Canada Customs
Visible Minority Study

Report Prepared for Revenue Canada

March 1999

COMPAS Inc.
Multi-Audience Research
Ottawa and Toronto

Table of Contents

• Executive Summary
• Introduction
• Participant Travel Patterns
• Perceptions of Customs Service
• Perceived Treatment Compared to Non-Visible Minority Travellers
• Focus on Customs Protection Role
• Assessment of Specific Service Attributes
• Comparison With Other Organizations
• Suggestions for Improvement
• Appendices

• The screening questionnaire used to recruit participants;
• The brief questionnaire completed by participants during the group; and
• The moderator's guide used to direct the group discussions.

Introduction

Revenue Canada commissioned COMPAS to conduct a series of focus groups with members of visible minority groups. The purpose was to explore perceptions of the service and treatment received from Canada Customs by Canadian residents who are members of a visible minority. In particular, the department wanted to know whether visible minority travellers think the service/treatment they receive from Canada Customs is any different from that accorded to travellers who are not members of a visible minority.

In total, 18 focus groups were conducted in the following cities: Halifax, Montreal, Toronto, Calgary and Vancouver. The groups were held during the first two weeks of March (March 1-11), 1999. Recruitment was conducted using a mixed methodology. This included random calls, referrals from community organizations, association phone directories, travel agents servicing and/or specializing in ethnic community clients, shopping malls, and telephone book look-ups (based on name recognition).

As well, the following specifications applied to this project:

• All participants were Canadian residents, 18 years and older (up to 70), who are members of a visible minority (There was no representation of Aboriginal Canadians);
• Each group included a mix of participants by length of residency in Canada according to the categories listed below. However, there were no strict quotas:

1. Born in Canada;

2. Resident of Canada for more than three years but not born here; and

3. Resident of Canada for three years or less;

• All participants had travelled outside of Canada at least twice during past three years. Each group included a mix of participants according to the frequency of foreign travel, with primacy given to air travel over land border crossings:

  4. Frequent travelers (2-3 trips per year over the past three years); and

  5. Infrequent travelers (less than frequent, but still meeting the base requirement listed above);

• The groups were divided according to the type of visible minority (see below);
• Literacy was a requirement for the groups, since we needed participants to complete a short written exercise. This was accommodated in the recruitment questionnaire;
• Screening for prior focus group participation was conducted, but allowed flexibility to accommodate the difficulty of this recruit (i.e. low incidence of qualification);
• We recruited 12 people per group. Turnout was excellent, with 8-10 participants taking part in each group. We also tried to obtain a good mix by gender and age;
• A cash incentive of $75 was provided; and
• Sponsorship of study (Revenue Canada) was revealed;

The groups were allocated as follows:

	Vancvr.	Vancvr.	Calgary	Montreal	Montreal	Halifax
Dates:	Mar. 1	Mar. 2	Mar. 3	Mar. 2	Mar. 5	Mar. 8
Times:
6:00	South Asian	East Asian	East Asian	Mixed	Black	Black - Cdn. born
8:00	Mixed	South Asian	Mixed	Black	Mixed	Mixed
	Toronto	Toronto	Toronto
Dates:	Mar. 9	Mar. 10	Mar. 11
Times:
6:00	Black	Mixed	East Asian
8:00	Mixed	South Asian	Black

The description of `eligible participants' for each of the various groups (i.e. black, south Asian, etc.) is identified in the recruitment screener. The mixed groups had a maximum of three people from any of the other `dedicated' groups in any city (e.g. if there was a black group in the city, the mixed group could have a maximum of three black people).

The principal investigator for this study was Stephen Kiar, senior partner of COMPAS. Stephen also moderated the English language groups (except in Halifax) and wrote the final report. The French moderator was Paul Geoffrion, who also moderated the Halifax groups. In each city, there were a number of Revenue Canada officials who observed the focus groups, including Customs officers.

This research was qualitative in nature, not quantitative. As such, the results provide an indication of participants' views about the issues explored, but cannot be generalized to the full population of visible minority travellers.

Participants' comments are provided in italics or quotation marks and are either actual verbatim comments or have been paraphrased to reflect the intent of the remark. Appended to this report are copies of:

• The screening questionnaire used to recruit participants;
• The brief questionnaire completed by participants during the group; and
• The moderator's guide used to direct the group discussions.

Participant Travel Patterns

To begin the discussion, participants were asked a series of questions about their travel patterns during the past three to four years. The focus was on the frequency of foreign travel, the main travel destinations, the purpose of the travel (i.e. business, pleasure), and the extent of their experience with land border versus airport travel.

Varied Travel Patterns

The majority of participants said they took, on average, one or two trips per yearoutside of Canada during the past few years (including larger trips only, not `daytrips'). However, a significant number, perhaps one-quarter or more, said they took three or more trips per year. This group often included people who traveled for business as well as personal reasons. At the other end of the spectrum, few people took less than one trip per year (at most, usually one or two people per focus group). Clearly, most of the participants have had considerable experience with Canada Customs during the past few years.

This does not include short one-day or weekend trips across the border to shop, sightsee, camp, etc. These trips were most common out of Vancouver and Toronto, but also occurred elsewhere. Typically, most participants in Vancouver and Toronto made short excursions to the U.S., while half or less did so from other cities. The fequency of these trips varied, from once or twice a year to five or six times. It was acknowledged that such trips are less common now than they were a few years ago because of the decline in the value of the Canadian dollar.

In terms of their main travel destinations (not for `daytrips'), people's responses were relatively varied. However, two types of destinations were mentioned most often - travel to the participant's country of origin, wherever that may be (e.g. China, Hong Kong, Jamaica, India, etc.) and travel to the United States. Within the United States, a wide variety of destinations were identified, including California (L.A., San Francisco), Chicago, Florida, Las Vegas, Seattle/Washington State (particularly by Vancouver residents), Reno, New York, Boston, Texas, the midwest, Hawaii, and many others.

Also mentioned with some frequency were many European destinations (the U.K., France, Germany, Portugal, Greece, Spain, the Netherlands, etc.) and countries in the Caribbean (Trinidad, Barbados, Cuba, cruises, etc.). Identified by smaller numbers were Mexico, the Middle East, Africa (Kenya, Zimbabwe), Turkey and others.

Relatively few people traveled for business reasons - typically, only two or three people per group (often less). Everyone who undertook this type of foreign travel also traveled for personal reasons. No one said they traveled for business reasons only.

The large majority of participants have traveled to the United States by land during the past few years, and therefore have experience with land border crossings. Most of these traveled by car. However, there were still many participants who traveled to the U.S. by bus (perhaps 30%), although few traveled by train (certainly under 10%). In short, most people were able to comment on Customs service based on experience with both land borders and airports during the past few years.

Perceptions of Customs Service

To begin our investigation of issues related to people's experience with Canada Customs, we asked participants to complete a short exercise. People were asked to imagine themselves returning to Canada from a trip outside the country, travelling using the method they use most often... car, bus, plane or train. On a handout sheet, people were asked to write down the emotions they would be feeling as they approach Canada Customs, as well as a short explanation of why (for each emotion that they selected). People were then asked to briefly describe their best and worst experience with Canada Customs during the past four years, and to rate their level of satisfaction with the service and treatment they received from Canada Customs during this time period.

Participants did this exercise on their own and in silence. We then talked about it as a group once everyone had completed the exercise. A copy of the exercise sheet is appended to this report.

As noted in the introduction, this study was qualitative, not quantitative in nature. The results provide an indication of participants' views about the issues explored, but cannot be generalized to the full population of visible minority travellers. As such, readers should not view this research as statistically representative of visible minority travellers.

Main Emotions of Participants Approaching Canada Customs

When asked to identify the emotions they would be feeling as they approach Canada Customs, participants pointed most often to two emotions - calm and nervous. In fact, oftentimes the same individuals identified both of these emotions operating in parallel with one another. In total, 87 people said they would be feeling calm. Slightly fewer (73 people) said they would be feeling nervous.

Many people identified positive feelings of being happy (50 people) or excited (21 people). Fewer pointed to clearly negative emotions of feeling angry (21 people) or fearful (12 people).

The following table identifies the overall frequency and geographic distribution of people's responses. For the most part, people in different parts of the country tended to focus with similar frequency on the same emotions. As well, there was little difference between cities within each region (where relevant) or within the cities themselves (i.e. by type of group). However, it is worth noting that a higher proportion of Vancouver and Calgary participants said they would feel calm, while a relatively higher percentage of Toronto participants would feel nervous.

Emotions When Approaching Canada Customs
	West	Toronto	Mont/Hal	Total
Calm (calme) Nervous (anxieux) Happy (content) Excited (énervé) Angry (fâché) Fearful (craintif)	38 24 20 8 7 3	23 29 20 7 9 3	26 20 10 6 5 6	87 73 50 21 21 12

A range of other emotions was cited with much less frequency. Some of these emotions, identified on a volunteeredbasis, tend to overlap with one another and with the list of emotions provided to participants. They include: anxious (5 people), tired (5), impatient (3), apprehensive (2), uneasy, agitated, frustrated, put off, cautious, hesitant, reticent, indifferent, and relaxed.

Presented below is a more detailed discussion of the types of things that people would be feeling, and why, when they identified each of the individual emotions.

Calm

As noted, the largest number of people said they would be feeling calm as they approach Canada Customs (more than half of all participants). By way of explanation, people pointed to a range of factors: the expectation of no difficulties, the professional treatment they anticipated receiving from the Customs officer, a sense that this was routine because they had done it many times before, and that they had nothing to hide. Some noted that they had done their homework in advance so had nothing to worry about (e.g. what is/is not allowed to be brought into Canada), that they would be feeling relaxed after their vacation, and a sense of calm because their journey was at an end. Some people said they are calm because they tryto be calm - so that the Customs experience will be as quick and positive as possible.

Representative comments included:

• Nothing to hide. Therefore, I take things as they are.
• I am not nervous or fearful because it is routine to me.
• I've been though Customs a hundred times or more(commercial boat captain).
• Be honest and Canada Customs won't bite. Be pleasant and all is well.
• Questions are usually simple and straightforward.
• I am usually treated nicely. Canada Customs are very professional and that helps me to feel calm.
• Canada Customs has always been fair and efficient. I think they do a good job.
• I make sure I find out what is allowed and what is not prior to purchase, so I shouldn't have anything to worry about.
• Do not expect problems when all is in order.
• There is no fear of being treated badly. Purchases are within the permitted legal amount.
• Did not feel guilty about anything, nothing to hide.
• I'm usually relaxed after a trip.
• Related to the journey's end.
• Back to my homeland and everything in control.
• L'agent est là pour nous donner un service. Je me sens comme un client.(The agent is there to provide a service. I feel like a client).

Nervous

Many people said they feel nervous when approaching Canada Customs. Their nervousness appears to be related most often to the unpredictability of what they might be asked or what might happen, the possibility that they might be searched or otherwise delayed, and the potential for problems or poor treatment. Many pointed to issues related to foreign shopping, such as instances where they are over the limit and not declaring this (i.e. are hiding something), did not keep their receipts, fear they might not be believed, might have forgotten to declare something, or do not know if they have to pay duty on certain types of items. Also mentioned was the "serious look of Customs officers", and having non-allowable food items with them.

A few people said they had heard stories about travellers being searched, detained or otherwise treated poorly, and were concerned that this might happen to them. Some felt that they might be more closely scrutinized than other travellers due to their age, gender, visible minority status, or some of these things in combination. Nervousness and uncertainty appeared to be heightened among participants who are not Canadian citizens, and who tended to view themselves as more vulnerable. A few people also cited immigration-related issues (e.g. concern about being let in on a student visa).

