer 2019 through May 2021

Lead: SPB

Partner 5: Frontex and Interpol

Activity: Continued engagement on the final phase of project SUNAT

Timeline: Ongoing until May 2021

Lead: IEB

Partner 6: Five Eyes and EU

Activity: Regular engagement/information gathering with respect to:

• establishing the identity of those who arrive undocumented
• monitoring claimants throughout the asylum process
• enforcement/admissibility procedures for asylum claimants and possible alternatives to enforcement processing at the time of the asylum claim
  • for example, enforcement is deferred and only applied to individuals whose claims are rejected

Timeline: Not applicable

Lead: IEB

Measuring performance

Indicators include:

• percentage of asylum seekers, from top 5 countries, year after year
• percentage of irregular migrants, from top 5 countries, with a valid U.S. visa
• percentage of between the port arrival against total asylum claims, from top 5 countries
• International Region interception results

Results are to be determined

Annex D: Contraband—Interdict drugs

Issue: Interdict drugs

Objective

Interdict and reduce the amount of drugs entering Canada; specifically cocaine, methamphetamines, and opioids (including heroin and fentanyl), as well as reduce criminal involvement in the illicit cannabis market by preventing and interdicting prohibited cross-border movement of cannabis while maintaining the flow of legitimate travellers and goods.

Overview

The costs to Canadian society from illegal drug use are approximately $38.4 billion a year^{Footnote 2}, constituting a serious and increasingly costly health and public safety issue in Canada. As Canada’s first line of defense, the CBSA plays a key role in interdicting and disrupting illicit drug movements into and out of Canada.

Government of Canada

On December 12, 2016, the Government of Canada announced the Canadian Drugs and Substances Strategy (CDSS), which replaced the National Anti-Drug Strategy. The CDSS is a comprehensive, collaborative, compassionate and evidence-based and public health approach to problematic substance use. The CDSS formally restores harm reduction as a pillar, alongside the existing pillars of prevention, treatment, and enforcement, and transfers governance of the strategy from the Minister of Justice and Attorney General of Canada to the Minister of Health.

From the law enforcement pillar, the CDSS:

• Increases law enforcement's capacity to target the involvement of organized crime in making and distributing illegal drugs
• Enhances the capacity of the criminal justice system to investigate and prosecute offenders
• Identifies and controls new and dangerous psychoactive substances
• Reduces the possibility for controlled substances to be diverted from otherwise legal activities, such as from pharmacies

In recognition of the devastating affects of the opioid crisis in both Canada and the United, the joint statement issued by President Donald J. Trump and Prime Minister Justin Trudeau during their first official meeting commits Canada and the United States to work together on common solutions to protect the countries from opioid trafficking.

On October 17, 2018, the Government of Canada’s legislation to legalize, restrict and strictly regulate cannabis (i.e. Cannabis Act) entered into force. As the legislation maintains the existing prohibition against importing and exporting cannabis across Canada’s border, the CBSA implemented upon the coming into force of the legislation a number of measures to reduce criminal involvement in the illicit cannabis market by preventing and interdicting prohibited cross-border movement of cannabis while maintaining the flow of legitimate travellers and goods. These measures include a new cannabis-related primary inspection line question and traveller awareness products intended to inform travellers entering Canada of cannabis-related border rules and promote compliance. The Agency’s existing authorities with respect to the inspection and interdiction of cannabis at the border did not change as a result of cannabis legalization.

CBSA Nexus

The CBSA Integrated E&I Priorities for the period 2017/18 to 2019/20, identifies drug smuggling (Schedule I under the Controlled Drugs and Substances Act [CDSA]) as a Tier 1 priority. Drug smuggling activities include the cross border movement of controlled drugs and substances (e.g., cocaine, opiates, illicit pharmaceuticals) and other substances controlled under the CDSA. The CDSA provides a framework for the control of the import, export, production, distribution and use of substances or drugs classified as controlled, narcotic, or restricted.

The CBSA contributes to reducing the supply of illicit drugs, including cannabis, through the identification, interception and referral of controlled drugs and substances, at all Canadian POEs and through the examination of all incoming (and outgoing) international mail at Canada’s three mail processing centers pursuant to section 110 of the Customs Act.

With respect to cannabis, the CBSA implemented a comprehensive reporting and monitoring framework to identify noteworthy trends related to the border impacts of the domestic legalization of cannabis, including the tracking of import and export interdictions involving cannabis.

Interlocutors

Key countries

Note: Top countries based on Drug Analysis Report 2018.

