Service Improvement Plan 2018-2020 - Irish Naturalisation and Immigration Service
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Service Improvement Plan 2018-2020
Irish Naturalisation and Immigration Service
1Document version control
Version Update Author Date
2.0 Final version for publication INIS Change October 2018
Management Unit
- Neil Ward and
Richael Duffy
2Table of contents
Foreword.............................................................................................................................. 5
1. Introduction ...................................................................................................................... 6
1.1. Background ............................................................................................................ 6
1.1.1. INIS Service Delivery Strategy ............................................................................ 7
1.1.2. Developments in Public Sector Service Design ................................................... 8
1.1.3. INIS Senior Management Forum ......................................................................... 9
1.1.4. OnePlan 2018 ..................................................................................................... 9
1.1.5. 2018 INIS Business Plan ................................................................................... 10
1.1.6. INIS Service Improvement Drive ....................................................................... 14
1.1.7. Additional inputs of note .................................................................................... 16
1.2 Pillars .................................................................................................................... 17
1.3 Responsibilities ..................................................................................................... 17
1.4 Structure of the report ........................................................................................... 18
2. Pillars, Objectives and Actions .................................................................................... 19
Pillar 1 Our mission, purpose and legislative context ..................................................... 20
Pillar 2 A safe and secure immigration system ............................................................... 26
Pillar 3 Efficient and effective service delivery ................................................................ 31
3Pillar 4 Service design based on customer needs .......................................................... 40
Pillar 5 Investing resources to deliver change ................................................................ 47
3. Implementation, Monitoring and Review ........................................................................ 53
3.1 Risk Assessment .................................................................................................. 53
3.2 Monitoring and Reporting ..................................................................................... 53
3.3 Governance .......................................................................................................... 54
Appendix 1 – INIS Senior Management Forum – Key discussion points ........................... 60
Appendix 2 – Refreshed INIS Service Delivery Strategy ................................................... 61
Appendix 3 – Culture and Values Charter.......................................................................... 62
Appendix 4 – Commitments from the Programme for a Partnership Government ............. 65
Appendix 5 – Service Improvement Plan 2018-2020 High level Risk Register .................. 66
References ........................................................................................................................ 69
List of Acronyms ................................................................................................................ 70
4Foreword
The Irish Naturalisation and Immigration Service (INIS) has grown considerably in scale and
scope since it was established in 2005. INIS now comprises approximately one third of all
staff in the Department of Justice and Equality, and we process over 250,000 applications
a year – for visas, registration of non-EEA nationals, residence permissions, international
protection and citizenship. In addition, up to 16 million passengers are expected to be
immigrated by INIS through Dublin Airport.
It is clear to all of us working in immigration services that the demands we will face are likely
to continue to grow over the coming years. Meeting those demands requires that we seek
to deliver our services in different ways, and not just ask our staff to work harder. In a rapidly
changing international context, we must also become a more nimble organisation, and one
which focusses on delivering high quality services to all of our customers.
This Service Improvement Plan sets out our plans to achieve all of this between now and
the end of 2020. Every business area within INIS has been involved in its development, and
I appreciate the efforts involved by all of our teams. The plan has also benefitted from inputs
from members of the Management Board, and from staff in other business areas across the
Department of Justice and Equality. The assistance of the National Adult Literacy Agency
(NALA) was also valuable in carrying out a plain language edit of this document, to make
sure that this document will be accessible to all staff and stakeholders.
This Service Improvement Plan is ambitious in scope. But it is also realistic – these actions
can be delivered within the timeframes set out here, and a strong Programme Board will be
established to make sure that is the case. Detailed Annual Implementation Plans will ensure
that we are all held to account for the commitments we are making in this plan. It’s an exciting
time to be working in INIS, and in the Department more broadly – I have no doubt that this
plan will evolve as we meet these and fresh challenges in the years ahead.
Michael Kirrane
Director General
Irish Naturalisation and Immigration Service
51. Introduction
This plan sets out the strategic priorities, objectives and actions for the Irish Naturalisation
and Immigration Service (INIS) to improve our services over the period 2018-2020. It takes
account of the available funding, ongoing projects and what can be delivered by realistic
and achievable objectives to improve the efficiency and effectiveness of the services
provided. The plan promotes the principle of designing our services around our customers’
needs. It draws on the work completed as part of the Service Delivery Strategy for INIS and
the objectives and actions are consistent with the priorities of the 2018 INIS Business Plan
and OnePlan2018 as well as the broader Public Sector reform agenda.
1.1. Background
In 2017 INIS processed almost 214,000 applications across the various business areas,
completed 75,000 registrations in the Burgh Quay Registration Office and processed 15
million inbound passengers at Dublin Airport. Registrations increased by 15% and traffic
through Dublin Airport increased by 20%.
The current arrangements for service delivery rely on a number of information and
communication technology (ICT) systems that have limited interoperability, and our
processes are heavily dependent on paper-based processing.
In the absence of an organisation-wide review of processes and investment in technology
to introduce efficiencies, we would need to keep increasing our staff numbers as demand
for our services continues to grow. This is not sustainable. In addition, there is a growing
need to develop or replace current infrastructure.
As we look to the future, our current approaches to service delivery will become ever more
challenging. The quality of service we provide would reduce, while the capacity of our staff
would be outstripped by the demands placed upon them.
We already have a number of projects underway which are aimed at improving our services,
and this plan has been informed by significant preparatory work which has been carried out
within INIS over the last 18 months. These and other inputs are summarised below.
61.1.1. INIS Service Delivery Strategy
In February 2017, the INIS senior management team agreed a medium-term service delivery
strategy for immigration services. This work has recently been refreshed, and the updated
version is available at Appendix 2.
