Policy paper

Home Office response to the ICIBI report: An inspection of Border Force intelligence functions at the Humber ports

Published 11 May 2023

This was published under the 2022 to 2024 Sunak Conservative government

May 2023

Introduction

The Home Office thanks the Independent Chief Inspector of Borders and Immigration (ICIBI) for this report.

The inspection examined the Border Force intelligence strategy for collecting, developing, targeting, handling, and analysing intelligence and how that strategy is communicated to, and operationalised by, staff at the Humber ports. It also reviewed the Border Force intelligence tasking process, including ‘hand-offs’ to law enforcement agencies (LEAs) for intelligence development.

The Home Office is pleased that the ICIBI reported that the creation of the Home Office Intelligence Directorate would help Border Force achieve its ambition of being an intelligence led organisation. We are also pleased that the ICIBI reported that it found exceptional, capable, and motivated staff at all grades and that the tasking process was well supported by quality intelligence products which were shared and communicated effectively enabling senior managers to identify the priorities for Border Force in securing the border and protecting the public.

This inspection focused on Humber ports alone, and so the report lacks some wider context in relation to our intelligence operation. As set out below we are committed to taking forward the recommendations made in the report. Over the next few years, Border Force is updating its detection capabilities in response to the Border Strategy 2025 and associated target operating model. As part of this modernisation, we will ensure front line officers are equipped with the skills required to utilise the tools accessible to them. The Alexander Downer review of Border Force also emphasised the need to embed and deliver a capability planning process. This process has been established, starting with a comprehensive assessment of operational capabilities across Border Force, which provides the underpinning evidence base for the required improvements.

The ICIBI identified several areas for improvement and has made a total of seven recommendations. Work was already in place to deliver on one of the recommendations with work on another already completed. The Home Office has fully accepted 5 recommendations and partially accepted 2.

Recommendation 1

Review the policy, process and guidance for the management and dissemination of intelligence to ensure:

• clear ownership of new intelligence to remove time consuming deconfliction enquiries and prevent duplication of effort
• agency staff have access to intelligence in a usable format to enable them to action it effectively

Partially accepted

Home Office Intelligence accepts the recommendation to review the policy and process for the management and dissemination of intelligence. However, intelligence shared with agency staff will need to be commensurate with their vetting level and in accordance with handling instructions stipulated by the originator.

Home Office expected implementation date: October 2023.

Recommendation 2

Review the tasking process at the Operational Intelligence Tasking and Co-ordination Group (Ops ITCG) to improve its effectiveness, including:

• provision of a clear escalation mechanism to the Intelligence Tasking and Co-ordinating Group (ITCG)
• empowering managers to task across functions outside the existing meeting structure
• maintaining accurate records of taskings and developing an accountability mechanism to assess outcomes

Accepted

Work has commenced to review the tasking process at the Operational Intelligence Tasking and Co-ordination Group, and this will include all functions across Home Office Intelligence.

Home Office expected implementation date: December 2023.

Recommendation 3

Work with the Multi-Agency Hub Strategic Governance Board to review the identity and branding of the Forward Intelligence Cell (FIC) in Hull and undertake engagement to improve the understanding of its role by staff and stakeholders.

Accepted

Home Office Intelligence accepts this recommendation which is in line with plans it was developing prior to the ICIBI inspection. Renewed communications to internal and external stakeholders make it clear that the Forward Intelligence Cell is part of Gateway Multi-Agency Hub.

Home Office expected implementation date: Completed April 2023.

Recommendation 4

Review the collection function to improve tasking volumes and relationships with other intelligence functions within Border Force intelligence and frontline functions, including:

• an assessment of the effectiveness of its geographical structure and how it aligns with the target operating model’s modal structure
• reviewing and agreeing the powers conferred on collection officers and ensuring equity of powers for all officers
• reviewing the training and accreditation provision for collection officers, ensuring staff are trained on commencement of their role (in line with recommendation 6)
• ensuring there is sufficient management oversight of collection officers

Partially accepted

The Home Office will explore whether powers are relevant to the role of collection officers and use this as the basis for any consequent future change. All other aspects of this recommendation are accepted, with priority being given to training and accreditation. There is a dependency with the MINERVA programme and the development of the collection capability across Home Office Intelligence. Work will also be undertaken across Home Office Intelligence to improve tasking volumes.

Home Office expected implementation date: October 2023.

Recommendation 5

Review the communications strategy for the MINERVA programme to ensure that the end state of MINERVA and how it will be delivered is clearly defined and communicated to staff.

Accepted

The MINERVA programme’s new communication strategy was approved in December 2022. MINERVA roadshows have been held in January 2023 across the UK with a session dedicated to communicating the ‘end state’, with further events planned. MINERVA will continue to review the communications strategy as part of Programme delivery in 2023-24.

Home Office expected implementation date March 2024.

Recommendation 6

Review the training and accreditation provision for Border Force intelligence staff to:

• ensure training and accreditation pathways are agreed and in place for all intelligence roles
• ensure staff receive role-specific training on commencement of a new role
• ensure there are effective and well-utilised escalation routes to senior managers for training course and staff availability issues
• compare the training and accreditation pathways delivered by other law enforcement agencies to ensure equity and consistency

Accepted

We will build on the existing training and accreditation pathways open to Home Office Intelligence staff. Escalation routes are already in place and further work will be undertaken to ensure these are utilised. A Heads of Capability Group has been established to ensure that all Learning and Development activity is aligned across Home Office Intelligence. The Head of Profession will ensure all Learning and Development is aligned to the Intelligence Professionalisation Programme to enable appropriate accreditation.

Home Office expected implementation date: October 2023.

Recommendation 7

Continue to review the tools and technology used by intelligence officers and frontline staff to maximise the benefits of intelligence and targeting opportunities by:

• ensuring they enable staff to undertake their roles efficiently and effectively
• implementing mitigations and delivery plans where operational limitations or delays to delivery are identified

Accepted

We will continue to review the tools and technology used by our people. As part of this we are building new tools to exploit data and intelligence to allow us to target more effectively.  The ability to improve tools and technology is constrained by funding and will therefore be subject to controls through existing governance including the Border Force Capability Investment Committee and the Home Office Finance and Investment Committee.

As a follow up to the capabilities assessment process work will be undertaken with Border Force operational leads to standardise the use of tools at the frontline.

Home Office expected implementation date: March 2024.