Fentanyl: [redacted]

Cocaine: [redacted]

Opium / heroin: [redacted]

Methamphetamine: [redacted]

Multilateral fora:

• B5
• WCO

Government of Canada:

• RCMP
• PS
• Health Canada
• Canada Post

Tools

Existing border controls alone, however, are insufficient to address the elaborate and constantly evolving methods to import illegal drugs by circumventing border controls. These measures can be bolstered through:

• The development of international arrangements and agreements with law enforcement partners (aimed at improving information sharing)
• Capacity building support (where and as applicable) to both source and transit countries
• Expertise of the CBSA’s analytical and forensics laboratory (Science and Engineering Directorate)
• Intelligence collection, investigations support, and reporting on cases, trends and modus operandi by the International Network in disrupting drugs and supply chains overseas

International high level plan

Partner 1: [redacted]

High level activity:

• [redacted]
• [redacted]

Timeline: Ongoing

Lead: IEB and SPB

Partner 2: [redacted]

High level activity: [redacted]

Timeline: Ongoing

Lead: IEB and SPB

Partner 3: [redacted]

High level activity: [redacted]

Timeline: Ongoing

Lead: IEB

Partner 4: [redacted]

High level activity: [redacted]

Timeline: not applicable

Lead: not applicable

Partner 5: [redacted]

High level activity: [redacted]

Timeline: not applicable

Lead: not applicable

Partner 6: B5

High level activity:

Continue to support the B5 Heads of Operations Joint Strategic Threat Assessment and efforts to address the international trafficking of drugs and precursors (by outlawed motorcycle gangs and [redacted] organized crime).

Timeline: not applicable

Lead: IEB and SPB

Partner 7: WCO

High level activity:

Continue to participate in the SAFE Technical experts group on non-intrusive inspection (teg-nii) to create synergies between Customs Administration and the non-intrusive inspection industry sector.

Timeline: not applicable

Lead: Commercial

Measuring performance

Indicators

• Number of seizures (by drug type)
• Number of international interceptions
• Number of cannabis export interdictions at port of entry

Annex E: Facilitation: Manage e-commerce

Issue

Manage the volumes of e-commerce.

Objective

Manage the increase in volumes related to E-Commerce, in order to ensure that an effective and efficient processing strategy is in place to facilitate the flow of these goods in conjunction with collecting the appropriate revenue.

Overview

The increase in online shopping (e-Commerce) is resulting in the exponential growth of goods imported to Canada through the postal, courier and commercial streams. While, the growth of cross-border e-commerce presents new opportunities for consumers, the increased volume of importations raises the associated risk to Canadians safety and security. Additionally, the dramatic growth of e-Commerce importations has placed tremendous pressure on CBSA’s business lines, challenging operations, infrastructure, program policies, and legislation.

Over the period 2013 to 2017, in Canada alone, there have been significant increases in volumes across virtually all modes, in particular e-Commerce. For example, over this period, volumes increased by: 26% in Air Travellers; 47% in Commercial releases; 81% in Postal shipments; and, 16% in Courier shipments. By 2022, demand is expected to further increase in Canada across the different modes. The increase in volumes is impacting all Five Eyes countries.

Government of Canada

The development of global standards in cross-border e-Commerce is helping to guide trade facilitation, security, revenue and compliance. To address the e-Commerce challenges, Canada is exploring options to modernize its processes and support transitioning to a data-driven approach to managing safety and security imperatives in light of the volume growth.

CBSA Nexus

The CBSA is developing a strategy that aims at transforming the manner in which the Agency risk assesses and facilitates the movement of e-Commerce shipments. The intention is to leverage advance information, analytics and automation that will streamline border processing and modernize risk assessment to maximize effectiveness while exploring options to optimize revenue collection.

Canada continues to engage with U.S. and industry partners and is actively contributing to the development of the WCO Cross-Border E-Commerce Framework of Standards. The Framework sets out the e-Commerce principles and will provide practical guidance for countries wishing to implement an e-Commerce program. The WCO E-Commerce Framework will provide the foundation to develop and implement the CBSA’s E-Commerce Strategy. The CBSA will seek opportunities to promote the adoption and use of the WCO E-Commerce Framework.

Interlocutors

Key countries

Note: Top countries based on Canada Post information and consultation with Commercial and Trade Branch.