The key observations of the current landscape within INIS outlined in that document are:
The IT systems are complex and do not share information efficiently. There are three
process models supported across five IT platforms with minimal interoperability. This
makes it difficult to gather all the information needed to create a full profile of an
individual. It is also an expensive model to maintain, driving inefficiencies and
complicating governance.
The role of INIS has extended to encompass Border Management and Registration
services exacerbating existing challenges. The IT system that supports these
services, GNIB-IS, is outdated. Support for the operating system has not been
available since 2008.
INIS’ ability to respond speedily to legislative, policy and security change agendas is
hampered by the complexity and ownership of the current IT systems landscape and
its capability to deliver requirements.
As demand for INIS services continues to grow low levels of investment in digital and
self-service technologies continues to contribute to an inefficient use of resources,
poor customer service and lengthy processing times.
Limited focus on data quality standards and controls has led to trust issues with the
current data set, which is compounded by high volumes of paper handling and paper
file management.
Access to information to underpin decision making and to validate a person’s identity
can be incomplete, inaccurate, or inaccessible. This leads to lengthy processing
times and inconsistent decision making, exposing INIS to external threats.
Gap between the demand for service support hours and the supply model. This is the
case with the visa process globally and at ports of entry where the need is for a 24-
hour support service, 365 days a year.
From these observations, and from efforts to position the organisation with regard to the
7future landscape, the Service Delivery Strategy focussed on three main recommendations:
1. Invest in up-to-date technologies
This investment would introduce efficiencies, whilst at the same time eliminate barriers to
confident, consistent and compliant decision-making practices, with an approach that
aligns to the Public Service Reform and ICT Strategies.
2. Review the current immigration processes
Such a review should examine processes from start to finish. This includes examining all
parts – that is, applications, border procedures and registrations. The review should be
conducted with the service user in mind and make design decisions that balance user
needs and the rules laid down by the legislative and security focused environment within
which INIS operates
3. Build change management policy and procedures
These should be built into the organisation structure & governance model, and equip the
team with methodologies, tools & skills to support strategic business change initiatives.
Start initially with a centre of excellence and over time, infuse change management
competencies across the organisation
While the Service Delivery Strategy outlines a high-level road-map for delivering these
recommendations, it stops short of meeting the level of detail required. It has, therefore,
been used as an input only to this Service Improvement Plan, and is superseded by the
actions outlined within this plan.
1.1.2. Developments in Public Sector Service Design
Service design is an increasingly important approach to improving public services by
streamlining processes and ensuring better customer experiences. A vital element of
Service Design is engaging with Service Users during the Service Design Process. The
Department of Public Expenditure and Reform has provided access to a toolkit on Service
Design Methodologies on its website.
On 12 January 2018, senior managers from across the Justice and Equality sector gathered
8at Dublin Castle for a Senior Management Conference.
The event focussed on developments in technology, on innovation through people and
design, and on designing services to meet user needs. During this event, the progress made
by bodies such as Cork County Council to enhance service delivery was outlined. This
triggered much subsequent debate about how services in the immigration sector might be
improved.
In addressing the Conference, the Acting Secretary General noted that “designing our
services in a targeted way - preferably in partnership with the customer - can solve complex
problems, help us to respond to ever-increasing demands and meet the legitimate public
expectations for greater efficiencies in the delivery of services”, and this is an idea which
has been explored further within INIS over the last three months.
1.1.3. INIS Senior Management Forum
On 19 January 2018, senior managers from across the immigration sector (INIS, but also
IPAT, RIA, IRPP) gathered for a Senior Management Forum.
This event was the first such event to have been planned within the immigration services
over recent years. It particularly focused on the two strategic goals within the Department
Statement of Strategy for which INIS has responsibility:
A Fair and Balanced Immigration and Protection Regime, and
Developing our people, culture, systems and processes
Within the framework of these goals, participants were asked to identify areas of
organisational focus for the coming year.
Some of the main points which emerged during these discussions are included at Appendix
1.
1.1.4. OnePlan 2018
The 2018 OnePlan was published in March 2018, and sets out the following strategic actions
to be advanced by INIS during 2018:
9OnePlan ID Strategic action
3.1.4.4 We will develop the necessary technical and legal infrastructure to
implement the PNR Directive and give effect to other EU measures
concerning police cooperation (Phase 2).
3.4.1.2 We will ensure full implementation of Ireland’s opt-in to the EU Reception
of Asylum Seekers (recast) Directive, including the right to seek work.
3.4.3.2 We will enhance Border Security including working with UK on further
enhancing security of the CTA (Phase 2).
3.4.3.3 In conjunction with D/FAT, we will carry out a review of worldwide visa
service and commence implementation of the subsequent
recommendations.
3.4.4.3 We will transfer Registration Functions from AGS to INIS.
3.4.4.4 We will implement Process Changes to the service to improve its
productivity, quality and customer service such as delivery of online
services and improvements to data infrastructure and quality including
ICT supports for priority business objectives.
3.4.5.1 With regard to implementing EU regulations, we will ensure a stringent
and effective approach to speedily refusing bogus applications and
facilitating removal from the State. We will increase cooperation with UK
in cracking down on the increasing numbers of bogus asylum seekers
applying for unmerited asylum status following expiry of their UK Visa.
3.4.5.2 We will implement the new enforcement and deportation provisions in the
recently enacted International Protection Act 2015 to get tougher on
abuses of our migration system.
1.1.5. 2018 INIS Business Plan
The senior management team agreed the 2018 INIS Business Plan in March 2018. It
captures all of the strategic actions outlined in the OnePlan, as well as a number of other
priorities for INIS. These are captured within seven core objectives for INIS during 2018,
and are outlined below.
