Status report on transformational and major crown projects

Expanding Biometric Screening in Canada’s Immigration System (Biometrics Expansion Project)

Project name:

Expanding Biometric Screening in Canada’s Immigration System (Biometrics Expansion Project)

Description:

Budget 2015 provided funding to expand biometrics collection, screening and verification for all temporary resident visa, work permit, study permit and temporary resident permit applicants (excluding U.S. nationals) and all permanent resident applicants. This includes systematic verification of fingerprints through self-service kiosks upon arrival at major airports, in-Canada enrolment services, and expanded biometric-based information sharing with Canada’s Migration Five (M5) partners (United States, United Kingdom, Australia and New Zealand) to strengthen the decision-making process.

The costs of expanding biometric screening are expected to be fully recovered through the existing biometrics fee.

Project outcomes:

Building on the Temporary Resident Biometrics Project and the Beyond the Border Action Plan, this project supports the government’s international engagement and security priorities, because biometrics and information sharing help make Canada and the world safer and more secure. This project also supports the government’s service delivery priorities, given the expansion of service delivery channels and the facilitated movement of admissible individuals.

Using biometrics as an identity management tool helps supplement existing biographic checks and significantly reduces the chance that one individual could pose as another individual or be mistaken for one. Immigration and border services officers will know with greater certainty if an immigration applicant undergoing biometric screening has a Canadian criminal record, made an asylum claim in Canada, was previously deported from Canada, submitted an immigration application in the past, or has used a different biographic identity.

Biometrics will also provide border services officers with greater certainty that an individual who was granted authorization to enter Canada is the one who is actually seeking entry. Over time, biometrics will also facilitate legitimate travel by:

• Strengthening identity management for informed admissibility decision-making: expanded collection and screening of biometric information will add a more secure and reliable identity element to a wider range of applicants. Immigration information sharing with M5 partners will further enhance identity management by providing officers with more information to confirm an applicant’s identity and detect cases of identity fraud or inadmissibility.
• Denying inadmissible individuals entry into Canada or permission to remain in the country: broader fingerprint collection at the application stage will allow more applicants to be screened against records of known criminals, past refugee claimants, persons previously deported, and previous immigration applicants. This will assist officers in the admissibility decision-making process at the application stage. Immigration information sharing will also contribute further to admissibility screening by providing officers with access to a wider range of immigration data, including valuable identity and admissibility information held by the immigration authorities of M5 partner countries.
• Facilitating movement of admissible individuals into Canada: The expanded collection, screening, verification and sharing of biometrics will simplify confirmation of a traveller’s identity, reduce the need for more in-depth questioning at the application and arrival stages, and facilitate the processing of low-risk returning applicants both overseas and upon arrival in Canada.

Industrial benefits:

The Biometrics Expansion Project will improve the safety and security of Canadian citizens. It facilitates entry to legitimate travellers who contribute to Canada’s economic growth and support Canadian industry while deterring and detecting individuals who pose a risk to Canada’s security and economic and social prosperity.

Sponsoring department:

Immigration, Refugees and Citizenship Canada (IRCC)

Contracting authority:

PSPC

Participating departments:

• Canada Border Services Agency (CBSA)
• Royal Canadian Mounted Police (RCMP)
• Shared Services Canada (SSC)
• PSPC
• Employment and Social Development Canada and Service Canada (as a service provider)

Prime contractors:

• Fujitsu Consulting (Canada) Inc., Ottawa, Ontario, Canada – Technical Solution
• VF Worldwide Holdings Ltd, Port Louis, Mauritius – Service Delivery
• Gemalto, Ottawa, Ontario, Canada. – Technical Solution
• Safran Identity and Security, Oakville, Ontario, Canada – Technical Solution

Major subcontractors:

• Aware Inc., Bedford, Massachusetts, U.S.A. – Technical Solution
• International Organization for Migration (IOM), Geneva, Switzerland – Service Delivery
• CSRA LLC – Falls Church, Virginia, U.S.A. – Service Delivery

Project phase:

The Biometrics Expansion Project is closed as of March 31, 2020, and will fully transition into an ongoing program at IRCC.