[redacted]

Multilateral fora

• B5
• WCO / RCCDG
• Universal Postal Union

Government of Canada

Canada Post

Tools

• Leveraging B5 partners and discussing best practices
• Leveraging multilateral fora, including the WCO
• Engaging key countries both domestically through missions in Canada, and internationally, to develop relationships and resolve issues

International high level plan

Partner 1: [redacted]

Activity:

• [redacted]
• [redacted]

Timeline: ongoing

Lead: CTB and SPB

Partner 2: [redacted]

Activity: [redacted]

Timeline: to be determined

Lead: CTB and SPB

Partner 3: B5

Activity: Collaborate with B5 partners to manage sharing of e-Commerce information

Timeline: ongoing

Lead: CTB and SPB

Partner 4: WCO

Activity: Work with the WCO to adopt the Cross-Border E-Commerce Framework of Standards

Timeline: June 2019

Lead: CTB and SPB

Measuring performance

Indicators

• WCO E-Commerce Framework is endorsed by the WCO Policy Commission
• Promote the use of the WCO E-Commerce Framework by incorporating its concept within the CBSA’s E-Commerce Strategy
• Complete steps required to initiate binational collaboration:
  • Conduct consultations
  • Identify transformed operational model
  • Identify opportunities for CBSA/U.S. CBP collaboration

Annex F: Facilitation: Border of the future

Issue

Implement the touchless border

Objective

Collaborate and coordinate on moving towards a “touchless” border, with Five Eyes partners, in order to create an efficient and effective border of the future. This includes a focus on using emerging technologies to further enhance the safe and secure facilitation of trade and travellers across global borders.

Overview

At the 2018 Five Country Ministerial (FCM), Ministers endorsed the Border of the Future Strategic Vision 2030 including a commitment to work together with industry to build the ‘touchless’ border at ports of entry for legitimate travellers and trade. Ministers further agreed to a strategy to leverage each other’s investments in emerging technologies, including digitalisation and artificial intelligence, to improve facilitation and mitigate risks through real-time intelligence and information sharing, while protecting privacy. Ministers agreed that this strategic plan was to include an investigation of legislative or policy barriers to build the ‘touchless’ border. Government of Canada

Government of Canada

Over the period 2013 to 2017, in Canada alone, there have been significant increases in volumes across virtually all modes. The increase in volumes is impacting all Five Eyes countries. The Border of the Future (BOTF) initiative offers Canada the opportunity to work collaboratively with its Five Eyes partners to improve national security and economic prosperity, and address the increase in volumes by leveraging each other’s initiatives.

This initiative will harness the collective capability of the Five by engaging on common priorities (consistent with national sovereignty). It will ensure the Five remain at the forefront of border management, remaining globally competitive while addressing transnational security threats by building and leveraging off inter-locking layers of security and enhancing facilitation and enforcement. Canada is leading the BOTF data and privacy pillar, in tandem with the vision of the border officer of the future through the concept of an Informed, Intuitive Border Officer.

CBSA Nexus

As co-lead with Australia, the Agency is committed to advancing and implementing the BOTF initiative with its Five Eyes Partners. The BOTF initiative is being incorporated into the vision for the Agency’s Renewal plan. CBSA Renewal includes a wide-ranging set of initiatives, each of which has links to the BOTF strategic vision, including, but not limited to:

• Building new, results-based organizational and decision-making structures
• Maximising our talent and working smarter
• Advanced analytic capability towards risk-based border decisions by accessing a broad range of global border information
• Optimizing use of emerging technology in maximizing automation pre-border and at-border

Advancing the BOTF initiative, both domestically and internationally, will allow the CBSA to address and keep pace with the increased volumes, resourcing demands and strategic opportunities to leverage data and technology.

Interlocutors

Key Countries (B5/M5 Members)

• Australia
• New Zealand
• United Kingdom
• United States

Multilateral fora

• B5
• M5
• FCM

International high level plan

Partner 1: B5/M5

Activity: Working groups, with direction from BOTF SG, to assess initiatives for short/medium/long term implementation

Timeline: June 2019

Lead: Australia/Canada

Partner 2: B5/M5

Activity: Canada to champion the Data and Privacy Pillar Debate to build public support for the collection, use and sharing of data, and enhancing privacy protections through robust and transparent mechanisms

Timeline: June 2019

Lead: CBSA

Partner 3: FCM

Activity:

• Presentation to FCM Ministers for endorsement of BOTF Strategic Plan
• The Strategic Plan sets out short, medium and long term initiatives to advance the 5 countries to the BOTF 2030

Timeline: July 2019 / ongoing

Lead: Australia/Canada

Measuring performance

Indicators

• Endorsement by Ministers of Strategic Plan at FCM 2019
• Number of joint initiatives that are commenced in 2019 to 2020
• Number of multilateral agreements in place to advance BOTF initiatives

Annex G: Existing international commitments

The following provides a snapshot of the CBSA’s existing international commitments with international partners bilaterally, multilaterally and through the delivery of capacity building projects. SPB undertakes an annual CMAA prioritization exercise to ensure countries selected to pursue an information sharing agreement or arrangement (CMAA, MOUs) are aligned with the ISF and the Agency has the capacity to negotiate. Moving forward, consideration for any new international arrangements and agreements will need to align with the ISF.