10Objectives: Actions to achieve these
1. Efficient processing - Implement and review operational procedures for the single
of all immigration application procedure with priority being given to case
cases processing and to reduce legacy cases on hands.
- Implementation of administrative Right to Work scheme in line
with judgment regarding the right to work for those in the
protection process.
- Opt-in to the EU (recast) Reception Conditions Directive
- Implement the Irish Refugee Protection Programme including
operational aspects in the International Protection Office.
- Process a broad range of applications for immigration status
- Process cases for persons who have no right to remain in the
State in accordance with national law. Manage voluntary
returns and enforced removals as a last resort.
- Process a broad range of visa categories with volumes
expected to exceed 120,000 in 2018.
2. Brexit and - Continue to develop BREXIT strategy in relation to the CTA.
protecting the
- Work with the UK through the Common Travel Area Forum
Common Travel Area
(CTAF) on the ongoing operation of the Common Travel
Area.
- Liaise with GNIB on periodic operations to protect the CTA.
- Further enhance the security of the Common Travel Area.
- Evaluate and agree the further rollout of the British Irish Visa
Scheme (BIVS) with UK partners.
3. Responsive Policy - Administer and monitor schemes for encouragement of
Formation, including entrepreneurs, business investments and other opportunities
EU Matters to encourage new business opportunities and inward
investment in Ireland.
- Administer the Immigrant Investor Programme, and chair the
Investor Programme Steering Committee.
11- Maintain monitoring role of international student regime.
- Analyse legislation for future immigration needs
- Implement new schemes approved by Minister and
Government, including the FRHAP, as well as changes
needed to respond to court judgments.
- Commence the implementation of online applications starting
with a pilot scheme in Q2, for new schemes as they come on-
stream, and on a phased basis for other schemes.
4. Border - Continued rigorous control of Ireland’s borders.
Management and - Advance the operation of Electronic gates at Dublin Airport.
Security - Establish the Irish Passenger Information Unit in line with EU
decision and forthcoming legislation
- Establish passenger data processing and analysis facility and
contribute to the introduction of PNR project.
- Work with the US authorities on immigration related aspects
of US Visa Waiver Programme.
- Further utilise technology to enhance border security
including though watchlists, access to case management
systems and interfaces to EU based systems.
- Civilian Immigration Officers at DAP: review staffing and
operational model to include conditions of service and powers
of civilian IOs.
- Conduct survey of requirements for the deployment of civilian
immigration control model to other airports/ports
5. An Ambitious - Maintain and enhance cooperation with other State agencies
Reform Programme to ensure a more cohesive approach to immigration/protection
related matters and to ensure needs and rights of immigrants
are met and respected and that the immigration system
reflects wider public policy priorities.
- Finalise and implement an INIS Service Delivery Strategy
2018-2020
12- Consider the possibility of combining the new IRP card with
the Public Service Card
- Integration of re-entry visa and registration functions
- Commence the process of transferring responsibility for
registration of non-nationals who reside outside Dublin from
GNIB to INIS.
- Under 16 year olds to be brought into the registration system,
commencing with 14-16 year olds.
- Implement a series of reforms to the visa regime.
- In conjunction with DFAT, carry out review of worldwide visa
service delivery and commence implementation of the
review.
6. Robust response to - Actively manage and monitor cases in the Judicial Review
legal action process to ensure that appropriate decisions are taken and,
where appropriate, procedures are revised to take account of
Court judgements.
- Examine the process to identify efficiencies and continue to
work with other agencies of the State in reforming the JR
process and addressing the backlog of cases on the Courts
Asylum list.
7. Corporate - Work with Human Resources Division to ensure that
functions that support sufficient resources are available to deliver key services.
our work
- Continue to provide training programmes for continuous
professional development.
- Ensure the PMDS process is implemented for all staff.
- Implement new technologies to improve service delivery to
customers including new on-line self service capabilities.
- Enhanced INIS communications through website and all
communication channels
- Provide research and statistical information for national, EU
and local management as required.
13- Operate effective business planning in INIS
1.1.6. INIS Service Improvement Drive
Following on from the INIS Senior Management Forum (see 1.2 above), the Director General
initiated an exercise at the end of January 2018 to identify opportunities for streamlining of
processes and procedures.
That exercise resulted in the submission of 76 suggestions for potential process
improvements, with about half of these identified as possible ‘quick-wins’ to be achieved
within the next 18 months or so. These areas on which rapid progress might be made are
summarised in the following five potential areas of focus.
Area 1: Restructuring of INIS business areas, to include:
- Re-organisation of Repatriation Case Processing to form a Case Processing
Support Unit and five focused case processing teams
- Introduce a triaging system for visa applications
- Outsource photocopying within the IPO
- Creation of specialised teams within the LSSU
- Set up a centralised investigation and liaison unit for all INIS
- Set up a centralised Training Unit
- The EU Funds Unit to take over the management of the returns aspect of the
AIMF
- Create a new Communications Unit from within existing resources, incorporating
Oireachtas Mail, Website, PQ and Policy Coordination teams.
- Regular staff mobility within the INIS.
Area 2: Policy/process changes to improve efficiency:
- Domestic schemes – rationalisation of certain schemes or phasing out of certain
schemes
- Moderation of threshold for granting permission to remain (PTR) in illegal cases
14- Carry out a review of the Immigrant Investment Programme.
- Clear and streamlined policy on accounting processes for Travel Docs
- Postal renewal for low-risk customers, such as students on a multi-year degree
course
- Providing for the granting of 3-year permissions for cases under 3(6) leading to
granting of permission to remain as well as the consideration of applications for
renewal of permission to remain from persons previously granted status.
- EUTR In Country & Domestic Schemes – improve the approach to investigation
of immigration abuses.