Representative comments included:

• I wasn't sure what to expect.
• I didn't know what they would ask me.
• How long is Customs going to keep me here?
• Fear of the unexpected.
• Because you don't know what kind of person there is going to be at the counter.
• They are sometimes not friendly. Very direct in their manner.
• They can be judgmental. A tad stereotypical.
• Because I was shopping and didn't retain my receipts.
• I have to `defend' and `justify' items I acquired.
• Going through a grilling, interrogation.
• Because maybe I'll have to pay a fine.
• Nervous if I am over the limit.
• Difficulty in estimating the permitted amount of purchases as Canada Customs does not provide this information before travellers leave Canada.
• Purchased items, such as certain foods, that are perhaps not allowed in Canada.
• Had orange leaves in my bag. I felt there might be problems.
• On a previous trip, agents threatened to confiscate purchases.
• Wonder if you're going to have a hard time.
• Many persons have had bad experiences. Will this happen to me?
• Last time, luggage was searched thoroughly. Felt discriminated against and singled out.
• General anxiety over having personal belongings scrutinized.
• Parce que certain membres de ma famille sont noirs, j'ai peur qu'on nous traite différemment. Mais ça ne c'est pas produit à date.(Because members of my family are black, I'm afraid we will be treated differently. This hasn't happened to date.)
• Will they let me in or not?(Student on a visa).
• Will perhaps have trouble getting back in Canada.
• Calm if arriving by plane. Nervous if arriving by car because of the amount of power a Customs officer has as far as being able to take your car apart.
• About getting stopped, being delayed.
• Long waiting lines.
• The stress of the holiday being over, getting back to a huge pile of work.

Calm and Nervous

Often, people said they would feel both calm and nervous, these emotions existing in combination with one another. The following are offered to provide a sense of the ways in which these feelings coexist within travellers approaching Canada Customs:

• Got nothing to hide. But what will they ask me?
• Nothing to hide. But nervous when I have over-purchased.
• Because I have not done anything illegal. Because I am afraid I have forgotten something to declare.
• Tried to stay calm so I don't get asked too many questions. Worried about being inspected.
• Nothing to hide, but because they can search your bag, and have the authority to detain you.

Happy

Almost one-third of the participants said they would feel happy when approaching Canada Customs. Most often, people focused on their happiness to be back home in Canada, or back with family and friends. By far, these were the most common reasons, despite the fact that people were asked to focus on their approach to Canada Customs, and not simply their return to Canada. A few were happy because the journey was over, because they had arrived safely, because they expected to be treated well by Customs officers (based on positive past experiences), or when the lines are short.

Representative comments included:

• I am happy to be home in a familiar environment.
• Happy to be back.
• Because I'm back in beautiful B.C. and my home.
• Happy to be safely arriving home and seeing family or friends.
• Customs officers are nice to Canadian citizens coming back home to Canada.
• Confidence in the Customs agents. They respect the rules.
• I've had only good experiences. They are friendly.
• Customs agents in Canada are much nicer than in other countries.
• Good reception on the part of the Customs agents. They are nice people
• When lines are short.

Excited

A number of people would feel excited approaching Canada Customs. Most of these people viewed this as a positive emotion, and offered rationales that were similar to why people would feel happy (i.e. excited to be back in Canada, back with family/friends). Some others, however, attributed to this emotion negative connotations and said they would be excited because they were unsure about how the Customs officer would react, or whether they would have to pay duty.

Representative comments included:

• I'm excited because I can see some of my friends and family.
• To be back on familiar ground.
• Lines are slow moving because the Customs agents ask too many questions.
• Unsure of how the Customs agent will react.
• The Customs officer requested payment of duty, but I didn't think duty should be paid.
• Never searched. Knowing this might happen.

Angry

Some people said they would be feeling angry as they were approaching Canada Customs. Most often, the focus was on the treatment they expected to receive. A few are searched routinely on their return to Canada, some of whom felt this might be racially motivated. Also identified were the tone or manner of the Customs officer (can be intimidating), expectations that the officer would not believe them, concern that they may have to pay duty, that the officer may ask too many or not relevant questions, or may invade their privacy (e.g. check underwear). Some also focused on possible delays, including long waiting lines.

Representative comments included:

• Having the luggage searched at almost every crossing.
• When coming home by bus, an agent asked me questions for 15 minutes. I think it's because of the fact that I'm Latino.
• I was honest, but they did not believe me.
• Because sometimes I get stopped and they check all my belongings. I felt like I was a criminal.
• Line-ups. Rude officers.
• Anger because I know I'm going to be checked.
• Even though we are honest, Customs still doubts our honesty.
• I feel picked on, pulled out for no reason.
• Their tone of voice can be intimidating.
• Very long waiting times because agents ask too many questions. Agents always suspect you.
• When my bag is checked, even my underwear.
• Sometimes Canada Customs officers are not too friendly.
• They ask too many stupid questions. Some are not relevant.
• Because there were four or five people working there, but only two people actually working. There were 80 of us waiting for them to finish their job.
• Because it sometimes takes very long.
• I always anticipate problems, especially if I am returning from Jamaica. Was told that Jamaican flights are scrutinized more.

Fearful

A few people said they would be fearful. This was related to the treatment they expected to receive (often based on previous experience), their uncertainty about what is/is not allowed, concern that they may not have all the needed documentation, and anxiety over their own intentional non-declaration of items. The reasons given here tend to overlap with those offered by participants to explain why they would feel angry.

Representative comments included:

• Because of how they interrogate me.
• There may be lots of questions, and I might be labelled.
• Unsure of the amounts allowed in Canada, duty free.
• I've been searched before. Fear it will happen again.
• Previous experience with Customs. They are suspicious of pretty much everyone.
• Not like intimidated feeling. Someone asking questions, wearing a uniform. Think they can just shoot questions at you. I hold my breath.
• Canada Customs has the last say in approving visa. They can send you back.
• Afraid of being body searched or intense drilling.
• Some members of ethnic groups have had bad experiences such as being unduly searched. Afraid this may happen to me.
• If I am hiding something that I don't want to declare.
• Scared that I may have forgotten something like an ID card.
• As a visa student, they have you at the `back' for what may be hours. What if I do not have every detail of my visa requirements in order?

Canada Customs Response to Alleviate Negative Emotions

Participants were asked what Canada Customs could do to make them feel less nervous, angry or fearful. These suggestions tend to overlap with ideas offered in other areas. As such, they are all grouped together at the end of this report. Briefly, however, participants tended to focus on:

• Customs officers smiling more, greeting people in a friendly manner. Give officers people skills training, focus on better public relations.
• Be personable and neat during searches.
• Treat everyone equally (regardless of race, colour, age, gender, etc.).
• Have more officers (linked to better mood, less tired. Also linked to less waiting time).
• Use more technology (e.g. x-ray machines to inspect suitcases like those used for airport security).
• Ask fewer questions.
• Clear display of rules, duty limits, what is allowedot allowed.
• Have specialists in airports that can identify potential problem travellers simply by looking at them (and thereby provide more protection for everyone else).
• Educate officers on the various types of foods ethnic people may be bringing in.
• Inform travellers that the customs agents will ask them questions (to prepare them emotionally).
• Keep the dogs away.

Most of these issues will be revisited and expanded upon below (see last section of the report).

Best Experience With Canada Customs

Participants were asked to write about their bestexperience with Canada Customs during the last four years. In response, people focused most often on the speed of service, the friendliness of service, the professionalism or efficiency of Customs staff, or the Customs officer doing something positive or noteworthy (e.g. helping a family member). Repeatedly, people pointed to instances where the Customs officer added a personal touch to the service, such as a warm greeting or asking questions about the trip that made the participant feel like they were interested in him/her as a person ("Small talk makes a difference"; "Personalize the experience, rather than an assembly line"). This was much appreciated by the participants, and such instances often stand out for them.

A large number of people noted that all of their experiences have been positive, so none really stood out. A few pointed to situations where Customs staff helped them, such as helping elderly parents in wheelchairs, or rushing people through if they had crying or tired children with them. A small number pointed to an occasion when they were able to bring in purchases over their limit without declaring them (i.e. when they got away with something).

It is noteworthy that a large proportion of the participants pass through Canada Customs almost all the timewith only a few questions asked, no searches, and minimal delay. Approximately three-quarters of all participants said that this happened to them almost all the time. There was relatively little variance between different cities or types of visible minority group, with one exception: Black people in Toronto. In one group, only half said this applied to them. In the other group, all participants said that when they crossed the border coming back from the U.S. they went through with minimal questions and delay. However, when they returned on a flight from the Caribbean they were more closely questioned and/or searched with considerable frequency (expanded on below).

Virtually everyone was able to identify a best experience they had with Canada Customs (by way of contrast, many were unable to identify a worst experience). Participants' perceptions and experiences in these areas are expanded upon below.

Many people identified as their best experience with Canada Customs situations where the Customs officer treated them in a personal, friendly manner. Often, this involved little more than a personal greeting, a `welcome home', or a few questions about the trip. Clearly, this speaks to the importance of the personal dimension of service delivery.

• When I was coming back from England, they greeted me nicely and I was glad to be home.
• The officers were extremely friendly and courteous. They asked me some questions and then let me on my way.
• He welcomed me with a big smile. I felt that I came back to my `second country'.
• Friendly staff. Quick service.
• When they say `Welcome back'.
• They check my passport and say `Welcome back to Canada'.
• They say `hello', `how are you doing?' It's nice to hear somebody say `how are you?'
• Smiling and kindness.
• Coming back from Seattle, the Customs officer was so kind. He asked me some questions and said see you again.
• There was hardly any line-up, and the Customs officer was very kind, friendly and quick.
• Coming by plane after a long flight. The efficiency and courteousness displayed late at night was really good and welcome.
• On my first arrival to Canada, I did not speak English or French, but the agent was very patient.
• Customs agent gave directions in a very friendly manner.
• Agents were friendly and joking. This relieved the tension.

As noted, many participants have never had any problems with Canada Customs:

• I never had any problem with Canada Customs, so I can say that all of my experiences have been good.
• Usually there are no problems. They ask me a couple of questions and I am on my way home. They are usually friendly and straightforward.
• They are all pretty standard.
• No problems.
• I have actually had no problem with them. They asked me what I had in my luggage. They were very nice people.
• All of my travels. The best one was in Toronto. The Customs officer commented that I seem to have an honest face, and he let me through easily.

The following comments further illustrate some of the issues that people identified when discussing their best experience with Canada Customs:

• Time factor, very fast procedure. Very kind and very professional.
• Short line-ups for Canadian residents at the airport.
• They helped my family and me when we brought my sick mother on a wheel chair. They took good care of us.
• My best experience was when I came back from England. There was no hassle whatsoever, they were quite efficient.
• The best experience was when we brought over clothing we wore and didn't declare it.
• Had dried fish in my luggage and declared this, but the luggage was not searched.
• Had home-made jam in luggage, did not declare this and passed through.
• Did not have a visa but got back into Canada anyhow.
• No problem re-entering Canada with a friend who had forgotten her papers before leaving.
• J'avais beaucoup d'emplettes et j'avais une liste de celles-ci et mes factures. Je pensais que ça prendrait 3 heures mais ça n'a pris que 3 minutes.(I had a lot of purchases. I had prepared a list and had attached all bills. I thought it would take 3 hours but it only took 3 minutes.)
• The agent spoke Spanish.
• Allowed two 40-onze bottles of liquor without charging duty.
• Very nice in evaluating the duty on five bottles of rum and did not search the rest of the luggage.
• Fast luggage search without a problem.