Major milestones:

The project was implemented in three phases before transitioning to steady state operations. The end of the project was initially planned for November 2019, but this close out date was extended to March 2020.

Phase 1 – Planning:

• The planning phase was completed in March 2017. During this phase, the project developed preliminary strategies and plans for defining, building and deploying the expanded biometric solution and enhanced information sharing.

Phase 2 – Development:

• The development phase was completed in July 2019. During this phase, requirements for the project were detailed, and plans for defining, building and deploying the expanded biometric solution and information sharing were finalized. Implementation of the in-Canada service channel, launched in December 2019, was also part of Phase 2. Other major milestones for this phase include the publication of regulations around both systematic information sharing with M5 partners and regulations expanding the biometrics requirement for applications to Canada, enabling technology and enabling policy documents, and business processes for expanding biometrics enrolment and information sharing.

Phase 3 – Deployment:

• The deployment phase started in 2017 with the launch of systematic information sharing with Australia. Deployment for all deliverables was completed in March 2020, with the exception of systematic fingerprint verification capability at two airports (Toronto Pearson and Montréal) and automated biometric-based information sharing with the United Kingdom. During this phase, the biometric solution and supporting infrastructure was finalized. The communications plan prepared clients, partners and other stakeholders for the expansion of biometric screening and information sharing. Responsibility for the outstanding deliverables has been transferred to ongoing operations.

Major milestones include:

• April 2017: published regulatory changes that enable automated information sharing with Australia, New Zealand and the United Kingdom
• April 2017: commenced biometric-based information sharing with Australia
• March 2018: commenced biometric-based information sharing with New Zealand
• July 2018: completed and published regulatory changes for expanded authority to collect biometric information from additional nationalities and business lines
• July 2018: increased biometric-based information sharing with the United States coincided with the first coming-into-force date
• July 2018: expanded the footprint of Visa Application Centres (VACs) in Europe, Africa and the Middle East under the old contract
• July 31, 2018: first coming-into-force of the expanded biometrics regulations, which affected foreign nationals from Europe, Africa and the Middle East
• November 2018: established new VAC contracts Asia, Asia Pacific and the Americas
• December 31, 2018: second coming-into-force of the expanded biometrics regulations, which affected foreign nationals from Asia, Asia Pacific and the Americas
• March 2019: commenced systematic fingerprint verification at major airports commenced
• November 2019: established new VAC contracts for Europe, Africa and the Middle East
• December 3, 2019: deployed the in-Canada biometric collections network at 58 Service Canada locations

Progress report and explanation of variances:

Initial funding for the Biometrics Expansion Project was announced in Budget 2015. In June 2015, new funding of $312.6 million over five years was approved, with $103.2 million ongoing (excluding HST).

• Planning objectives set out in Phase 1 were achieved in March 2017. Phase 2 development objectives were completed as of July 2019.
• The start of Phase 3 was delayed from March 2017 to May 2017 and closed in March 2020. While systematic fingerprint verification through self-service kiosks was part of the project, there were indefinite delays in implementation at two major airports. These airports have been de-scoped from the project. CBSA has absorbed the future implementation of the kiosks as part of its normal operations.
• The regulatory changes for information sharing with M5 partners were finalized and published in April 2017. Systematic information sharing with Australia was launched in April 2017 and with New Zealand in March 2018. Plans to implement systematic information sharing with the United Kingdom has been delayed due to competing priorities in that country. As such, implementation of information sharing with the UK has been de-scoped from the project and will be revisited when the UK is ready.
• Regulatory changes for expanded authority to collect biometric information from additional nationalities and business lines were published in July 2018.
• The biometrics enrolment service in Canada, originally planned for April 2017, experienced challenges as Service Canada required mandate authority—through legislative amendments to the Department of Employment and Social Development Act—to collect biometric information on behalf of IRCC. The service was in place as of December 3, 2019.
• Challenges related to Visa Application Centre procurement delayed full deployment of the VACs and completion of the project to November 2019, eight months later than the originally planned project end date of March 2019. This delay was mitigated by adding service under the old contracts to ensure an adequate service footprint in advance of the first coming-into-force date.
• The project has achieved the majority of its deliverables. This includes M5 information sharing with Australia and New Zealand, expanded information sharing with the United States, expanded biometric enrolments for all foreign nationals applying to Canada for a visa or permit, having collection service points in place in Canada and around the world. It also includes systematic fingerprint verification capabilities at 8/10 major Canadian airports and biometric enrolment and verification capabilities at 57 ports of entry. Consequently, the project met the majority of anticipated business outcomes. Remaining work to implement systematic fingerprint verification at two additional major airports, as well as work to implement automatic information sharing with the UK, has been de-scoped from the project. The work to complete these outcomes will continue, funded under normal operations. In addition, several outstanding changes that could not be completed within the timeframe of the project have been transferred to operations. Funding for these activities has been approved and IRCC is prepared to track progress until their completion. IRCC deems that the nature and extent of these outstanding activities falls within reasonable expectations of a project of this size and complexity.