- Process clarity on the read-across between EUTR and Domestic Scheme
permissions granted under s.4(1) of the 2004 Act
- Review the documentation requirements for the various categories of visas.
- More efficient structuring of the removal process.
- Checking of passports and other ID documents be introduced at initial registration
and at other strategic stages throughout a person’s interaction with immigration.
Area 3 ICT developments, including:
- Clear guidelines for all of INIS to reflect on AISIP whether an applicant has a
passport
- Procurement of new appointment and queue management system for the
Registration Office and re-entry visas
- Enhanced automation of invoicing for legal panel members
- Move away from reliance on paper based manual staff processing to decision
making supported by technological advancements
- Enhance IT technology in the IPO to support a more streamlined business
process.
15Area 4: Consolidation of legal expertise:
- Repatriation to co-operate with the IPO on a proposed new open competition to
recruit new Panel Members, and to consider the appropriate fee level for Panel
Members
- Legal actions in Citizenship cases to be centralised in the existing LSSU
- EUTR In Country & Domestic Schemes - streamline efforts in relation to legal
challenges.
Area 5: Review of all INIS forms with a view to:
- Increase accessibility of language
- Streamline processes
- Improve data quality
- Ensure GDPR compliance
- Prepare for move to online forms
1.1.7. Additional inputs of note
While the series of inputs outlined above is considerable, and highlights the complexity of
the landscape, this is not an exhaustive set of inputs. In devising this Service Improvement
Plan, we have also taken the following into account:
Relevant departmental and public sector policies like our Culture and Values Charter.
(See Appendix 3.)
The recommendations included in Our Public Service 2020, including any new
supports for innovation that are made available.
The Department HR Strategy.
The commitments relating to immigration from the Programme for a Partnership
Government (see Appendix 4).
Reports from the Effectiveness and Renewal Group (ERG).
16We intend to monitor the progress of change and impact of the Plan through:
Annual implementation plans which also incorporate actions emerging from future
sectoral developments. (see Section 3 of this document); and
1.2 Pillars
The following five pillars have been selected to help shape the specific actions to be carried
out by INIS by the end of 2020.
Pillar 1 - Our mission, purpose and legislative context
Pillar 2 - Maintaining a safe and secure immigration system
Pillar 3 – Efficient and effective service delivery
Pillar 4 – Services designed based on customer needs
Pillar 5 – Investing resources in delivering change
1.3 Responsibilities
INIS Director General
The Director General of the Irish Naturalisation and Immigration Service is the programme
sponsor for this Service Improvement Plan. He will chair the Programme Board, which will
meet quarterly and include all members of the INIS Senior Management Team as well as
representatives from HR and ICT Divisions of the Department of Justice and Equality.
Programme Board
The Programme Board will communicate strategic direction and ensure consistency of
programme with overall strategy. It will also manage critical risks and issues, review
programme milestones, and be consulted on all major decisions.
17Change Management Unit
The INIS Change Management Unit (CMU), alongside all Project Managers throughout the
organisation, will serve as the Programme Team. This team will meet fortnightly to plan and
manage the execution of all aspects of the Service Improvement Plan.
Individual business responsibilities
Individual business responsibilities for each of the actions contained within this plan are
outlined in Section 2. Greater detail on implementation and governance structures and roles
are provided at Sections 3.
1.4 Structure of the report
The remainder of this document is structured as follows:
Section 2: Objectives
Section 3: Implementation, Monitoring and Review
Appendix 1: INIS Senior Management Forum – Key Points
Appendix 2: Refreshed INIS Service Delivery Strategy
Appendix 3: Culture and Values Charter
Appendix 4: Commitments from the Programme for a Partnership Government
References
182. Pillars, Objectives and Actions
The following five pillars have been selected to help shape the specific actions to be
progressed by INIS over the coming three years.
Pillar 1 - Our mission, purpose and legislative context
Pillar 2 - Maintaining a safe and secure immigration system
Pillar 3 – Efficient and effective service delivery
Pillar 4 – Services designed based on customer needs
Pillar 5 – Investing resources in delivering change
All timelines in the tables below, apart from those projects already underway, are indicative
at this stage and will be settled during the preparation of the annual implementation plan
each year. Detailed annual implementation plans will be devised by the Programme Team
for approval by the Programme Board. Where resources might constrain our ability to deliver
upon any action, this will be clearly called out.
19Pillar 1 Our mission, purpose and legislative context
The current mission statement was prepared when INIS was established in 2005. Over
recent years, the role of the organisation has expanded.
Firstly, INIS took responsibility (from the Department of Foreign Affairs and Trade) for visa
processing. More recently, the registration of non-EEA nationals and border control at
Dublin Airport were civilianised and came within the remit of INIS. The enactment of the
International Protection Act saw the International Protection Office become part of INIS,
while the Irish Passenger Information Unit has been established as part of INIS in 2018
Review of mission and culture needed
Given these significant changes to the landscape in which we operate, it would therefore be
useful to consider a review of our current mission. We intend to carry out a review and
refresh of the INIS mission statement to be completed by Q1 2019. This will involve a deep
consultation with our own staff, stakeholders and customers.
Organisational culture can impact strongly on organisational performance. Action 18 of Our
Public Service 2020 encourages public sector organisations to undertake an asses their
culture and to follow up on areas that need improvement. We intend to carry out an
assessment of INIS culture and to prepare an action plan to assist in embedding the values
set out in the Department of Justice and Equality Culture and Values charter within INIS.
Legislation and the wider context
The legislation which underpins the immigration sector in Ireland impacts considerably on
our work. While the legislation relating to international protection was comprehensively
reformed through the International Protection Act 2015, other aspects of immigration have
not been revisited over recent years. The Programme for Government contains a
commitment to “introduce a comprehensive Immigration and Residency Reform Bill, aimed
at modernising Ireland’s visa and residency systems”. A review of the legislative landscape
has started during 2018, and will be continued during the lifetime of this Plan.