Worst Experience With Canada Customs

Participants were also asked to write about (and discuss) their worstexperience with Canada Customs during the past four years. Here, people tended to focus on occasions where they had been searched (luggage or car), where the Customs officer was unfriendly or rude, or where there were lengthy delays (including long line-ups). A number of people focused on instances where they felt the treatment they received was different from the treatment they felt that other, Caucasian travellers received.

Some people also noted instances where they were not believed by Customs staff, where they were stopped and asked additional questions (without being searched), or where they thought the rules were applied in an overly rigid manner. Some pointed to instances where they had to pay duty on an item, had something confiscated, or were subject to some inconvenience, while a small number complained about the duty limits themselves. A range of very individualistic experiences was also identified. That is, situations that do not fall neatly into patterns, but rather are unique to the individual.

Overall, it is noteworthy that many people's worst experiences, while not up to the service standard one would expect, were not that extreme. As well, a large number were not able to identify any worst experience with Canada Customs during the past four years.

As mentioned, some people focused on occasions where they had been searched. Many commented negatively on the search process, feeling that it was dehumanizing, with little verbal interaction or friendliness from Customs officers, and that the officers invariably left the luggage messy. In short, it was usually not the search that offended people, but rather the manner in which the search was conducted. The searches, if not done right, can make people feel like criminals, like they have done something wrong (even when they have not). It should also be noted that searches are very personal in nature, not only because personal items are being closely scrutinized, but because of the process of selecting travellers to search (Why me? - a very personal question).

• Shirt worn was not declared. Resulted in the entire car being searched and numerous unpleasant comments by the Customs agent.
• On my first visit to Canada, they searched all my things and took me to Immigration Canada even though I was entitled to visit Canada for three months without a visa.
• Searched my entire luggage. I feel like I'm being raped when they search through my personal belongings.
• When moving back from Kuwait, they searched our whole container because we had indicated a can of butter on our list of contents.
• Having my bag searched, despite claiming $0 worth of goods.
• Being thoroughly searched. Each item being individually scrutinized.
• Bus was searched with dogs after returning from a church outing.
• Asked too much detail about my travelling things. One time, my poster for a conference was opened with no explanation.
• Stopped at Customs. Told him our purchases, etc. He sent us to be checked anyway. Customs officials searched the car and found everything to be okay.
• Searched our car and all passengers at 1:00 a.m. Even though we had lied about our purchases, they nevertheless told us we would not have a criminal record. In that sense, they were nice people doing their job.
• Took the Customs agents over two hours to search everyone in the bus. This was aggravating, but I saw it as normal. They were just doing their job.

Some people focused on treatment they felt was rude, unfriendly or too aggressive. People pointed to instances where officers were sarcastic, verbally harassing (including snide remarks), being intentionally intimidating, and asking overly personal or "stupid" questions. Some participants viewed the questioning as "a real interrogation." There were a few occasions where participants spoke of Customs officers trying to intimidate them by ganging up on them and having two-to-four officers asking them questions:

• The officer was somewhat rude, and seemed to be taking advantage of his position. He spoke in a harsh tone.
• Four agents asked a lot of questions, even personal questions about my friends. They read my diary. I thought they were making fun of me. I stayed in Customs for three hours(Korean female student).
• I saw one person grilled by 3-4 officers. They were like vultures. He got very bad treatment. The guards looked like they enjoyed this, saying "Are you ever in trouble".
• Sometimes they are too harsh. Stern and not approachable.
• Last year, my sister had a diamond ring from our country, and Canada Customs made big trouble for us.
• I was harassed by a Customs officers for about 15 minutes. "What are you bringing over?" "What are you hiding?" "Are you a Canadian resident?" (Sarcastically).
• I am allergic and afraid of dogs. The dog sniffed me for three minutes, even after I explained my anxiety.
• Coming back to Canada via Detroit tunnel, the Customs officer was very rude and belittling. She lectured us on car rental contracts and had us go to inspection for no apparent reason. When we went there, they just told us to leave.
• Waiting too long, sometimes over an hour, at the airport checking the bags. Labelling into groups. Some Customs officers are not polite, having too much authority.

Some people focused on incidents where they felt they were treated differently than other travellers who were not members of a visible minority:

• In Vancouver, I was coming back with four business colleagues (all white men, she was an East Indian woman). We all told Customs we were on a business trip. I was questioned the longest, the other four just passed through.
• Of all the passengers, only two were searched - both black.
• I took a planeload of clients to the USA. We arrived at Customs coming back, and there was a Filipino woman who was told to step aside. Everyone else on the plane was white (expect respondent). They searched her belongings and purse, asking for receipts for jewellery she was wearing. She had it on before departure.
• Discrimination and feeling racial tension.
• You can be judged by how you look, the type of country you are coming from. It felt like I was being judged. They make you feel like you are doing something wrong.
• They are not trained to deal with people of different backgrounds or colours.
• Coming back from Trinidad, I was held up for 2 ½ hours. What they didn't check it was because they forgot, from my sneakers to my last piece of ID.(participant felt this was racially motivated.)
• The last time Customs gave me a really hard time coming back from Trinidad. They claimed they were searching for drugs. It took hours.
• Being directed to the section to be searched, where all my bags were ransacked, even though I conveyed that I had nothing to declare coming from Barbados.
• Returning from Jamaica with my children. Dogs sniffing. Two plain clothes people questioning. I found Customs officer judgmental and unfriendly.
• Coming back from Jamaica, I was searched and xray-ed with my nine year old daughter because I was wandering in the waiting area of the baggage section. I was also screamed at after returning from my aunt from Jamaica in 1998.
• On a return trip from Jamaica, I was forced to wait in a room for two hours for no apparent reason, at which time I was scrutinized.

With respect to duty or confiscation issues, comments included:

• Duty was claimed on a worn wedding dress.
• We were stopped and were made to declare and pay for the goods we were bringing in, because we were two hours shy of 48 hours.
• Did not accept that a trip from one Saturday to the next was a 7-day trip and charged duty on purchases
• Liquor purchased exceeded duty-free amount by a few ounces and I was charged considerable duty on these.
• Unable to purchase two bottles of alcohol without being taxed.
• I had to allow my plant material to be destroyed.
• One time I came with a gift to the border. I would have had to pay more in duty than I could have bought the item for in Canada(he left the item with Canada Customs).
• Ils ont saisi mon sac en caïman. C'était un vieux sac et ils ne m'ont pas laissé le récupérer.(They seized my caiman bag. It was an old bag and they did not allow me to get it back.)
• Seized a stuffed animal brought back from Africa.
• Ils ont confisqué des poissons séchés. On a dit qu'ils sentaient trop. (They confiscated dry fish because their odour was too strong. They did not know about this type of food.)

The following comments further illustrate some of the issues that people identified when discussing their worst experience with Canada Customs:

• Long waiting lines.
• Long line-up back from the U.S. by car.
• Long line-ups, Lots of questions.
• I sometimes have to wait in lines when I take the bus because they check people more carefully for drugs.
• One interviewer did not believe me and sent me for inspection. But the next officer believed me, without inspecting my baggage.
• When they don't believe you when you tell the truth.
• Three years ago, travelling from Hong Kong. I was tired and had two kids with me. They waved me from one line to another in Vancouver.
• Pulled over for a check of goods brought over.
• They ask for more documents after I came back from business trip.

As noted, many people, perhaps three-to-five per group (particularly in the West) said they have never had any problems with Canada Customs:

• Nothing. Overall, I thought the people were genuinely friendly and kind.
• Nothing really stands out as bad. It is always the same - show some papers and pass through.
• I do not remember any bad experience so far.
• Never had problems so far.
• I have not had a bad experience or altercation with Canada Customs. I feel that each experience is quite similar. Canada Customs does their job.

A number of suggestions were offered by participants to help minimize or alleviate negative experiences with Canada Customs. These ideas tended to overlap with suggestions offered in other areas. As such, they have been grouped together with the main body of suggestions (presented at the end of this report).

Overall Level of Satisfaction With Service & Treatment by Canada Customs

As noted, participants were asked to identify on the questionnaire their level of satisfaction with the service and treatment they received from Canada Customs during the past four years. The following table presents the results. Note that these evaluations were provided priorto any group discussion about Customs service.

Overall Satisfaction With Canada Customs Service
	West	Toronto	Mont/Hal	Total
Very satisfied Mostly satisfied Neither Mostly dissatisfied Very dissatisfied	8 36 12 2 -	11 20 18 5 4	9 26 8 5 -	28 82 38 12 4

On a national basis, two-thirds were veryor mostlysatisfied with the service and treatment they received from Canada Customs (most of these were mostlysatisfied). Almost one-quarter provided neutral evaluations, while approximately one-in-ten expressed some degree of dissatisfaction (i.e. very or mostly dissatisfied).

Regionally, satisfaction levels were lower in Toronto. Here too, however, a majority expressed satisfaction and about one-third were neutral. In the West, three-quarters were satisfied, while very few were dissatisfied. In Montreal and Halifax, slightly less than three-quarters expressed satisfaction, while one-in-ten were dissatisfied. Note, however, that satisfaction was lower in Halifax than in Montreal.

In conclusion, satisfaction is relatively high, particularly in the West and Montreal. However, most of these participants said they are moderately, not strongly satisified. In no location does the degree of dissatisfaction reach one-in-five participants.

It is important to note that some participants who expressed satisfaction were the same ones who felt they were treated differently than travellers who were not members of a visible minority. For these people, perceptions of satisfaction may be related to lower expectations of Customs service (i.e. they expect to be treated differently). On the over hand, some people who have never had a negative experience with Canada Customs gave a neutral rating, rather than a positive one. When asked to explain why they did not express satisfaction with Customs service even if they have never had any problems, people simply noted that they tend to be indifferent to Customs service, or that it had simply made no impression on them (positive or negative).

Many people were very positive about the service and treatment they received. This was particularly true in the West, but was by no means confined to that region. For instance, many participants in Montreal felt that it is exceptional to meet an unpleasant Customs agent or to receive bad service from an agent. Generally, the Customs agents were seen to be friendly and polite. The same was true of many people in Toronto and Halifax, although a smaller proportion of participants in these cities were very positive. Not surprisingly, some people felt that the quality of the service provided varied from one officer to the next.

Some people thought it would be quite difficult to improve the general level of satisfaction because of the need to take measures to protect the country. It was often acknowledged that Customs officers are required to take steps that may inconvenience travellers. At different times, participants spontaneously expressed the view that they do not wish the border crossing to be made too easy. They fear that such a situation would put Canada at risk. When articulated in the focus groups, this perspective was often widely shared.

When participants who provided neutral assessments were asked to explain why, people pointed to a lack of consistency in treatment, the fact that they have had both good and bad experiences (so they average out), that they have had no problems but also "no great experiences" with Canada Customs, or were simply indifferent ("They are just doing their job. They have not left a positive impression"; "Some good, some bad experiences. I see them as a necessary evil"; "I'm not harrassed 100% of the time. An officer smiles, and I have more faith"). When participants who were dissatisfied were asked to explain why, people generally pointed to bad experiences they have had with Canada Customs.