Bilateral engagement by partner

Australia

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitment

Brazil

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitment

China

Activity and/or negotiation:

• [redacted]
• [redacted]
• [redacted]

ISF priority:

• Existing international commitments
• [redacted]

Colombia

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitment

Cuba

Activity and/or negotiation: [redacted]

ISF priority: [redacted]

Democratic Republic of the Congo

Activity and/or negotiation: [redacted]

ISF priority: Irregular migration

EU

Activity and/or negotiation:

• Passenger Name Records (PNR) and MRA
• [redacted]

ISF priority:

• Existing international commitments
• Irregular migration

Five Eyes (Australia, Canada, New Zealand, UK, USA)

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitment

France

Activity and/or negotiation: [redacted]

ISF priority: Irregular migration

Hong Kong

Activity and/or negotiation:

• MRA
• [redacted]

ISF priority:

• Existing international commitment
• Interdict drugs

India

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitment

Israel

Activity and/or negotiation: Declaration of Intent Work Plan

ISF priority: Existing international commitment

Malaysia

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitment

Mexico

Activity and/or negotiation:

• Cooperation Agenda
• [redacted]

ISF priority:

• Existing international commitment
• Existing international commitment / irregular migration

Netherlands

Activity and/or negotiation:

• Collaboration with the CBSA Laboratory on the exchange of technical evaluations and reports
• CBSA National Targeting Centre-Netherlands Action Plan

ISF priority:

• Existing international commitment
• Existing international commitment

New Zealand

Activity and/or negotiation: MRA

ISF priority: Existing international commitment

Nigeria

Activity and/or negotiation: [redacted]

ISF priority: [redacted]

Paraguay

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitment

Peru

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitments

South Africa

Activity and/or negotiation: Implementation of the Cooperation Plan

ISF priority: Existing international commitment

Thailand

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitment

UK

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitment

Ukraine

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitment

Uruguay

Activity and/or negotiation: [redacted]

ISF priority: Existing international commitment

USA

Activity and/or negotiation:

• CBSA-U.S. Customs and Border Protection (U.S. CBP) Cooperation Agenda
• [redacted]
• MOU with DHS, CBP Regarding the Sharing of Entry Information (“Entry/Exit”)
• [redacted]
• Integrated Border Enforcement Teams (IBETs) Charter and Statement of Cooperation (Updates)

ISF priority:

• Existing international commitments
• Irregular migration / Interdict drugs
• Irregular migration
• Irregular migration / Interdict drugs

Various

Activity and/or negotiation: FTA Committees and FTA negotiations (Global Affairs Canada determines which countries Canada enters into an FTA, for which the CBSA negotiates the trade facilitation and origin chapters.)

ISF priority: Existing international commitments

Multilateral engagement activities by partner

WCO

Ongoing engagement (e.g., Capacity Building Committee, PTC, Finance Committee, Mercator Programme workshops, Harmonized System Committee, Technical Committee on Customs Valuation, Technical Committee on Rules of Origin)

B5

Ongoing (e.g., Heads meeting, Deep Dives, HINT)

M5

Ongoing (e.g., Heads meeting)

RCCDG

Ongoing (e.g., annual meeting)

FCM

Ongoing (e.g., annual meeting)

WTO

Provide customs expertise to GAC for TFA Committee discussions and any new WTO initiatives that implicate the Agency

Capacity Building Projects activities by partner

Mexico/Guatemala

Work with Mexican and Guatemalan Customs and Immigration authorities to improve passenger processing in the air mode to incorporate effective risk analysis and advance coordinated border management.

Peru

Increase the capacity of Peru Customs to risk assess people and goods, and to identify and intercept drug and currency. In development - Phase II capacity building project with Peru Customs (SUNAT) to continue to build expertise in Risk Management, Targeting, and conducting proactive investigations.