While domestic legislation has a significant impact upon our work, so does the international
context in which we operate. Brexit and the European migration crisis can both be expected
20to require significant attention during the coming years, and the actions detailed below
represent our determination to manage the fallout from such events.
21Pillar 1 - Our mission, purpose and legislative context
Objectives Actions Business Lead Start Date End Date
To review of our - Establish a working group to oversee the review. Change Oct 18 Oct 18
mission and purpose management unit
- Engage an external facilitator to facilitate up to three Nov 18 Jan 19
workshops with staff.
- Prepare a consultation strategy to engage with and Nov 18 Dec 18
gather feedback from staff and external stakeholders.
- Consult with staff and external stakeholders including
community and voluntary bodies, other Departments Nov 18 Feb 19
and Offices, staff and the customers.
- Prepare and publish new mission statement. Feb 19 Mar 19
22Pillar 1 - Our mission, purpose and legislative context
Objectives Actions Business Lead Start Date End Date
To assess our - Engage with the Reform and Development Office in Change Mar 19 Mar 19
culture DPER to identify good practice in the review of management unit
organisational culture.
- Undertake an analysis to see if the organisational Apr 19 May 19
culture aligns with the Departments defined culture
and values.
- Create an Action Plan to address issues arising from Jun 19 Jul 19
the assessment.
- Ongoing monitoring and assessment of culture to Aug 19 Q4 2020
ensure values are embedded.
To introduce an - Research and drafting of New Migration Policy. Policy Sept 18 Oct 18
Immigration and Development &
Residency Reform - Draft 1 for circulation to INIS SMT. Legislative Oct 18 Nov 18
Bill, aimed at Review
- Final draft for decision at INIS SMT. Nov 18 Nov 18
modernising
- Collection and collation of change proposals for the On-going Dec 18
23Pillar 1 - Our mission, purpose and legislative context
Objectives Actions Business Lead Start Date End Date
Ireland’s visa and legislation review.
residency systems.
To plan for Brexit - Continue to develop a Brexit strategy in relation to the Border On-going Mar 19
and protect the CTA. Management Unit
Common Travel
Area - Plan for “no-deal” scenario. On-going Mar 19
- Evaluate and agree a further roll out of the BIVS Visa Q4 2018 Q4 2019
scheme. Division
- Prepare a plan for the Registration of UK nationals. Registration On-going Apr 19
Office
To ensure full - New interim Right to Work scheme operating within Policy Division Q1 2018 Q1 2018
implementation of timeframe set out by the Supreme Court.
Ireland’s opt-in to
the EU (recast) - Support of Government and Oireachtas for opt-in to Q2 2018 Q2 2018
Reception directive.
Conditions Directive
24Pillar 1 - Our mission, purpose and legislative context
Objectives Actions Business Lead Start Date End Date
Achieving our objectives will have these positive outcomes.
A clear mission and purpose and a positive organisational culture support organisational performance.
INIS will be in a strong position to deliver services to users in a pro-active, efficient and effective manner.
High levels of staff motivation and engagement.
Monitoring of progress using the following indicators
Level of staff engagement with initiatives.
Level of progress in introducing an Immigration and Residency Reform Bill.
Level of progress in preparing plan for the registration of UK Nationals in place.
Compliance with timelines as set out in project plans.
Outputs considered fit for purpose.
25Pillar 2 A safe and secure immigration system
The Service Delivery Strategy was an important resource in developing this plan, and it
identified the need for a shared service within INIS dealing with identity verification. This is
an important objective of Pillar 2. Such a shared service would provide all INIS business
areas with the tools to verify the identity of applicants, to check against international
watchlists, and to protect the security of our immigration system.
New technology
We will introduce a number of technology solutions to enhance border security, including
checking passenger information, automated checking of international watchlists at electronic
gates at ports of entry, alongside further civilianisation of frontline immigration controls.
Compliance and Anti-Fraud strategy
INIS should also consider preparing a Compliance and Anti-Fraud Strategy. We are aware
that such a strategy has delivered increased control for the Department of Employment
Affairs and Social Protection, and we believe that a similar initiative in the immigration sector
could set out clearly the actions we can take to help combat fraud and non-compliance
across all INIS schemes.
Building partnerships
Building on work already underway, we are going to increase efforts to build co-operation
with other government departments and agencies. This work will be carried out within the
frameworks provided by the Data Protection Act 2018 and the forthcoming Data Sharing and
Governance Bill.
Exit checks
A vital element of a secure immigration system is exit checks. Ireland is relatively unusual
in not having a comprehensive system of exit checks at airports and other ports of entry.
During 2019, we will commence a study to examine the merits of implementing exit checks.
This study will help us identify further actions for our 2019 and 2020 implementation plans
26Pillar 2 - A safe and secure immigration system
Objectives Actions Business Lead Start Date End Date
Implement the - Establish the Irish Passenger Information Unit in line Irish Passenger Q1 2018 Q2 2018
Passenger Name with EU decision and forthcoming legislation. Information Unit
Record (PNR) Directive
- Establish passenger data processing and analysis
facility and contribute to the introduction of PNR Sep 2018 Mar 2019
project.
- Assess and identify the ICT requirements (software,
Sep 2018 Mar 2019
hardware, staffing, data management,
support/maintenance on 24/7 basis) necessary to
permit IPIU to fully meet operational responsibilities in
respect of current phase (extra EU flights) and next
phases (intra EU flights and possibly other forms of
transport)
To develop an INIS- - Merge the IILU and EU Treaty Rights Investigations EU Treaty Rights Q2 2018 Q4 2018
wide shared service Units to form one Identity Verification and
dealing with identity Management Unit.
verification
27Pillar 2 - A safe and secure immigration system
Objectives Actions Business Lead Start Date End Date
- Start researching the requirements of an ID Q3 2018 Q4 2018
Verifications & Validation shared service.