Initially, the Biometrics Expansion Project was granted an indicative cost of $146,715,871. Since allocation of the budget, a number of amendments have been approved based on further substantiation of costs. The last funding submission granted an amended project approval at a total substantive cost estimate of $176,060,624. The project is currently reporting an approved budget of $164,400,000, as funding for systematic fingerprint verification during primary inspection at the top eight airports (kiosks) remains frozen.

The Biometric Expansion Project reported a total surplus in the amount of $30.8 million for 2019–20. This surplus is mainly related to the de-scoped activities, such as verification at Toronto and Montréal airports, criminal removal information sharing - Immigration Information Sharing Project, service-oriented architecture, licensing and overseas enrolment. There are also activities having a lower cost than what was been anticipated and remaining contingency at project closure (March 31, 2020).

Passport Program Modernization Initiative

Project name:

Passport Program Modernization Initiative (PPMI)

Description:

In July 2013, accountability for the Passport Program (formerly Passport Canada) was transferred from the Minister of Foreign Affairs to the Minister of Immigration, Refugees and Citizenship. This organizational change aimed to leverage IRCC’s operational expertise and information technology platform, as well as ESDC’s domestic service delivery capacity and the Service Canada network. The Minister of Foreign Affairs at Global Affairs Canada was authorized to continue providing passport services delivered abroad through Canada’s consular network, working in partnership with IRCC and ESDC.

The modernization of the Passport Program stems from the need to manage significant volume fluctuations as a result of the new 10-year business cycle, increasing client expectations around service delivery, and evolving security requirements, including improved identity management capabilities. The program’s current passport issuance system, service delivery model and operational business processes limit the ability to respond effectively to these drivers while maintaining service levels in a cost-effective manner for Canadians.

As a result, PPMI was created to support the transition of the Passport Program into IRCC and ESDC, strengthen integrity and security, and increase domestic access to passport services.

Project outcomes:

In designing, testing and implementing a new passport issuance platform, PPMI aims to achieve the following outcomes:

1. Increase the efficiency of the Passport Program by ensuring that application processing is streamlined, use of resources is optimized, and all aspects of the program’s operations have the automation and scalability necessary to respond effectively to volume fluctuations as a result of the 10-year business cycle.

Key outcome measurements

• Percentage of applications passing through end-to-end automated decision-making
• Average number of days taken to send an application from intake to the print queue

2. Strengthen the integrity and security of the Passport Program to keep pace with evolving international passport issuance and identity management best practices, maintain the reputation of the Passport Program, and facilitate Canadians’ travel.

Key outcome measurements

• Percentage of applications undergoing automated validation against trusted sources
• Number of passport application referrals to IRCC (per reason)

3. Increase access to passport services for Canadians by providing the platform required for consistent in-person services at more locations in Canada, and by laying the foundation for online passport services and automation to improve the service experience.