Related service issues and observations:

• Male vs. female officers: Many participants across the country, particularly but not only women, prefer to deal with male Customs officers (and try to avoid women officers). Female officers were often seen to be stricter and less friendly. They were said to smile less, ask more questions, be less easy going, and use less personal discretion. It was felt that they often want to prove their authority, to demonstrate that they can do the job. It was also noted that they can be more likely to probe other women more closely on cross-border shopping issues ("Ladies are meaner. They can be on a power trip"; "I avoid women officers. They make you feel small. It's in their body language and tone. They are more overpowering"; "Women are tougher. They feel a need to prove themselves"). While some people said they found no difference based on gender, and a small number said they prefer women officers, participants in many groups spontaneously articulated their preference for male officers, and many others strongly agreed with this. Participants felt that men were often more relaxed and friendly, more sure of themselves, more reasonable, and more able to physically help travellers if needed.
• Young vs. old officers: Fewer participants felt that the age of the Customs officer matters, although some did feel that age is a factor. Of these people, most prefer older officers (although this was by no means a consensus). They were seen to be more experienced, more relaxed and friendly, have more instinct, be better able to identify problem travellers and focus their attention on these, and less likely to try to show their authority. Younger officers were sometimes seen to be tougher, more aggressive and more serious (but some found younger ones to be more responsive). Note, however, that most people felt there was no notable difference based on age.
• Airport vs. border crossings: On this issue, regional variations were evident. Most participants in the West, particularly Vancouver, prefer going through Customs at the airport rather than at a border crossing. This sentiment was often spontaneously raised and widely supported. Many people had had more problems travelling back by car. It was noted that Customs officers may be more suspicious of people travelling by car ("They are not sure where you come from by car. At the airport, you have a plane ticket"). Other reasons offered to explain why the airport is better are smaller line-ups, Customs officers seen to be more respectful, fewer questions asked ("By car, they have time to ask you more questions"), the questions asked being the same each time, and travellers being better prepared and having their passport and other documents handy. People who prefer border crossings pointed to quicker service, having receipts handy, typically buying less on the trip, and being more comfortable in a car. In all the other locations (i.e. Toronto, Montreal, Halifax), many saw no differences in how travellers are treated by Customs agents, and opinions varied as to whether waiting times and procedures were faster in airports or road entry points.
• Tendency to select Customs officer: Many said they pick the Customs officer to go to, whether at the airport or a border crossing. Criteria used for this selection process are the length of the lines (preferring short lines not just because they are less long, but also because long lines are associated with officers who ask more questions), the perceived friendliness of the officer ("Are they smiling?"; "If there is an angry face, I don't go there"), the officer's gender (see above), and the people in front of them in the line (i.e. if they think someone will be delayed and questioned, and so hold them up). Some noted that they often switch lines.
• Families treated better: Many people felt that families are often treated better by Canada Customs than other travellers. In fact, some young people volunteered that they are treated better/quicker when they travel with their parents. Some people also think that female travellers, particularly those with children, are treated better. Most viewed this situation as normal and felt it is appropriate that children not be made to wait for long periods of time. However, it was also noted that women travellers are considered big shoppers abroad and may be targeted more than men on that basis.
• Line-ups: Line-ups emerged as a common irritant, both at airports and border crossings. There was no consensus as to where line-ups were worse - some felt at airports, some at land crossings. Many thought it was too hard to say, and depended more on peak periods (e.g. long weekends, holiday periods, whether many international flights were scheduled to arrive at around the same time).

Perceptions of Fair Treatment by Canada Customs

Most people feel that they have been treated fairly by Canada Customs. Across the country, more than three-quarters believe this. Once again, however, satisfaction is highest in the West and lowest in Toronto (but still about three-quarters in Toronto hold this view). That said, Black participants were notably less likely than others to think they have been treated fairly. In the Montreal and Halifax groups, one-third (8 of 24) felt they were sometimes treated unfairly. In the Toronto groups, about half felt the same. Baggage searches are frequent. The tone and look of the Customs officers are at times seen to be belittling. Questions are sometimes asked in a cold, very direct fashion (expanded upon below).

Participants were asked to identify what Canada Customs does well in terms of treating people fairly, and what it does less well. People tended to reiterate comments or concerns that were articulated elsewhere. Note that some of the issues judged by some people to be areas of strength were identified by others as areas in need of improvement (the variance clearly based on participants' own experiences).

In terms of what Canada Customs does well to treat people fairly, participants identified:

• Greeting people well, being friendly (particularly in comparison to the U.S.).
• Tone of voice, being polite, courteous and respectful.
• Very professional in doing their job.
• Fast service. The `Pace' lane (in B.C.). Quick check of buses on long weekends.
• Equal treatment, asking the same questions of everyone.
• Understanding people from different countries, backgrounds ("They are more sensitive to this").
• Understanding human rights.
• They do not do anything obviously stupid.
• "They trust you"; "They believe my answers".
• Their protection and drug enforcement role, trying to protect the country.

With respect to what Canada Customs does lesswell in terms of treating people fairly, people identified:

• Line-ups, particularly in peak periods.
• Judging people by appearances (i.e. visible minority status, the way people are dressed). Labelling, stereotypes. Giving younger people a hard time.
• Not consistently courteous with people. Need consistent good manners.
• Sometimes hard to understand line of questioning. Accordingly, the questions (and Canada Customs) can appear to be intrusive, arbitrary or even stupid ("They should stick with the range of normal questions. More professional questions, less personal questions").
• The code put on travellers' forms (can make people suspiciouservous).
• Using plain clothes officers in the luggage area (although some saw this as necessary and a good idea).
• Body searches.

When asked what Canada Customs could do to treat them more fairly, participants volunteered the same kinds of suggestions offered elsewhere to improve Canada Customs service. As such, these ideas have been grouped together with other suggestions at the end of the report.

Perceived Commitment of Canada Customs to Fairness & Fair Treatment

Most participants think that Canada Customs is committed to fairness and the fair treatment of travellers. Approximately three-quarters or more felt that the agency is committed (higher in the West, lower in Toronto). Many were unequivocal about this and quickly offered their agreement. Others were less sure, at least about the consistencyof fair treatment. For instance, the following qualifiers were often added by participants: "most of the time", "they are trying to", "except for a few bad apples", and "they are working on it". As well, a few people said they did not know whether Canada Customs was committed, but thought that this was likelythe case (i.e. they gave the agency the benefit of the doubt). When prompted, most people thought that Canada Customs was committed to fairness based on their own personal experience.

Some people drew a distinction between theory and practice. That is, they felt that Canada Customs, as an organization, was committed to fairness, but that this was not fully implemented throughout the agency. Some simply noted that the application of this principle varied from one Customs officer to another. It was also noted that Canada Customs, as a government organization, should becommitted to fairness. It is worth nothing that some people still have an expectationof unfair treatment, even if they are regularly treated fairly.

Representative comments included:

• I think so.
• I would hope so.
• As a rule, yes.
• In principle, they are committed. I'm sure this is their mandate. Whether they are in practice I am less sure.
• Mostly. There are a few individuals that spoil it.
• Overall, I think they are fair. But you are dealing with different individuals. They do not always go by the book. Some are not fair.
• It may be in their mission statement. But in practice, they are not always fair.
• Some individuals stick out as bad.
• They probably have a written policy, but not in practice.
• I think they are just doing their job.
• I'm not sure. I think it's mostly lip service.
• If they were fair, I would not feel violated at times. I do not think this is fair.

When asked to explain why they thought Canada Customs was committed to fairness, people typically pointed to the positive treatment they have received, the absence of negative experiences, and perceptions that Customs officers are generally fair and "go by the book". As noted, a minority of participants felt that Canada Customs was not committed to fairness. Invariably and understandably, these people tended to be the participants who themselves were not satisfied with the treatment and service they have received. As such, these people tended to point to the way they were treated to explain why they thought Canada Customs was not committed to fairness.

Perceived Treatment Compared to Non-Visible Minority Travellers

Participants were asked whether they think they are treated any differently by Canada Customs than Canadian residents who are notmembers of a visible minority. This was an important part of the research - to better understand whether Canadian visible minority travellers perceive any discrimination or bias in the service and treatment they receive from Canada Customs.

Participants were very much divided about this. For the purpose of this analysis, we have divided participants into three groups based on their perceptions in this area. The number of people in each group is roughly similar, although the middle group is somewhat smaller than the other two:

4. People who do not think they are treated any differently;
5. People who are unsure, but who are unable to point to any personal examples of discrimination; and
6. People who think Customs officers sometimes do discriminate against them because they are members of a visible minority.

A little more than one-third of all participants, including a clear majority in Western Canada, do not think that they are treated any differently than Caucasian travellers. This sentiment was not confined to the West - even in Toronto, Montreal and Halifax, many people believe that they are treated the same as non-visible minority travellers. Even when pushed, these participants tended to firmly reject the notion that they are treated any differently. At most, some of these participants acknowledged that discrimination mightexist in Customs service, that there may be some instances of unequal treatment, but they have seen no evidence of it. Not only did this group not have any personal experiences that made them question the equality of service they received, they did not observeany acts of discrimination occurring with other visible minority travellers. Some, however, did acknowledge hearing some stories of potential discrimination. Representative comments included:

• Never had a problem.
• I don't see it as different. It is pretty much fair.
• No problems.
• It hasn't happened to me.
• Depends on your luck. I've heard about it.
• Sometimes you hear stories, but it has not been my personal experience.

The second group consisted of people who were unsureabout whether they are treated any differently than Caucasian travellers. These people represent somewhat less than one third of all participants, and are most likely to be found in Western Canada (but not only). None of them has personally experienced service that could clearly be perceived as discriminatory. However, there may have been one or two instances where they were not sure if they were treated differently. This was something some people wondered about. There was no clear evidence of different treatment, but rather a nagging suspicion or concern that this might be the case. As well, a few had heard stories about how some people in their ethnic community may have received different treatment; however, many had not heard such stories. Finally, these people did not observeacts of discrimination occurring with other visible minority travellers (or only minor ones that may/may not have been attributed to discrimination).

The thing that separates this group from the first one is that they are not sure if they are treated differently, since their personal experience is inconclusive, but they are open to the notion that this is possible. It was noted that it is hard for them to know for sure since they are not white and have not experienced Customs service from this perspective.

In short, while these people could not say that they have been treated differently, they do tend to believe that discrimination mayexist within Canada Customs. That is, they leave the door open that this is possible... either with respect to themselves or other visible minority travellers. For some, there is a sense that this has not happened - so far - but that it might in future.

Comments included:

• I know discrimination exists. I think it does there too. But it's subtle. I'm not sure.
• I've had no problem with that. I speak English with a Canadian accent. But I do suspect that it happens.
• It could be, but I have not experienced it personally.
• I've never had any direct experience of this, but I could see it happening.
• I've had good experiences, but part of my anxiety is because I'm a member of a visible minority. The treatment is not different, but the experience is. Iexpectthe treatment to be worse.
• There is a little prejudice always there, but you do not have to experience it. It is there at the back of your head. The treatment or behaviour is normal.
• I fear having a Muslim name. There are stereotypes attached to that. But I haven't experienced different treatment so far.
• Customs officers are trained to hide it, if they do not like someone's features. It's human nature. Everyone is prejudiced and prefer their own race. But it hasn't changed the way I am treated.
• Probably. I sometimes feel judged.
• It was tougher before I became a Canadian citizen, but not any more.
• I'm not sure. They are nice at times, but not at others.
• I'm on my guard.
• I've not felt it myself, but have heard about it and saw it happen to others.
• It might happen. It's human nature, but I have not felt it. People could be asked extra questions, officers might not like their accent.
• You are treated according to how you project yourself. Customs officers see your attitude and respond to this. Skin colour is an easy scapegoat, but is it that, or is it the person's behaviour?