- Examine the merits of preparing and implementing a Change Q3 2019 Q1 2020
Compliance & Anti-Fraud Strategy. Management Unit
To enhance border - Complete 4 phases: Border Q1 2018 Q2 2019
security, including Management Unit
o Phase 1 (installation of 20 eGates),
working with UK on
further enhancing o Phase 2 (CCTV and watchlist integration),
security of the CTA
o Phase 3 (additional eGates for transfer
facility), and
o Phase 4 (Registered Travel Programme) of
eGates development.
- To work with An Garda Síochána to ensure Ireland’s Q4 2018 Q4 2019
participation in Schengen Information System (SIS II).
28Pillar 2 - A safe and secure immigration system
Objectives Actions Business Lead Start Date End Date
To enhance - Continue to engage with AGS and DEASP through the EU Treaty Rights Q1 2018 Q4 2020
cooperation with AGS, steering group and working group established by INIS
Revenue, DEASP in 2018.
regarding
- Continue to exchange information with other Public INIS Divisions Q1 2018 Q4 2020
investigations
Sector bodies and third party agencies to improve
efficiencies.
To examine the merits - Phase 1 – Feasibility study to assess introducing exit BMU Q1 2020 Q3 2020
and mechanisms for checks in an Irish context.
the introduction of exit
checks
Administer the - Chair the Investor Programme Steering Committee. Director General Q1 2018 Q4 2020
Immigrant Investor
Programme - Commission an external review of the Immigrant Citizenship Q3 2018 Q4 2018
Investor Programme. Division
- Implement the recommendations of the external Q4 2018 Q3 2019
review.
29Pillar 2 - A safe and secure immigration system
Objectives Actions Business Lead Start Date End Date
To refuse bogus - Continue cooperation with the Garda National EU Treaty Rights Q1 2018 Q4 2020
applications and Immigration Bureau (GNIB) on investigations through
facilitate removals from Operation Vantage, targeting individuals suspected of
the State. sham marriages and in particular those facilitating
such activities.
- Implement and enforce the deportation provisions in Repatriation Q2 2018 Q4 2020
the International Protection Act. Division
Achieving our objectives will have these positive outcomes
Reduction in fraud and error.
Greater inter-agency co-operation.
Improved processes and procedures.
Monitoring of progress using the following indicators
Level of progress in introducing an INIS-wide shared service dealing with identity verification.
Compliance with timelines as set out in project plans.
Outputs considered fit for purpose.
Number of bogus applications refused and deportations effected.
30Pillar 3 Efficient and effective service delivery
Maintaining the security of our immigration systems is critical for INIS. Equally, we must
ensure that the services we provide are delivered in efficient and effective ways.
Eliminate backlogs
Over the lifetime of this plan, we will bring a renewed focus to eliminating processing
backlogs in key business areas, and particularly applications for international protection and
EU Treaty Rights. For example, it is planned to reach the stage of new international
protection cases being given a first instance decision within a nine month timeframe by the
end of 2019, assuming increased staffing levels and no change to the trend in application
numbers. The resources necessary to achieve this will be delivered through Pillar 5 of this
Plan.
Create greater savings for border control
The civilianisation of border control at Dublin Airport has led to significant savings for the
exchequer. Before civilianisation, the cost of this function was €7m per annum. These costs
have now fallen to €3m per annum. We believe that further civilianisation of border control
and registration functions can deliver further such efficiencies over the coming years.
Invest in ICT
For INIS services to be effective, we need ICT systems which are owned and operated by
INIS, and which have a considerably greater level of interoperability than is currently the
case. The actions below set out how we intend to achieve this.
Additionally, technological advances present the opportunity for the introduction of some
aspects of auto-decisioning using data analytics to inform the risk level of such processes.
It is planned to begin exploring such options during 2019, with further actions to be
subsequently defined. Any changes in this area will be made in a manner which respects
the GDPR right to not be subject to a decision based solely on automated decision making
31Pillar 3 - Efficient and effective service delivery
Objectives Actions Business Lead Start Date End Date
To review our - Templates to issue to all INIS divisions to support Corporate Jan 19 Feb 19
process operating process mapping. Affairs Division
model taking an end- and
- Each Division to prepare a process map for their areas Feb 19 Apr 19
to-end immigration INIS Divisions
of responsibility.
lifecycle
perspective. - Collate the process maps to develop an overview of the Apr 19 Jun 19
current journey through INIS.
- Examine how the process could be improved. Jun 19 Dec 19
- Seek to rationalise or phase out certain domestic Jun 19 Dec 19
residence schemes.
- Manage and monitor cases in the Judicial Review Q1 2018 Q4 2020
process to ensure that appropriate decisions are taken,
and that Court judgements are used to inform revisions
to procedures.
32- Consolidate activity and capacity relating to Judicial
Review management within the Legal Services Support Q1 2018 Q3 2018
Unit (LSSU).
- Creation of specialised teams within the LSSU.
Q3 2018 Q4 2018
To implement and - Reduce maximum processing times to 9 months for first IPO Q1 2018 Q1 2020
review operational instance decisions on new cases.
procedures for the
- Prioritise International Protection Office (IPO) resources Q1 2018 Q4 2020
single application
for case processing while ensuring that all non-
procedure, and
processing work is efficiently serviced in line with
focus on elimination
statutory obligations.
of processing
backlogs. Q1 2018 Q1 2019
- Legacy cases carried over to new single procedure to be
all scheduled for interview by end of 2018 and processed
to completion by early 2018.