Key outcome measurements

• Number of Service Canada Centres offering consistent in-person services
• Percentage of Canadians with access to a Service Canada point of service within 50 km of where they live

Industrial benefits:

Not applicable (N/A)

Sponsoring department:

IRCC

Contracting authority:

IRCC

Participating departments:

PPMI requires a concerted and coordinated effort across three departments:

• IRCC
• ESDC
• SSC

Prime contractor:

N/A

Major subcontractors:

N/A

Project phase:

Phase 1 – Project Initiation and Initial Deployment

• In 2013, the PPMI Business Case was approved with funding for completing the Passport Program changes and modifying the technology platform to serve as the new passport issuance system.

Phase 2 – Global Case Management System (GCMS) Passport Module Upgrade and Business Transformation Planning

• In 2015, approval was received for amended project and expenditure authority to allow the addition of two months to Phase 1 and to continue the development and deployment of GCMS. Business transformation deliverables completed in Phase 2 included a Target Operating Model for the program, comprehensive and prioritized business requirements, a methodology for indicative project and operational costing, and a draft PPMI Business Case.
• In June 2017, based on results from testing and the findings of an independent review, a new business case and more rigorous business transformation planning were developed to ensure modernization objectives were achieved.
• Approval was received to proceed with a revised scope in June 2018.

Phase 3 – Implementation and Deployment (Current Phase)

• On February 21, 2019, approval was received to finalize the scope of the project, including approval of the final business case, deployment plan, and final costing for implementation.
• In December, 2019, deployment at IRCC commenced for a small number of select users.
• In August 2020, Pre-Pilots at ESDC were successfully launched for a small number of users. This constitutes an important part of a phased and gradual approach to implementation, and is key to assuring system stability and cultivating user confidence.
• Phased pilots will continue throughout 2021 in a few passport/Service Canada offices followed by phased deployment to ESDC processing centres and more than 300 Service Canada sites in 2022. Please note: Impacts of the COVID-19 pandemic are currently being assessed.

Major milestones:

• May 2015: Obtained project approval and expenditure authority for Phase 1 (amended) and Phase 2.
• May 2015: Developed and conducted initial test of the new Passport System Module.
• October 2016: Conducted controlled environment testing of passport issuance system for mail-in passport applications.
• June 2017: Received approval with conditions to extend the PPMI to December 2018. A new business case and more rigorous business transformation planning were identified as required to achieve modernization objectives.
• January 2018: Initiated third-party review of PPMI’s final business case and indicative total project and operational costs.
• February 2019: Received approval for the final business case, deployment plan and final costing for implementation.
• December 2019: Deployed the new passport issuance platform internally at IRCC, which included automated processing in the GCMS.
• January 2020: Expanded the IRCC deployment phase to include the integration of the new intake tool, enabling full end-to-end processing of passport applications using the new platform. A total of 984 passport applications have been processed using the new PPMI solution since December 2019.
• March 2020: Successfully concluded the IRCC deployment phase as planned and began to transition toward preparation for pilot projects at ESDC.

Progress report and explanation of variances:

• PPMI was approved with an estimated cost of $101.3 million (including HST). This project is funded by the Passport Investment Fund in December 2013.
• Approval was received to amend project estimated costs to $176.0 million (including HST) in May 2015. This increase of $74.7 million (including HST) was mainly attributable to additional new business and information technology requirements to enhance system integration, training and a better understanding of the risk surrounding this initiative.
• Additional expenditure authorities were granted in June 2017 to undertake business transformation planning activities and additional information technology design and development work for the new passport issuance platform. The overall project approval remained at $176.0 million (including HST).
• Amended project approval of $199.5 million (including HST) was granted in February 2019. The project approval increase of $23.5 million (including HST) is due to new business transformation activities, extended project length, privacy considerations, a new IT deliverable, a refined deployment plan, creation of a Controlled Passport Processing Unit, and a review of contingency rates.
• PPMI is scheduled to be completed by 2022. (Note: Currently under revision due to COVID-19 delays).

ePassport Next Generation

Project name:

ePassport Next Generation

Description:

The ePassport Next Generation Project secured a new contract to procure and deploy a new solution for all Canadian travel documents across the domestic and international passport networks. This contract includes a new secure book design that is aligned with international standards, new personalization equipment, a new personalization software solution, and maintenance and support domestically and abroad.