It was often noted, by participants in each of the three groupings, that certain types of travellers are more likely to be closely scrutinized by Canada Customs. The following types of people were often seen by participants to be subject to greater scrutiny, more questions, and even more searches:

• Young men;
• People who are not dressed well, particularly younger travellers;
• Visible minority travellers (and others) who do not speak English or French well;
• Travellers returning to Canada from higher-risk destinations (e.g. Jamaica, Lebanon, Columbia);
• People who do not have Canadian, American or European passports ("These people are subjected to more searches and questions");
• Buses travellers ("They have some stereotypes about people who take the bus. They are seen as poor, so they get poor service, long line-ups"); and
• Car vs. plane ("They are more suspicious of people travelling by car than by plane, which tends to be linked to vacations. In a car you can hide illegal immigrants, so they look closer"; "Expect more smuggling through the border than through a plane. On planes, there is less room, more security").

It was felt that any combination of these things tended to increase the likelihood of close scrutiny by Canada Customs. When participants themselves fit into more than one of the categories, they were often unsure about what triggered more scrutiny from Customs officers. For instance, it was unclear to some people exactly what contributed to the increased scrutiny they experienced - their age, colour, gender, clothes, or the country where the flight originated. Often, it was seen to be a combination of all these things. This issue contributed to the confusion about whether participants felt they have been discriminated against because of skin colour, since closer scrutiny may have been associated with some of these other factors.

As an aside, many participants felt that it is normal and appropriate to more closely scrutinize people coming from "higher-risk" countries. It was noted that some countries are unstable, such as Lebanon, which has been at war for the past 17 years. It was also noted that some are known sources of drugs, terrorists or illegal aliens. It was felt that Customs agents need to take extra precautions when meeting people or inspecting shipments from these countries:

• Canada Customs tends to see people coming from the Third World differently. This is often the source of drug dealing and terrorism. It is understandable.
• The different treatment is because they want to stop illegal aliens, not because of racism.

In short, many participants did not think that different treatment for some visible minority travellers was based on discrimination, but rather that Canada Customs has some "working assumptions" or "predisposed ideas" about the degree of risk. Oftentimes, participants linked different treatment to the country of origin of the flight and the related risk, not to the visible minority status of the traveller.

Many people felt that visible minority travellers who have trouble communicating in English or French are often treated worse. This was a common theme put forward by participants, based on their personal experience and their observations of how others are treated by Canada Customs. They felt that officers are sometimes impatient and demeaning. It was also noted that language problems can be exacerbated by cultural differences. Many felt that the more "westernized" someone is, the fewer problems he/she will likely encounter:

• If you speak English well, it sets the tone of everything. All is easier.
• It helps if travellers can communicate with them. There are more questions asked if they cannot.
• Ils sont impatients avec les gens qui ne parlent pas français. C'est arrivé à ma mère.(They are impatient with people who don't speak French. This happened to my mother.)
• If people speak a different language and come from a different culture, this can make it difficult. There can be more misunderstandings.

It was often noted that Canada Customs was no different from Canadian society at large. That is, while Customs officers may not always provide unbiased service, their record was as good as most. It is worth noting that many people felt that Canadian society was relatively good in accepting diversity. However, it was noted that not all aspects of society are equally open-minded and embracing of multiculturalism. It was also felt that discrimination is linked to age, and that the younger the person, the less likely he/she is to be racially biased. Comments included:

• It's happening everywhere, not just Canada Customs.
• It's fine 80% of the time. 20% might be unfair. That's life. I see that as the norm in Canadian society, and Canada Customs is no worse.
• In Canadian society, there are sometimes problems. I feel it sometimes. But society is good overall. There is little discrimination. It goes by generation.
• We live in a multicultural country. Customs see people of visible minorities all the time, and have to deal with this. I think they have learned to.
• In Canada, racism is very subtle.
• Multiculturalism and diversity have not been embraced in Canada's political institutions.
• There will always be that. People are always judged by what they look like. It is not only Customs, it's part of our daily life.

It was sometimes felt that Customs officers, being human, could not dissociate themselves completely from biases or prejudices they were exposed to, and may have learned, when growing up. A few people expected that there was conflict there - between the objective of providing equal treatment for everyone, and these potential biases from how they were raised.

The third group of participants felt that the treatment they received from Canada Customs is different from that accorded to Caucasian travellers. A little more than one-third of all participants fell into this group, particularly Black participants and Toronto residents. While all of these people feel they have been treated differently, the experiences on which this perception is based varied considerably, ranging from being singled out for ID or additional questions to searches taking place on a routine basis upon arrival back in Canada. The use of stereotypes and labelling was much criticized, as was the manner with which Customs officers dealt with them. Participants in this group focused both on their own personal experience and on what they saw or heard about.

The following presents the ways in which participants felt their treatment differed from that accorded to non-visible minority travellers:

• More searches, both luggage and cars. Some also pointed to a more aggressive style to the searches (e.g. less friendly, more rude, more lengthy).
  • I think visible minorities are inspected more often.
  • Most of the time, coloured people are checked.
  • I'm young, black. Coming from Jamaica, I expect to be delayed 6 or 7 times out of 10, if I am on my own.
  • My son and nephew were searched when coming back from Jamaica. Heard about other kids too, young black men. Same thing happened. I'm assuming that this is something that goes on, particularly with young ethnic boys.
  • I'm not sure it's different. I'm not white, so I can't tell. But most people who are stopped are Black or Hispanic.
  • Asians and East Indians are more likely to be checked. I feel angry, stereotyped.
• Singled out for special treatment (i.e. more questions, show ID, more searches).
  • It is more noticeable at the border than the airport. I was asked for my ID, the only one among my friends(friends were all white).
  • When I was driving back from the States with two Caucasian friends. My two friends were passed through, and they focused mainly on me.
  • Most of the time it is the same treatment, but a few times I feel picked on.
  • I've had no trouble with flying. It's the border where there is a problem. When driving in a car full of white friends, I was the only one asked questions.
• The use of stereotypes and labels.
  • No specific incidences. Use of stereotypes.
  • I feel like stereotypes get picked.
  • They can be judgmental. Everyone classified and put into a category. Like Canadian society at large, Canada Customs is like this.
  • I get nervous when approaching borders. I expect different treatment.
• A colder reception, different attitude. Questioning where Customs officers use a disdainful tone.
  • There are lots of time when I thought I might be treated differently. Through their tone of voice, smiling at a previous car, then not for us, asking stupid questions.
  • I think there is an undertone, even if it is a simple question.
  • Arriving from Jamaica with some friends, we were treated rudely and searched aggressively (dogs).
  • They treat visible minorities with kids with less consideration than other travellers with kids.
• More questions asked. Different types of questions asked.
  • They ask me more questions than white people. They just let the tourists go through.
  • When my brother was scratching his head after a long trip, my mother was asked "Does he have lice?"
  • You get different questions, "What vegetables are you bringing in?" Different treatment disappears when the questions are answered well.
  • I was asked for my landed immigrant papers or a visa. I was not asked for my citizenship. I felt insulted. There were no other incidents.
• Less belief in the answers.
  • The reaction to my answer - "Nothing. Nothing at all to declare?" - like I am not believed. Now I give them a list. I also have the expectation that colour matters, that itmightbe a problem.
• Some felt that agents look at visible minority travellers in a manner that differs from the way they look at white people
  • I don't feel any bias or racism, but I do feel that I am treated differently. They always assume someone is in the trunk.
• On more than one occasion, participants noted that when they were with their partner who was Caucasian, the treatment they received from Canada Customs improved.
  • When I am with my wife, I have no problems. When I am with other Asians, I am often searched.
  • When I travelled with my white boyfriend, no problem. When I travelled back from Trinidad on my own, I was stopped.

A few people also had a perception that priority is given to buses with mostly white passengers, while buses with black people are made to wait.

Some participants noted that the treatment they received was itself quite variable, depending on the individual Customs officer or circumstances:

• It depends on the person, the circumstances.
• Depends on whether the officer is having a good day or a bad day.
• It depends on how the Customs officer looks at things. Some officers are prejudiced, some are not.
• Still have "Oh my, it didn't happen" when I am passed through quickly. But it might the next time.

As noted, participants who are Black or who live in Toronto were more likely than others to feel that they have been treated differently. However, even here people's experiences were quite varied. For instance, in one Montreal Black group, no one felt there was discrimination on the part of Customs agents. In the other Montreal group, six of eight Black people felt that incidents of discrimination were exceptional, but did occur, while two participants felt they were quite common. In the Halifax Black group, two participants felt some discrimination on the part of Customs agents.

In Toronto, there were more problems, particularly with flights from the Caribbean (especially Jamaica). Many people felt that the travellers on these flights, particularly Black people, are subject to closer scrutiny than any others. Participants commented negatively on the number of Customs officers, the use of dogs, the extreme frequency of luggage searches, and aggressive, disrespectful treatment by Customs officers.

Significantly, in one Toronto group eight of nine Black people said they were treated much better if they were coming back from the U.S. compared to the Caribbean. They noted that Customs officers would be friendly, more pleasant, and treat them like someone coming home. In these instances, they felt they were treated fairly and no differently from Caucasian travellers. This treatment was in sharp contract to the way they are treated when they return from the Caribbean. These contrasting experiences caused participants to focus squarely on the Caribbean flights as a problem area.

Some people felt that the extra security for Caribbean flights was related more to a desire to harass people than to find drugs. Participants spoke of stereotypes, where Canadians are apt to think that everyone who comes from Jamaica causes crimes or problems ("The media portrays Jamaicans as bad, and Canada Customs and others pick this up"). It was noted that Jamaicans often come to Canada with little money, are among the first to be deported if problems arise, and are often regarded with concern by other Canadians. It was even suggested that the increased security is part of "a system to break down the self-esteem of Black people". It was also felt that while Jamaica flights are targeted for increased security due to drugs, Black people on other flights are still scrutinized more closely. Most participants felt that both the country (as a drug source) and travellers' skin colour contributed to the extra scrutiny on Jamaican flights.

When participants in one group were told that Jamaican flights receive more scrutiny because Jamaica is a higher-risk country for drugs, it was noted that B.C. is a major grower and exporter of marijuana, so people questioned the focus on Jamaica. As well, reaction was to inform travellers about the higher-risk status of Jamaica ("Everyone should be aware of it"), to treat all people on the flight equally (i.e. search them all or no one), and to change the manner with which Customs officers treat the travellers ("It's a matter of respect. They could look pleasant, have compassion and decency"). Note that participants generally were not very surprised by the information that Jamaican flights receive more scrutiny because they are higher risk.

Some of the experiences that participants shared, and the way in which they talked about them, indicated a lack of trust and often considerable hostility. For instance, one young Black participant, on returning from Jamaica, did not trust the Customs officer (fearing he might `plant' something) so asked for another officer to join them. He felt this angered them and delayed things. The whole inspection took 2 ½ hours. Another spoke of his luggage being searched, and his fried fish opened by the officer, so that it was inedible after that. Presented below are comments from the Toronto groups about their experiences, most of which focused on the Jamaican or other Caribbean flights:

• All the times from Jamaica flights, there are lots of searches. Customs officers are in your face.
• There is sort of discrimination against Jamaica. A different mindset. You are guilty until proven innocent. Their manner even changes. You get less respect.
• I was coming back with my kids from Jamaica. The dogs sniffed us and our luggage. There was no eye contact, no reassurance. The officers were judgmental and unfriendly. It frightened the kids.
• When I returned from Jamaica after staying there a month, I was asked why I took so much clothes. They searched my stuff, but left half the suitcases untouched. That showed me it was harassment, that they were not searching for anything, or they would have looked in all the bags. It took 3 ½ hours.
• They have no manners when they search you. No dignity.
• They went through my fried fish with a knife. They should have let me do it. Then I could have eaten the fish. I threw it out.
• They ripped my cakes apart, after they had already put it through the scanner. It wasn't necessary. I could not eat them later.
• You feel tense, judged, stigmatized.
• It was very different when I was on a plane from Atlanta with other visible minorities. There, I had no problems at all. From Jamaica, you feel targeted and labelled, even if you are white.
• I don't feel like I am treated like a human being.
• There is a sense of relief when you're finished, and get through.
• They make you feel guilty.
• I understand they are doing their job, but sometimes they forget they are dealing with human beings. The treatment is not always nice.
• Even when you cross the border by car it is different. If you have a Jamaican passport, you are pulled out of the car.
• It's something you expect, this type of treatment. I am searched all the time, especially when coming from Jamaica.
• They make you feel like you have done something wrong. We are not treated humanely.
• They do not reassure people. They show power and strength, especially for Jamaica flights.