- Provide additional staffing to key processing areas Q2 2018 Q4 2018
(detailed at Pillar 5).
- Make maximum use of the IPO case Processing Panel Ongoing Q4 2020
Corporate
Affairs
33- Explore options to reduce administrative burden on staff Q3 2018 Q4 2018
resulting from existing paper-based processes.
To implement new - Introduction of new scheme to allow refugees (and some Policy Division Q1 2018 Q4 2018
schemes approved others) who have eligible family members from the
by Minister to UNHCR listing of top 10 major source countries of
respond to policy refugees to apply to have these family members join
and legal them in Ireland.
developments Q3 2018 Q2 2019
- Bring forward a scheme to address the need of
significant cohort of undocumented former students who
came here a number of years ago.
To continuously - Prepare manuals documenting procedures for all All INIS Q4 2018 Q2 2019
improve control and processing sections in line with what already exists in Divisions
compliance across some INIS areas (linked to processing mapping action
all schemes to identified above).
reduce fraud and
- Examine the merits of implementing a quality Q3 2019 Q1 2020
error
management system for INIS and consider options for
34overseeing implementation, for example through the
creation of a Quality Office. This will include a review of
any existing quality assurance systems.
To continue to - Payroll review to be carried out twice a year in line with Finance Unit, Q1 2018 Q4 2018
improve corporate Internal Audit recommendation. Reporting & (with
governance and Analysis Unit further
financial - A permanent accountant to be recruited to assist with and all INIS actions to
management and financial management in INIS. divisions be
reporting systems. subsequen
- Provide monthly statistical information to INIS senior
tly
management team, including data on applications,
identified)
decisions, and so on.
- Develop business plans and risk registers for each
division within INIS to be monitored by INIS senior
management team and to feed into the overall business
planning cycle.
- Implement internal audit recommendations for visas,
registration and citizenship fees.
- Use online forms to improve automation of invoicing for
35legal panel members.
To progress the - Investigate options to civilianise the 75 registration Registration Q3 2018 Q2 2019
civilianisation of offices around the country. Office
registration and BMU
border management - Review staffing and operational model to include Q3 2018 Q4 2018
functions conditions of service and powers of civilian immigration
control officers.
- Conduct survey of requirements for the deployment of BMU Nov 18 April 19
civilian immigration control model to other ports of entry.
To review worldwide - Review Visa Processes and Procedures. Visa Division Q2 2018 Q4 2018
visa services and
- Implement recommendations arising from review. Q4 2018 Ongoing
implement process
improvements - Business Process Review: 2018 Visa Initiatives, Ongoing Q1 2019
across visa including:
processing
o UK Home Office Platform Changes;
o TelePerformance (TP) Contract;
36o Examination of LIDPRO as a tool for document
management;
o AVATS Support & Maintenance Contract.
- Examine the contribution that upgraded technology and Q4 2018 Q4 2019
external service delivery can make to a more efficient
VISA Process.
To ensuring all IT - Prepare the requirements for a replacement GNIB-IS. Change April 18 Oct 18
systems are owned Management
and operated by - Procurement of new registration system. Unit Jul 18 Sep 19
INIS
- Manage the delivery of new registration system. Sep 19 Jul 20
- To explore options for support services for systems Mar 19 Dec 19
operating on a 24/7 basis.
37To improve - Creation of a Single Data Repository and Data Reporting and Q2 2018 Q2 2019
reporting, data Dictionaries for INIS. Analysis Unit
analysis and
statistical - Restructure the Reporting and Analysis Unit to train staff Q2 2018 Q2 2019
capabilities of INIS, in SQL, R and data analysis.
and to introduce
- Focussed effort to improve data quality across INIS. Q2 2018 Q2 2019
auto-decisioning
using data analytics
- Provide guidelines on data governance across INIS. Q2 2018 Q2 2019
- Carry out an initial examination of potential areas to pilot Q3 2019 Q4 2019
auto-decisioning using data analytics.
- Automation of statutory and scheduled reports Q2 2018 Q2 2019
Achieving our objectives will have these positive outcomes
Enhanced corporate governance.
Improved processes and procedures.
Enhanced data quality and governance
Monitoring of progress using the following indicators
Level of control activity against targets.
Level of progress in introducing replacement GNIB-IS system
38Compliance with timelines as set out in project plans
Outputs considered fit for purpose
Number of reports automated, and proportion of time devoted to data analysis
39Pillar 4 Service design based on customer needs
As discussed in section 1, our current arrangements for service delivery are reliant on a
number of ICT systems that have limited interoperability, and our processes are heavily
dependent on paper based processing. This means that our customers are typically
required to contact us by post, and it means that processing times are longer than they could
be.
While continuing to protect the safety and security of the immigration service, we believe it
is possible to dramatically improve the service we provide to our customers. Doing so will
require a shift in mind-set towards one which puts the needs of our customers at the heart
of how we design our services.
Pre-clearance schemes
During 2018, we will begin to introduce preclearance schemes so that those who wish to
come and live here for specific purposes can have their applications for residence processed
before they arrive in Ireland. The lessons we learn from the first such schemes will be used
to inform a wider rollout of this approach.
A project is currently underway to allow people to apply for some schemes online, which will
include the ability to make payments and submit documentation, and to receive case
updates through an online portal. This service will be extended to all major INIS schemes
by the end of 2019.
Plain language
We will shift towards the use of plain language in all our communications. This will require
the training of staff, and we will begin by editing our publications, our forms and our website
to ensure that the information we offer to the public is provided in plain language.
Customer feedback
More fundamentally, to truly incorporate service design thinking into our work, we need to
begin by measuring the views of our customers on the services we currently provide. We
40will develop mechanisms to continually gather and assess customer feedback, and to use
this feedback in iterative developments of our systems and processes.
