CIMM – Chinook Development and Implementation in Decision-Making – February 28, 2024

Key Messages

• Chinook is a Microsoft Excel-based tool developed by Immigration, Refugees and Citizenship Canada (IRCC) for temporary resident application processing. It aims to increase efficiency and to improve client service by decreasing the impacts of system and broadband latency, thus improving processing times.
• Chinook offers a consolidated view of the information stored in the Global Case Management System (GCMS), IRCC’s processing system and system of record. It allows for increased GCMS user productivity as it is more user-friendly way than a multiple screen layout of the application’s information.
• Chinook is a tool designed to simplify the visual representation of a client’s information. It does not utilize artificial intelligence (AI), nor advanced analytics for decision-making, and there are no built-in decision-making algorithms.
• It is an IRCC officer, not the Chinook tool, that makes the final decision on an application. Chinook does not assess or make decisions on applications. IRCC officers continue to review client-submitted information to ensure informed and fair decisions. The use of Chinook does not lead to a less thorough review of applications, nor does it change the way decisions are made.

Supplementary Information

• Chinook is built in a modular way, allowing it to administratively support different steps in the process of assessing an application, depending on the module used. The various modules can assist IRCC with steps such as file management, indicator management, and pre- and post-decision management.
• Chinook is being re-platformed from Microsoft Excel to the Cloud and is currently under early development internally within IRCC. Re-platforming is expected to be completed in 2023.
• The Immigration Refugee Protection Act and Regulations (IRPA/IRPR) are the basis for the decisions rendered by officers. Decisions are based on officer review and made by the officer. Chinook does not change the way decisions are made. It is an officer – not the Chinook tool – that makes final decisions and provides the rationale for them. Chinook supports decision-makers and IRCC staff and does not make nor recommend decisions.
• Chinook does not store any data or client information. This is a privacy-centric approach so that IRCC is not creating a new database of personal information. Officers must record all decisions in GCMS, which remains the system of record.
• Experienced Chinook users within processing offices provide all necessary training and support related to Chinook, prior to other officers having access to the tool. Supplementary support is available through the use of standardized training materials, such as user manuals and recorded training videos.
• In December 2020, performance of Chinook was measured through a sample study of overseas migration offices. The results determined there was an 18-30% gain in efficiency, decreasing the impacts of system and broadband latency and allowing for shorter review time per application hence increasing productivity.
• IRCC’s advanced analytics and automation systems operate independently of Chinook, and they are reviewed routinely to ensure they are working as intended and align with the Government’s Directive on Automated Decision-Making.
• In accordance with recommendations made in the 8th and 12th Reports of the Standing Committee on Citizenship and Immigration, IRCC is conducting additional governance and oversight activities for Chinook, including a Gender-Based Analysis Plus and an Algorithmic Impact Assessment. Completion of these products are expected in fall 2023.
• Officers in the field input pertinent information in the indicator management module within the Chinook tool, the information is used to notify officers of trends that IRCC has detected or highlight a particular factor of concern. Keywords can also be used to identify positive considerations, such as applications that may require expedited processing (e.g. conferences, weddings).
• Information and/ or Indicators are identified and submitted for entry into Chinook by IRCC officers. Indicators and keywords are not created by the Chinook tool, by experienced officers in the field.
• The release of specific keywords connected to investigative techniques, trends, and risk profiles could encourage fraud or facilitate the commission of an offence, and are therefore not released per section 16(1)(b) of the Access to Information Act.
• Statistics on the use of indicators and keywords are not tracked globally. If indicators or keywords are present on an individual application, they would appear in notes in GCMS. Where there are no indicators or word flags on an application processed with Chinook, a “N/A” (not applicable) would appear in the relevant field in GCMS.

Litigation:

• Several recent Federal Court decisions have made links between Chinook and AI in spite of various departmental public communications stating that Chinook is not powered by AI, and does not make decisions or recommendations. Redacted.
• That said, the Federal Court recently confirmed in a case called Haghshenas that an officer’s use of the Chinook tool is irrelevant; rather, the focus should be on whether an officer’s decision is reasonable and to hold otherwise would elevate process over substance.