When these participants were asked specifically to identify measures to deal with what they viewed as discrimination, people pointed to the following:

• More smiling, eye contact. Make people feel at ease;
• Hire more visible minority staff;
• Do not pre-judge. Treat everyone equally;
• More training - both cultural sensitivity and public relations;
• Show Customs officers what they are doing wrong (in terms of providing equal, fair treatment); and
• More accountability, such as surveys or comment cards for people on Jamaican flights, visible complaint mechanisms, clear name tags for Customs officers, and `mystery shoppers' (where visible minority researchers would pose as travellers to assess the level of service).

These suggestions are expanded upon at the end of this report.

People had trouble comparing the treatment they receive with that accorded to other ethnic groups, such as Chinese, East Indian or Black. This question was asked in the non-mixed groups, and most participants had trouble answering it. They simply did not know enough on which to base an informed opinion. However, it was noted that the security on Jamaica flights is tighter than on most other flights, that Black people coming from the Caribbean tend to have less money than Chinese people from Hong Kong or other areas, that Jamaicans are often associated with crime, and that when Canada wants to deport people, they are quicker to do so with Black people("Black people are at the bottom of the totem pole"). Nevertheless, across most groups, there was little sense that any group of visible minority travellers is treated differently from others.

Interestingly, numerous participants said they expect the treatment they receive to be worse (i.e. stricter) from Customs officers who are members of their own ethnic community ("They have to prove themselves"; "They can be ruthless, to please the establishment").

Comparison of Customs Service Vs. A Few Years Ago

Almost everyone feels that the service provided by Canada Customs has improved or stayed the same during the past few years. Most of these, however, think the service is about the same as it was. Almost three-quarters in Toronto think this, and just over half in the West. Almost half of Western Canadian participants believe it has improved, as do many in Montreal/Halifax, but fewer than one-in-five Toronto participants. Only a handful felt the service has gotten worse (five in Toronto, two in the West, none in Montreal/Halifax).

When asked to explain why they felt service has improved, participants identified:

• Faster service, fewer delays, more booths, more staff;
• Better procedures, more pre-planning (e.g. use of rovers to ensure people are in the right line, travellers made aware of processeeds on incoming airplane);
• Friendlier agents. Less inclined to prejudge travellers. More open-minded;
• Better educated, trained, aware Customs officers. Also mentioned was Customs agents being more aware of the habits of foreign travellers and asking more relevant questions;
• More cultural sensitivity. Awareness and acceptance of different cultures. Agents are more flexible and tolerant towards food items brought in by members of ethnic communities;
• Language interpreters at airports;
• Use of technology (e.g. x-ray bags);
• Better experiences during recent years;
• Fewer searches;
• Better physical layout; and
• Use of dogs.

Those small number who thought the quality of service has declined identified:

• Stricter officers. More questions, more suspicious. More aggressive with young travellers;
• Worse attitude. Less pleasant. Less focus on customer service;
• More crowded;
• Officers giving people a harder time so they will not spend as much money outside the country; and
• General perception of more crimes by Customs officers (cited by one person).

Focus on Customs Protection Role

Awareness and Support for Canada Customs' Protection Role

There was widespread awareness of and support for Canada Customs' protection role. On this, there was a strong consensus across all regions. When asked to describe the main role or purpose of Canada Customs, its protection role was the prime focus, and was described spontaneously and relatively accurately by participants in all regions.

People identified the following aspects of the protection role (in approximate order of the frequency of their expression):

• General protection role ("Safety of citizens"; "Prevent crime"; "Security");
• To keep out criminals, terrorists and other "undesirables";
• To control drugs, weapons, bombs, smuggling and other illegal activities;
• Money collection and economic controls (i.e. duties, taxes, regulate commerce, control non-Canadian spending, etc.);
• To keep out illegal aliens and otherwise be involved in the immigration/people flow function (e.g. check passports, landed immigrant papers, visas);
• To protect Canada from health threats, involving plants, animals, or ill/diseased people;
• To welcome people to Canada ("They are the first people visitors see when coming to Canada"; "They are ambassadors");
• To regulate all things that come into the country;
• To enforce Canadian laws;
• To ensure products/goods are up to Canadian standards; and
• To collect statistics about travellers.

Everyone said they recognize this protection role, view it as important, and want to see it maintained as a high priority. In many groups, people quickly volunteered that this role was "very important', "essential" or "vital". They want Canada to remain peaceful and relatively free from violence and drugs, and see Canada Customs as having a key role in this. The see customs activity as necessary to protect Canada, our standard of living and quality of life, and to protect personal safety and security, and defend Canada from outside threats of all kinds.

Representative comments included:

• Canada is a peacekeeping country. We need to keep it that way.
• Want Canada to remain the best country in the world.
• If they were not there, the country would be a mess.
• When you think about it, they are looking out for us.
• To screen out the bad stuff, like drugs, people, guns.
• Want the country protected, safe
• I would be very nervous if they were not there.
• You need Canada Customs just like you need the police.
• It's worth a little inconvenience to do this.

Many participants did not want Canada Customs to ease up on the way it fulfils its protection role (i.e. ask fewer questions, do fewer searches). Some felt that, if anything, Canada might need to be more strict ("They are sometimes too lenient"; "When you think about it, they should be more strict, not less"; "Canada searches less than other countries"). Some, however, noted that it was still possible for Canada Customs to fulfil its protection role, but that it needed to do so with a more respectful, customer service orientation.

When the focus was on various different aspects of its protection role, not all areas of activity or concern were equally supported. Across all groups, there was widespread and strong approval of customs' role in administering their protection function related to drugs, firearms, pornography, and missing children. However, when the focus was on alcohol or tobacco, support was less strong. In many groups, a few people felt that this role was not very important, at least in comparision to some of their other areas of protection activity. Some even felt that Canada Customs should not be involved in this area at all. Reasons given included that this is an economic role, not truly protection from threats, that alcohol and tobacco are widely available in Canada, that there should be free trade in these items in North America, and that people should be able to spend their after-tax income however they would like.

Satisfaction With Canada Customs Performance of Protection Role

The majority of participants said they were satisfied with the job Canada Customs is doing in its protection role. Most think that the agency does a good job, overall, in filling this need ("They are doing it to the best of their abilities. You can't stop it all"). By way of evidence, people pointed to the fact that Canada is a reasonably safe and peaceful country, that there have been no major incidents (i.e. terrorist actions), low crime rates, media stories of drug busts, and the professionalism with which Customs officials perform their role (i.e. lack of corruption, adherence to regulations, searches, line of questioning, use of dogs). In general, many people just have an overall sense of safety and security ("I always feel protected"; "Canada is a safe country to live in, so they must be screening out the bad stuff").

Not everyone thinks that Canada Customs does a good job in its protection role. Some were uncertain about this, while some others were negative. To support their uncertainty or criticisms, people identified:

• The existing black market, including for drugs ("There are still drugs coming in"; "They are not doing a good job with drugs");
• High profile crimes, learned about through the media, perpetrated by people who should not have been in Canada in the first place;
• The ready availability in Canada of pornography;
• Tobacco smuggling through Indian reserves; and
• Stories that it is easier to enter Canada than the U.S. (and so would be easier for drugs, etc. also).

Some people expressed the belief that Canada Customs is focused too much on individual travellers, and not enough on larger-scale smugglers ("Smugglers are using other methods"; "They are missing the big picture. Focused on all the small-time stuff. The organized crime stuff is the bigger problem, and this is not addressed"; "They are too lenient on drugs and illegal aliens, but too forceful on undeclared goods"). It was suggested that Canada Customs focus more on larger cross-border crime, including working closely with the RCMP, and less on "the small stuff". On numerous occasions, people said they would like Canada Customs to focus more on potentially violent/more harmful threats to Canada, and less on the economic aspects of their job.

Related observations included:

• A few people noted that travellers often do not get a sense of Canada Customs' protection role through the questions that are asked ("I've never been asked about firearms");
• It was felt that Canada Customs could do more with respect to missing children;
• Some people felt that some Customs officers may be corrupt, and therefore compromising the protection function ("They should check Customs officers"; "There's a code of silence"; "Someone has to let them through"). This perspective was only voiced in Toronto, but was raised in different groups; and
• Some groups of travellers were seen to be more of a risk to Canada, and would therefore be more affected by the protection role of Canada Customs. It was often noted, however, that being more prudent was warranted with travellers from "trouble" areas. The types of travellers perceived to be under more scrutiny are the same as those previously identified as being more likely to be searched (see list above).

Focusing on those participants who were more critical than others about Canada Customs, these people also readily acknowledged the importance of the agency's protection role. Invariably, however, their comments in this area included a focus on the need for Canada Customs to fulfil this role better, with more respect and courtesy, and less stereo-typing ("We recognize their job. It is the way it's done that needs improvement. They have to treat people better").

Impact of Consideration of Protection Role on Perceptions of Service

Participants were divided about whether, when they consider customs' protection role, this affects the way they view the service or treatment they have received from Canada Customs. Most participants felt that it does not, primarily because they were already aware of Customs' protection role, and had included that in their thinking.

A noteworthy minority, however, felt that consideration of the protection role did indeed affect the way in which they viewed the service received. Most of these noted that thinking about the protection role made them more understanding of the job that Canada Customs has to do ("It helps you put yourself in their shoes"; "You understand that they are a necessary evil. You have less resistance then"; "You have a lower expectation of privacy. You accept their role").

Assessment of Specific Service Attributes

Level of Satisfaction With Specific Service Areas

Participants were asked to assess the service provided by Canada Customs in a number of specific areas, including:

• Speed of service.
• Extent to which they were treated with respect and courtesy.
• Helpfulness of Customs staff.
• Extent to which they were served in the official language of their choice.

They were asked to provide their assessment using a satisfaction scale (i.e. very satisfied to very dissatisfied). Little discussion was invited, unless key issues had not been covered in previous discussions about service.

With respect to speed of service, more than three-quarters of participants said they were very or mostly satisfied with this (about one-quarter were verysatisfied). Only a small handful of people expressed dissatisfaction, the rest were neutral. Western residents were more likely to be very satisfied.

With respect to the extent to which people felt they were treated with respect and courtesy, a little more than three-quarters said they were very/mostly satisfied (slightly more than one-quarter were very satisfied; most of these were in Western Canada). Once again, only a handful of people expressed dissatisfaction, with the rest neutral.

Most people did not require any help from Customs officials, so were unable to judge the extent to with Customs staff were helpful. The kinds of help that people did need tended to involve young children or older parents. Almost everyone who did need help said they were satisfied with Canada Customs performance in this area.

No participants in any part of the country expressed dissatisfaction with their ability to be served in the official language of their choice.

Focus on Customs Information

Many people said they would like to have more information about customs issues. It would appear that approximately half of the participants expressed a desire for more information (a little more so in Halifax and Montreal than elsewhere). When asked what type of information they need, most people focused on information about what can and cannot be brought into the country (foods, etc.), what are the available duty-free limits, and what products can be brought in duty free.