41Pillar 4 Service design based on customer needs
Objectives Actions Business Lead Start Date End Date
Pre-clearance - Introduce preclearance schemes for volunteers and Policy Division Q1 2018 Q2 2018
schemes to allow Ministers of religion.
customers to
- Introduce preclearance schemes for retirees and carers. Policy Division Ongoing TBC
apply for
residence - Review the implementation of the preclearance schemes
permissions and examine the merits of extending to other schemes. Q4 2018 Q1 2019
before to
travelling
To produce - Phase 1 - delivery of online forms, payments and Corporate Jul 18 Sep 18
secure online document collection for two initial schemes. Affairs
forms,
- Phase 2 - delivery of workflow management tools for Sept 18 Nov 18
incorporating
initial forms.
shared services
for online - Phase 3 – full Integration with AISIP. Oct 18 Dec 18
payments
- Phase 4 – delivery of online forms for all INIS application Sep 18 Dec 19
types.
42Pillar 4 Service design based on customer needs
Objectives Actions Business Lead Start Date End Date
- Phase 5 – security audit of INIS online forms Jan 19 Mar 19
To use plain - Create one INIS Communications Unit made up of staff Communication Q2 2018 Q2 2018
English in all currently working on communications and co-ordination s Unit
communications tasks.
- Establish INIS communications network and work on a Q2 2018 Q4 2018
refresh of the website content.
- Provide plain English training for communications Q2 2018 Q2 2018
network.
- Provide plain English training for senior management Q3 2018 Q3 2018
team.
- Re-design all INIS application forms in plain language. Q2 2018 Q3 2018
- Introduce a monthly internal newsletter. Q3 2018 Q4 2020
43Pillar 4 Service design based on customer needs
Objectives Actions Business Lead Start Date End Date
To introduce a - Prepare a business case and secure approval. Registration Jan 19 Jan 19
new appointment Office
system and - Prepare tender documentation. Jan 19 Mar 19
queue
- Run procurement process. Mar 19 Nov 19
management
system for the
- Manage the delivery of the system. Jan 20 Jun 20
Registration and
Re-entry visa - Consider the possibility of combining the new IRP card Ongoing Nov 18
office with the Public Service Card/shared service delivery with
the Department of Employment Affairs and Social
Protection.
- Under 16 year olds to be brought into the registration Ongoing Dec 2019
system, commencing with 14-16 year olds.
- Postal renewal for low-risk customers, such as students Ongoing Q3 2019
on a multi-year degree course.
44Pillar 4 Service design based on customer needs
Objectives Actions Business Lead Start Date End Date
To incorporate - Review the Service Design Toolkit in DPER and identify Change Oct 18 Dec 18
service design relevant training. Management
methodologies Unit
into process - Engage with other Government Departments who have Oct 18 Mar 19
design experience in this area to learn from their practices.
- Select pilot project for development using service design Jan 19 Jun 19
methodologies.
- Identify customer requirements and profiles, and Jan 19 Dec 19
establish customer satisfaction levels through regular
surveys and through the provision of feedback
mechanisms.
To have - Translate essential material from the website into other Corporate Q4 2019 Q2 2020
accessible languages. Affairs
services for all
customers - Translate signage in public offices into key foreign Q3 2019 Q1 2020
languages.
45Pillar 4 Service design based on customer needs
Objectives Actions Business Lead Start Date End Date
- To consider technological solutions to allow staff in the Q1 2020
Public Office deal effectively with customers with
disabilities or with poor English language skills. E.g.
tablets with accessibility options or access to translation
software.
Achieving our objectives will have these positive outcomes
Quality customer centred services.
Strong awareness and understanding of customers’ needs.
Increased self-service through digital provision.
Good internal communications.
Monitoring of progress using the following indicators
The level of, and trends in, customer service satisfaction measures.
Number of forms conforming to GDPR and plain English guidelines.
Level of staff engagement.
Level of progress in introducing new appointment booking system and queue management system in the public office.
46Pillar 5 Investing resources to deliver change
A change programme on the scale set out within this Service Improvement Plan needs
resources to make it happen. INIS will establish a Change Management Unit to lead this
work. This new unit will work to develop the skills, capacity and behaviours of everyone in
the organisation. It will focus on embedding change management and project
management capabilities.
Increase staff numbers
The need to target some additional staff resources for a short period of time is also widely
accepted. Sanction has been granted for staff numbers to rise by 76 in 2018 to help
eliminate backlogs while service improvements are underway. The intention is that staff
numbers can return when the Plan is fully implemented.
Invest in systems and infrastructure
INIS also needs to invest to develop our systems and infrastructure. In 2017, INIS spent
€4.9m on technology supports, but this figure is expected to rise to €7.1m in 2018 and
further still over the years covered of this Plan so we can transform existing systems.
This need was recognised in the National Development Plan 2018-2027, which noted that
“ongoing investment is required by the Irish Naturalisation and Immigration Service over the
next 5-to-10-year period, to underpin an ICT strategy designed to transform and modernise
service delivery through greater use of automated processes and to protect the security of
the State”.
Strategic direction of opportunities
We recognise and value the skills, expertise and commitment of our staff. Another action
under this pillar is to ensure that learning and development opportunities are directed in a
strategic way. This can be achieved through setting up a skills matrix which will benefit both
the organisation and the individual and will be prepared in consultation with staff. The
benefits are set out in the table below.
47Benefits of a skills Advantages
matrix
Individual Insight into their own competency and skills and areas of
improvement.
Team Overview of the skill they have and areas where they need to
develop new skills
Organisational Overview of available competencies and areas that need
investment. Can also aid in succession planning
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