Southeast Asia

In response to critical needs identified in the region, the CBSA will provide operational technical training and workshops to counter human smuggling ventures destined to Canada.

Sri Lanka

In development – Phase II capacity building project with Sri Lanka Immigration (DI&E) to continue to build capacity to conduct proactive investigations to identify handlers / organizers of human smuggling; and, organizational development in preparation for the government initiative of the Integrated Border Management strategy.

Responsive Fund

The CBSA may provide assistance (either by LOs or Canada-based experts) to support Canadian-funded projects implemented by non-governmental partners (IOM, or UNODC for example) around the world.

Annex H: Glossary

Authorized Economic Operator (AEO)

The AEO program is modeled after the World Customs Organizations Framework of Standards to Secure and Facilitate global trade (SAFE) and, through adherence, offers customs administrations enhanced security and facilitation of the global supply chain.

Canada-United States-Mexico Agreement (CUSMA)

Concluded free trade agreement between Canada, the United States and Mexico, which, when entered into force, is expected to replace the North American Free Trade Agreement (NAFTA).

Capacity Building

Developing and strengthening the border management skills, knowledge, abilities, processes and resources that border administrations need to grow, adapt, and thrive in the face of facilitation and security challenges. Capacity Building projects are prioritized based on sustainability and benefits for the recipient country, and alignment to the CBSA international objectives.

Cooperation plans

Prescriptive, results-driven tool for formalized cooperation with like-minded partners on issues of mutual importance. A detailed work plan may also be developed to guide cooperation.

Customs Mutual Assistance Agreement (CMAA)

Treaty-level agreements that allow for the exchange of information, intelligence, and documents to assist countries in the prevention and investigation of customs offenses. CMAAs are sought with countries that present high trade volumes with Canada.

Declaration of Intent (DOI)

Arrangement to promote cooperation in specified areas between bilateral partners.

Free Trade Agreement (FTA)

An agreement to reduce trade barriers and increase trade of goods and services.

International Network

The CBSA’s international network of Liaison Officers, International Network Managers and Regional Directors have the mandate to protect the integrity and security of the Canadian border through a range of reporting, interdiction, investigative and liaison activities related in support of the CBSA's mandate. The Network builds relationships, share best practices with priority partners and supports capacity building initiatives.

International Organization for Migration (IOM)

IOM is an intergovernmental organization that provides services and advice concerning migration to governments and migrants, including internally displaced persons, refugees, and migrant workers.

Multilateral Fora

Engagement in international and regional multilateral fora enables the collective advancement of common border management issues and concerns.

Mutual Recognition Arrangement (MRA)

Arrangement that allows for the mutual recognition of the parties trusted trader programs, thereby approving companies for membership in their respective trusted trader programs and allow both countries to recognize each other's members and grant similar benefits. Trusted Trader programs enhance the security and integrity of the global supply chain through the establishment of customs to business partnerships and by providing streamlined border processes to pre-approved, low-risk traders.

Regional Conference on Migration (RCM)

Multilateral regional forum (in the Americas) on international migration which involves countries that share a common problem dealing with situations of origin, transit and destination for migration. RCM member countries are: Belize, Canada, Costa Rica, El Salvador, United States, Guatemala, Honduras, Mexico, Nicaragua, Panama and Dominican Republic.

Trade Facilitation Agreement (TFA)

The TFA is a World Trade Organization (WTO) agreement which includes provisions for expediting the movement, release and clearance of goods, including in-transit goods. The WTO TFA also sets out measures for effective cooperation between customs and other appropriate authorities on trade facilitation and customs compliance issues. Intended largely for developing countries to reform customs procedures to facilitate global trade, the TFA is a landmark pact. The signing of the TFA marks the first ever agreement signed by all members of the WTO.

World Customs Organization (WCO)

An intergovernmental organization developing international conventions and instruments on commodity classification, valuation, rules of origin, collection of customs revenue, supply chain security, international trade facilitation, customs enforcement activities, combating counterfeiting in support of Intellectual Property Rights, drugs enforcement, illegal weapons trading, and delivering sustainable capacity building to assist with customs reforms and modernization.

World Trade Organization (WTO)

An intergovernmental organization that governs the rules of trade between its Members. The WTO operates a global system of trade rules, provides a forum for negotiating multilateral trade agreements, settles trade disputes between its Members and supports the needs of developing countries. The organization’s goal is to ensure that trade flows as smoothly, predictably and freely as possible.

Annex I: International logic model

Annex J: CBSA international network

Date modified:

2020-01-09