Other types of information identified by smaller numbers include the impact of the free trade agreement on allowable items from the U.S., what constitutes sufficient proof of ID, documentation needed for personal items brought with you on a trip, forewarning about the possibility that dogs might be used on return to Canada, visitor and work visas, what the taxes would be if you bring more than your limit, what offshore medicine is allowedot allowed, how do you proveyou had owned something before you left Canada (e.g. shirt, shoes), and the Canada Customs mission statement.

Some people wanted information about their rights as a traveller, including what questions Canada Customs is allowedot allowed to ask, what travellers do not have to answer, and the rights of Canada Customs as a whole. Related to this is information about what type of complaint or redress system exists.

It is worth noting that many of those who expressed interest in more information had made no attempt to obtain Customs information (although some did). For some, the only information they recalled seeing was on the back of the Customs declaration forms they filled out on the plane when returning to Canada. This was misinterpreted to be an information document (as opposed to a process document) by a number of people. A few people volunteered that they thought that Customs information was not readily accessible, and felt that it should be ("The information is not voluntarily given out. There's not easy access"). Some felt that it was up to travellers themselves to obtain the information they need.

The same suggestions were repeatedly cited with respect to how Canada Customs information should be distributed to travellers, with a focus on easy access and timely distribution (i.e. when people are leaving the country, not when they are coming back). Typically, people focused on the distribution of brochures. Suggestions included:

• At various places in airports, particularly the international departures section.
• On the plane (departing international flights).
• When people check in (for departing international flights).
• Through travel agencies (when travellers are given their ticket).
• Through ethnic community groups/centres, immigration services.
• In an outdoor brochure holder where travellers leaving Canada by car could pick one up (without going indoors).
• Through a 1-800 number and an Internet site.
• Bus terminals, train stations.
• Duty-free shops.

Other suggestions cited less often include:

• At the passport office.
• In in-flight magazines.
• Poster/information ads on the backdoor of bathroom cubicles.
• Ads in multicultural shows/channels on cable T.V.
• Providing information with U.S. Customs forms at Canadian airports (for people travelling to the U.S.).
• Providing information in other languages besides English and French.
• Having a short video in the food court, waiting area of airports.
• T.V. ad campaign informing viewers about customs laws, such as the amount of liquor that can be brought in duty free.
• In the brochures, provide some information about Customs officers, such as education levels, training received, salary level, etc. so that travellers will know who they deal with.
• Use clear, plain language in the brochures and other information.

Comparisons With Other Organizations

Comparison With Other Customs Services

Participants were asked to compare Canada Customs with the customs services of other countries they have visited. A large majority believes that Canada Customs is better than most other customs services in the world. An approximate hand count reveals that more than two-thirds think Canada Customs is better, about one-quarter think it is the same, and five percent think it is worse than other customs services. As well, many think Canada Customs is one of the best in the world. Comparisons were often made with U.S. customs, where the vast majority of people felt that Canada Customs is better ("Nicer, more friendly"; "Miles better than the U.S."), although a small number felt that the U.S. is better.

Regionally, Western Canadian residents were more likely to view Canada Customs as better: virtually no one said it is worse, while those who said better exceeded those who think it is `the same' by a ratio of 6:1. The other cities tended to offer assessments similar to one another, with more than half in each city believing Canada Customs is better (except Halifax, where larger numbers felt it is the same).

When asked to explain why they thought Canada Customs is better than customs services in other countries, these people tended to identify the same set of reasons across the various focus groups:

• Not corrupt (a situation seen to be prevalent in many other countries).
• More professional. Well trained, more efficient, competent ("They know their job").
• More professional appearance. Well presented, ("Clean looking, uniformed").
• More respectful, polite to travellers ("Treated with more respect").
• Friendly, smiling.
• More approachable. More accommodating. Reasonable.
• Apply the rules equally to all. Non-judgemental.
• Well-equipped, good use of technology (e.g. computers, x-rays).
• More organized ("More orderly. Things go the way they should"). Better at managing traffic flow. Faster service.
• More predictable, consistent, transparent.
• Very experienced, due to high volume of travellers.
• Good scrutiny of travellers (i.e. asking many questions, searching bags).
• Feel safer here. No guns. Sense of security (i.e. if there are problems, they will be resolved well).
• Convenience, physical layout.

A few people pointed to Canada being safer than many other countries ("low crime rates") to explain why they thought Canada Customs was better than customs services elsewhere. It was also noted that people might think Canada Customs is better because they are more likely to feel more comfortable with the customs service in their own country. A few people felt that comparisons were difficult because the service received depends on the trip and the individual Customs officer.

As noted, a small number of people felt that Canada Customs is worse than customs services in other countries. These people often felt that European customs services were better, or that service in some other places is more friendly (e.g. United States, Haiti).

Identification of Best Practices

Participants were asked to consider their experience with customs services in Canada and around the world, and to identify methods that they have seen which work particularly well. Many had considerable difficulty identifying best practices. Things that were mentioned included:

• Express lanes, such as the `Pace' lane in B.C. and the Green/Red lanes in the U.K. (i.e. lanes for those who have something to claim and those who do not).
• Use of technology, including x-ray of luggage. Use of cameras or one-way mirrors was also suggested in one group.
• Smiles. Friendly greeting. Talking to people in friendly manner.
• Respectful greeting (in Italy they salute, in Japan they bow).
• More staff (i.e. many booths open) to provide both quicker service and more resources for the enforcement of Canada Customs' protection role.
• Collaboration and co-operation between airlines and Canada Customs (e.g. handing out forms on planes) to expedite the process.
• A lottery system, like Mexico, to determine who will and will not be searched.
• Separate line-ups for citizens and non-citizens.
• The use of dogs to stop drugs.
• Customer satisfaction cards or surveys.
• Equal treatment of all travellers.
• Separate line for business people.
• Checking license plates.
• The option to file a claim and have a bill sent to your home for payment (said to exist at Niagara).
• Code numbers on the declaration form.
• Duty free shops.

Comparison with Other Government Organizations

Participants were also asked to compare Canada Customs, in terms of service and treatment received, with other government departments or agencies they deal with in Canada, whether federal, provincial or municipal. This kind of comparison was difficult for many. People noted that:

• They often have very quick and limited involvement with Customs staff,
• The reasons they use other government agencies, and the types of interactions with these, are very different, and
• Canada Customs has a protection function that most other government bodies do not have, so it needs to be more strict.

As such, most people had difficulty undertaking meaningful comparisons. That said, of those who would venture an assessment, most thought the agency was about the same as other government organizations. While some thought it was better, few felt that Customs service was worse.

People who thought it was better pointed to a lack of responsiveness on the part of many other government offices, others being more lazy, not returning phone calls, having to make many calls to get the right person or information, difficulty getting a `live' person, and longer line-ups (e.g. driver's licence). Some compared Canada Customs to Canadian immigration, and everyone who did so felt that Customs was considerably better. In short, there was often a perception of low efficiency and much bureaucracy in government offices in general (although not all agreed).

Reasons provided to explain the view that Canada Customs is worse than other government bodies included perceptions that Canada Customs does not emphasize customer service as much as other organizations, that others are more friendly, that Canada Customs is less innovative in finding ways to improve service, and that Customs is more "robotic" ("There are standard rules they cannot deviate from").

Suggestions for Improvement

In this section, we group together the various suggestions for improvement offered by participants. The ideas and suggestions that are offered first are those that were mentioned most often. Thereafter, we list further suggestions that focus squarely on trying to ensure equal treatment to members of visible minorities. Following this are other suggestions identified by smaller numbers of participants.

The following core set of suggestions was offered with significant frequency. In fact, some were offered in every focus group across the country. It is worth noting that the same types of suggestions were offered by both satisfied and dissatisfied clients.

• Encourage officers to smile more, be friendlier: This suggestion was often the first voiced and most commonly repeated. This includes more smiling, friendlier greetings, small talk, more polite and courteous, better tone, less obvious display of authority. While many said the service or treatment they received was friendly and personable (or at least some of the time), many others voiced dissatisfaction in this area. It was suggested that more friendly treatment would go a long way in terms of making travelers feel more comfortable and less nervous or inhibited. Representative comments included:
  • Greet us with a smile. Say `Hello', `How was your trip?', `Welcome back'.
  • Have them be more personable.
  • It's okay to show authority, but be more diplomatic.
  • They should be friendly. Take the same approach as a doctor's office. It will help reduce tension.
  • They are sometimes on a power trip, and can be rude and belittling.
  • Some try to put on a face of intimidation.
  • Look at travellers as human beings, not suspects.
  • They can potentially talk down to you.
  • There are better ways to deal with people than to interrogate or intimidate them. I feel they are trained to do this.

  As can be seen, some felt that some Customs officers sometimes let their authority go to their heads. People think this is inappropriate, and expect to be treated with respect and courtesy. It was also noted that Customs officers should approach each person as an individual, and not be affected by the last person they dealt with. When asked directly, people did not think that a friendlier approach would take more time and slow down the process ("It takes the same amount of time to be rude to people"). Participants also offered the following related suggestions: be less authoritative; be more courteous; treat everyone with respect and dignity; make people feel comfortable, through tone, manner, looking people in the eye, etc.; more training on `people skills' (see below); do not pick on people; and be more open and listen.

• Conduct searches in less alienating manner: Many people who had been searched noted that their negative experience with the search was not related to the search itself, but rather to the way in which it was conducted. People often said that their belongings were messed up during the search and treated with no respect, and that the Customs officer conducting the search was harsh, rude, remote or unfriendly. Clearly, many people were alienated by the way in which searches were conducted. A number of suggestions were offered in this area:
  • Talk to people and reassure them when the search is being conducted. Small talk, light conversation, even jokes were suggested ("They can search anyone if they are more cheerful"; "Be nicer"; "Agents should be polite when they ask travellers to open their luggage. They should not order them to do so");
  • More information in advance of the search to prepare them for what they can expect;
  • Treat people's belongings with respect ("Treat people's things like they mean something. With respect");
  • Help put things back the way they were (i.e. repack the luggage, car). This idea was very frequently offered;
  • As much as possible, provide people with privacy during the search. On the one hand, this could entail taking people into another room for the search; on the other, it might simply mean being sensitive to this need and ensuring that the search is not conducted in full view of a large group ("Be more discreet when going through underwear"); and
  • Have a female search a woman traveller's belongings.
• Need for closure following searches: On many occasions, people said they were looking for an apology or explanation when a search was over, particularly when nothing was found ("There was not even a `thank you'"). This issue emerged with considerable frequency across the country. It was strongly felt that a thank you and apology are needed (if nothing is found in the search), and would be effective in helping to minimize negative feelings associated with a search. When searches are completed, it was strongly suggested by participants that the Customs officer:
  • Thank people for their time and trouble;
  • Apologize for the inconvenience. Note that people did not require an apology for having been subjected to the search. It was generally deemed to be sufficient if Canada Customs apologized for the inconvenience they caused; and
  • Tell people why they were searched, even if this is simply stating that they were randomly selected or that it is part of their job ("Give an explanation. Say you are not doubting them, it's just part of your job").
• More visible minority officers: This suggestion was frequently offered, and was seen to be an important element in reassuring visible minority travellers that Canada Customs was committed to the fair treatment of all travellers, regardless of colour. People often noted that, in their view, there were not many visible minority Customs officers working for the agency. It was felt that the increased use of visible minority officers would send a strong signal to non-Caucasian travellers, and would help sensitize white officers to the needs, culture, and background of ethnic travellers ("It would soften the problem"; "People would feel more comfortable, even if they are not dealing with a visible minority officer"; "It would help sensitize other Customs officers, by working with their visible minority colleagues"). Interestingly, many participants felt that they might receive worse treatment from officers of their own ethnic background, because they felt that those officers "would try to prove themselves" and would therefore be more strict. Nevertheless, these was strong and widespread support for the increased use of visible minority Customs officers.
  