Project outcomes:

The ePassport Next Generation Project aims to achieve the following outcomes:

• A secure booklet design that contributes to the confidence that Canadians have in the Passport Program, which will be measured using data drawn from the annual Passport Program client satisfaction survey.
• The integrity of the Passport Program addresses national and international security interests, which will be measured in terms of the improved overall security design and alignment with documents issued by Canada’s Passport Six Group partners.
• Canadian travel documents are internationally respected and recognized, measured by their compliance with international standards.

Together, these outcomes will facilitate international travel that promotes Canadian interests and protects the health, safety and security of Canadians.

Industrial benefits:

The Project team worked to ensure the new contract meets the constantly evolving requirements of global travel. The Project continues to provide the Passport Program with opportunities to re-evaluate key aspects of the ePassport Next Generation solution, including secure personalization technology, enhanced travel document security features, and a five-year document design cycle that is synchronized with the contract lifecycle. Furthermore, the project is supported by a robust maintenance and support plan.

Sponsoring department:

IRCC

Contracting authority:

Public Services and Procurement Canada (PSPC)

Participating departments:

• IRCC
• ESDC
• GAC
• SSC

Prime contractor:

Canadian Bank Note Company Ltd (CBN), headquarters based in Ottawa, Ontario.

Major subcontractors:

Names not disclosed to maintain the integrity of the supply chain. Various raw goods and primary material for manufacturing Canadian travel documents.

Project phase:

Phase 1 – Planning and Identification

• The planning and identification phase identified the procurement strategy for the project. Phase 1 was launched by posting a Request for Information to broaden IRCC’s understanding of potential solutions and inform the study of available options to form a comprehensive business case, which laid the foundation for the ePassport Next Generation Project. It was completed in May 2017.

Phase 2 – Definition

• The definition phase detailed requirements and solidified strategies and plans to establish a contract to provide the ePassport Next Generation Solution following a competitive procurement process. Phase 2 included the Invitation to Qualify, aimed at pre-qualifying suppliers, and the development and posting of the Request for Proposal. Project Authority and Expenditure Authority were received in May 2019 for Phase 3 – Implementation.

Phase 3 – Implementation (Current phase)

This phase, initiated in June 2019, includes the following activities:

• Design of the new suite of travel documents
• Development of the new ePassport solution
• Phased deployment at designated sites in Canada and at missions abroad

Major milestones:

• June 2017: Posted Invitation to Qualify on www.BuyandSell.ca. Potential bidders were evaluated in September 2017.
• December 2017: Sent draft Request for Proposal to pre-qualified contractors.
• April 2018: Sent final Request for Proposal to qualified contractors, with bid submissions due in August 2018.
• May 2019: Awarded contract to Canadian Bank Note Company Ltd.
• February 2020: Developed baseline integrated project schedule for Phase 3.
• March 2020: Completed the integrated Change Management Plan.

Progress report and explanation of variances:

• The ePassport Next Generation Project was initially approved in June 2017 at an estimated cost of $115.1 million.
• The June 2017 approval included expenditure authority for Phase 2 (Definition) of the project, to develop the statement of requirements and complete a competitive procurement process, at an estimated substantive cost of $17.9 million.
• In May 2019, the project received amended approval of $99.6 million (including HST) to complete Phase 3 (Implementation) activities to develop and deploy Canada’s ePassport Next Generation suite of travel documents. This represents a decrease of $15 million (including HST) from the total indicative cost estimate established by the previous project approval decision in June 2017.
• Expenditure authority was approved for Phase 3 (Implementation) to undertake project implementation activities at an estimated substantive cost of $93 million (including HST).
• The phased deployment of the solution was scheduled to commence in December 2020. However deployment was postponed to July 2021 to align with the Passport Program Modernization Initiative deployment timeline.