• More officers: Many people suggested that Canada Customs use more officers on each shift. A number of impacts were identified, including quicker service through shorter lines, more resources for the protection role, and officers that were less tired and therefore in a better mood. A related suggestion was to have more officers on duty during peak periods to speed up service (i.e. long weekends/holiday periods, times of day when many international flights are arriving). It is worth noting that many people commented on the `mood' of Customs officers as being important. On numerous occasions, statements like "They were having a bad day" were offered. As such, a few suggestions were offered with a view to improving the mood of officers (in addition to hiring more of them), including:
  • Giving them more breaks ("To make them happier"; "Have them fresh. It helps relieve stress"); and
  • Shorter shifts ("Don't have long shifts, so staff are happier"; "Long shifts result in tired, cranky people").
• More/better training: Many participants identified the need for more or better training of Customs officers. It may be that some of this training is already provided to officers. A variety of different types of training were identified, including:
  • PR/customer service training. This type of training was identified most often. Participants focused on the need for officers to develop their "people skills", to better appreciate the service aspect of their job, and the importance of (and how to achieve) customer satisfaction. The importance of effective communications was stressed ("Teach them how to deal with people. Talk to people, not at them"). This type of training was also strongly linked to the issue of equal and fair treatment of visible minority travellers;
  • Cultural sensitivity training. This was also identified frequently as a way to try to ensure that visible minority travellers are better understood and receive equal treatment. It was suggested that such training focus on skills development, particularly communications skills in dealing with people of other backgrounds ("More sensitization dealing with minorities. Learning to deal with them as human beings"; "Train agents in the psychology of ethnic persons");
  • Training to help Customs officers quickly identify liars, criminals, smugglers and other `undesirables'. This issue was raised on a number of occasions (i.e. that Customs officers shouldbe able to quickly spot the people who need to be searched ("They should be well trained psychologically to ask 2-3 questions and get a good reading of people"); and
  • Anger management training. The focus was on ensuring the officers did not allow their negative dealings with some travellers to spill over to the dealings with subsequent ones.
• Greater use of technology: Many people suggested that Canada Customs maximize its use of technology. Ideas included x-ray machines (such as those used for airport security) or other sensing equipment to inspect suitcases and perhaps even cars. Many felt that increased use of technology would speed up the customs process, be less intrusive and less discriminatory. A small number felt that this would be an invasion of privacy.
• Better environment in the Customs area at airports: This includes more relaxing colour schemes and music ("More cosy"). It also includes the uniform worn by Customs officers. While some participants focused on this in a positive fashion (because it makes officers look neat and professional), some others felt that it makes them look like police ("It gives you the impression they are like the police"; "They should have less intimidating clothes. They are too starchy. It makes me feel like I'm in a stiff situation"; "Des fois on se sent comme dans un poste de police" -- Sometimes you feel as if you're in a police station.) It was suggested that Canada Customs change the uniforms so that Customs officers do not look like policemen. This would make travellers more comfortable
• More use of interpreters: This was seen to be one way of providing better service, particularly to the visible minority community. In Vancouver, it was suggested that interpreters be added to border crossings ("Just like they do at the airport") and increased at the airport. A related suggestion was hiring more staff that speak multiple languages.
• Routinely obtain traveller feedback: Numerous people felt that travellers should be given more opportunity, on a routine basis, to provide immediate feedback on the service and treatment they received from Canada Customs, such as on-location comment cards or customer surveys, and suggestion boxes. Increased visibility and wide availability (i.e. not just random sampling) were seen to be appropriate.
• Better use of dogs: A number of participants felt that they way in which dogs were used by Canada Customs was too aggressive and lacked sensitivity. It was noted that the dogs can "sneak up on people" and startle them, that many people are nervous of dogs, and that the dogs can frighten children. Suggestions included making an announcement when dogs are being used, having the dogs go to everyone, not just some people, trying to ensure that dogs do not sneak up on people from behind, and putting muzzles on the dogs.
• Priority for families with children: If people are travelling with small children, it was suggested that they be given priority, faster service. Ideas included a separate line for people travelling with children, or some type of facility for waiting children ("Look after kids if there is a long wait").
• Appropriate questions: Some participants commented negatively on the questions asked by Customs officers. These were sometimes seen to be irrelevant, overly intrusive, or even silly. A number of suggestions were offered:
  • Inform travellers that the Customs officer will ask them questions to prepare them emotionally;
  • Stick with the range of `normal' questions ("More professional questions, less personal questions");
  • Give Customs officers more flexibility in the types of questions that are asked ("Not assembly line of questions"); and
  • Ask fewer questions.
• Recognize `personal' nature of Customs activities: When participants spoke of their interaction with Canada Customs, their comments often highlighted the personal nature of customs activities. That is, many aspects of customs work with travellers were seen by participants to be quite personal, from the identification of people for secondary inspection ("Why me?") to asking personal questions and conducting personal searches through travellers' personal belongings. It is important for Customs officers to be aware of how their work can strike many travellers as being highly personal in nature.

  When the focus was squarely on the service and treatment provided by Canada Customs to visible minority travellers, people offered a number of further suggestions. These are identified below. However, most of the suggestions identified above were also said to be very important in terms of ensuring fair treatment for this group. This includes things like smiling, friendly manner, more visible minority officers, more/better training, more interpreters, etc. Additional suggestions include:

• Further research: It was suggested that Canada Customs conduct research with Canadian residents who are members of a visible minority, but who do not speak English or French (or speak it well). It was noted in one Vancouver group that the current (focus group) research has as a significant limitation the exclusion of visible minority members that have difficulty communicating in one of our official languages, and that the experience of these people might be considerably different from what we are hearing through this research. Such research would require the use of interpreters or other-language researchers.
• Accountability measures: Participants identified various measures that they felt might serve to hold Customs staff more accountable for the way they deal with travellers. Suggestions included:
  • Some form of `mystery shopper' process, where visible minority researchers would `test' the system by going through Canada Customs as if they were genuine travellers (a similar process is used to assess Revenue Canada's phone lines). The researchers would record and analyze their experiences. This could be done as spot checks, every now and then, to hold officers or airports or border crossings accountable. To be effective, this process should focus on areas where there appear to be more problems;
  • Video surveillance, where Customs officers and travellers would be videod in a random fashion (i.e. without Customs officers being aware of when they were being videod). While a few people were uncomfortable with this for privacy or trust reasons, a larger number think the advantages outweigh the disadvantages, and noted that video cameras are everywhere, such as banks and casinos, and that people expect some form of surveillance when coming through customs. It was also suggested that someone independent of Canada Customs be responsible for this ("I wouldn't trust them. The tape might get lost or end up in the wrong hands");
  • Identify the full name of Customs officers on their badge, or at a minimum a clearly identified badge number (i.e. something that would help ensure personal accountability);
  • More random surveys with travellers (see above); and
  • Develop a special investigations unit for Customs complaints (suggested by one person).
• Recruitment focus: A number of recruitment-related suggestions were offered when participants were asked what Canada Customs could do to try to recruit officers that would consistently provide equal/fair treatment of visible minority travellers. Ideas included:
  • Hire more visible minority officers (discussed above);
  • Hire people that have travelled broadly or have otherwise been exposed to numerous other cultures;
  • Develop tests to try to identify if the candidate is a "people person". That is, if they like working with and dealing with people. Screening could also include a focus on tolerance and patience;
  • Develop evaluation scenarios/situations that assess emotional intelligence. The goal would be to try to identify how people will respond, on instinct, to situations involving visible minority travellers (and other `people' situations also);
  • Develop psychological tests or other exercises that would help screen candidates for potentially racist tendencies;
  • Hire people who speak multiple languages (beyond English/French). This would help make travellers feel at ease, and might serve as some form of proxy that demonstrates candidates' openness or interest in other cultures;
  • Have a mentoring program after hiring, where new recruits are teamed with, or mentored by, seasoned officers; and
  • Less nepotism (one person thought this was a problem).
• Less discrimination. A number of participants stated clearly that Customs officers should be less discriminatory. Overlapping suggestions included:
  • Do not prejudge individuals by what they look like;
  • Stay away from labelling and stereo-typing;
  • Treat everyone equally ("Keep an open mind"); and
  • Do not single people out. Some would prefer a more random method to identify people who will be searched.
• Provide less security on Jamaican flights: That is, have similar manpower as with other flights. Also, re-evaluate all Customs activities related to this and other Caribbean flights.
  • Adopt a truly random system to identify travellers to be searched. Mexico was cited as an example, where travellers push a button and either a green or red light goes on that tells them whether they will be searched or not.
  • Ensure that the `corporate culture' of Canada Customs is open to and accepting of multiculturalism. It was noted that it may be necessary to "change the face" of Canada Customs at a corporate level to one that embraces diversity. This would then be expected to positively impact on how Customs officers see their organization and their job with respect to visible minorities.
  • Adopt public relations or outreach initiatives to proactively reach out to visible minority communities. This would entail opening lines of communication and perhaps the sharing of Canada Customs information with these communities so that they are better informed about the agency's role and requirements, and can share this information with their members.

  In addition to the suggestions identified above, the following were cited by smaller numbers. These suggestions do not focus as directly on the service provided to visible minority travellers:

  • Let travellers pre-declare items they are taking out of the country in locations other than the airport ("Give people more options. Let them do this in an office in the city");
  • Develop some way for Customs officers to quickly review people's previous travel/Customs record. In this way, people who have had no problems or convictions of any kind could be quickly identified. This information would then be considered in whether or not to search or further interrogate that person;
  • Have separate lines for citizens and non-citizens. Some people favoured this because they thought it would result in faster service for them; others did not, thinking it divided travellers into two classes of people;
  • Identify on the Customs declaration form the need to keep receipts handy for possible review (although this information is likely needed earlier on in the process);
  • Clearly inform travellers that they have the option to address complaints with a supervisor - on location and at the time of service - if they are not satisfied with the treatment or service they received;
  • Give Customs officers more discretion, particularly with respect to duty issues and other monetary or non-harmful issues ("Stop the petty stuff, over small amount of money");
  • Have a program to pre-certify goods that could be brought in from other countries (e.g. as was done with tulip seeds from the Netherlands);
  • Have Customs officers help travellers in airport line-ups fill out their forms (i.e. those who need help);
  • Have specialists in airports that can identify potential problem travellers simply by looking at them and therefore, provide more protection for everyone else. Some think that Customs staff are now trained to detect higher risk travellers;
  • Take measures that are in relation to the scope of the problem. Do not overly harass travellers for very minor offences that have little or no impact on Canada's well-being.
  • When procedures will take a long time, allow the traveller to inform his family of the status;
  • Hire public relations specialists to deal with people who feel unjustly targeted;
  • Do not use plain clothes officers (these can intimidate travellers); and
  • When a traveller pays the outstanding duty at the Montreal Place d'Youville office, he should be able to recuperate his belongings immediately rather than having to wait for 3 days.

  With respect to Customs rules, people suggested:

  • Increase the `limits' available to travellers. Index the limits so they keep up with inflation ("Increase the duty free limit so that more travellers can go through faster");
  • Drop the concept of duty limits entirely ("Get rid of the taxes and paperwork");
  • Do not make people provide details about any groups of purchases under the limit (e.g. $500 after seven days);
  • Drop the application of duty limits to gifts received abroad; and
  • Open the U.S.-Canadian border, like they do in Europe, so that people can flow through unscrutinized.

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