Response to an inspection of General Maritime
The Home Office thanks the Independent Chief Inspector of Borders and Immigration (ICIBI) for this inspection of General Maritime (GM). We welcome the continued scrutiny of this important and complex area and are pleased that the Inspector recognised the commitment and professionalism of Border Force staff working in the maritime environment.
The Home Office note the ICIBI’s acknowledgement of the challenges faced in patrolling the UK’s extensive and varied coastline, and the report’s recognition that threats in the GM space (including smuggling and other forms of organised criminality) are not new but continue to evolve. The Home Office agrees that meeting these challenges requires a co-ordinated, multi-agency response, underpinned by improved data collection, intelligence sharing, and strategic planning.
The inspection rightly highlights areas where progress has been slower than hoped. While some longstanding issues remain, work is already underway to address several of the concerns raised. For example, a ship life extension programme is underway to maintain current service levels of the maritime fleet. The Home Office also welcome the Inspector’s recognition of recent organisational changes and new leadership roles introduced to strengthen our maritime capabilities, including the appointment of a Border Force Maritime Director earlier this year.
It is accepted that the GM domain has historically lacked the same strategic coherence seen in other areas. This is why, in response to recent internal and independent reviews, the Home Office are now laying the foundations for a General Maritime Transformation Programme. This programme will take forward the recommendations endorsed by the Border Force Board in 2024 and focus on delivering meaningful improvements in operational effectiveness, information gathering, and workforce capability.
The Home Office remain committed to making immediate improvements where they can be achieved within existing resources. This includes reviewing internal record-keeping processes, prioritising a stock-take of workforce skills and training needs and working with partner agencies to build a more complete understanding of GM threat vectors around the UK coast.
The Home Office thanks the Chief Inspector and his team for their detailed findings and constructive recommendations and are committed to working collaboratively across government to deliver a proportionate, risk-led and forward-looking approach to General Maritime security.
The ICIBI identified several areas for improvement and has made a total of 11 recommendations, 1 of which contains 6 elements and have therefore been responded to individually. The Home Office has fully accepted 11 recommendations and partially accepted 5.
Recommendation 1
Review Border Force’s working definition of general maritime (GM), ensuring that all Border Force staff, Home Office colleagues, partner agencies and other stakeholders, understand what is included and what is not (in terms of vessels, locations, movements etc.).
Accepted
The Home Office recognises the needs for a consistent understanding and application of the General Maritime (GM) definition, both internally and externally. Work is continuing to refine the working definition of GM.
A proposed, updated definition has been shared internally for comment and agreement. Once agreed, it will be disseminated more widely to partner agencies through the Pleasure Craft Sector Group to ensure all relevant stakeholders understand what is, and is not, considered to be GM.
Date of implementation: November 2025
Recommendation 2
Empower the Maritime Director to set the minimum standards required of Border Force regions and commands, and of Home Office Intelligence (in conjunction with the Director HOI), when conducting general maritime related work, including any horizon scanning, scenario planning and risk testing exercises.
Accepted
The Home Office confirms that, with the support of the Border Force Board, Home Office Intelligence and the Border Security Command, the newly established Maritime Director will be empowered to advance this accepted recommendation.
Initial actions to implement this recommendation are already in progress. The target operating model for the Maritime Directorate, designed to support the Directorate’s mission and enhance its operational effectiveness, was issued by the Maritime Director in May 2025. A series of transformation driven workshops will begin in July 2025, bringing together key internal stakeholders. As the border undergoes digital transformation, minimum standards will be established and regularly reviewed to ensure that the general maritime mode is managed in a manner that keeps pace with technological advancements. The establishment of the Maritime Directorate underscores the Home Office’s commitment to the effective management of this mode.
The work on minimum standards will continue for the remainder of this year, with a view to implementation by February 2026, or sooner where efficiencies can be made.
Date of implementation: February 2026
Recommendation 3
To support the Maritime Director in promoting a consistent Home Office-wide approach to general maritime, identify GM leads at regional/command and ports levels and establish a national network that links them.
Accepted
The Home Office recognises the need for a consistent approach to GM at both a strategic and operational level. As such, and with support from the Border Force Board, this recommendation is accepted.
A new engagement structure to support and drive activity within general maritime (GM) from a tactical level upwards will initially be implemented in Summer 2025.
GM operational leads will also be identified within each command to ensure a useful, national network is created that supports delivery. These colleagues will be brought together through a monthly forum which includes wider Home Office leads from policy and intelligence. The Home Office will aim to have this recommendation fully implemented by 31 December 2025.
Date of implementation: December 2025
Recommendation 4a
Overhaul record-keeping in relation to general maritime, focusing on data quality, completeness and retrievability, in order to create and maintain an informed picture of GM threats, trends, actions and outcomes that is capable of supporting operational and strategic decision-making regarding priorities, deployments, resourcing, and investments. As a minimum, this should include:
a. creating activity logs for Border Force staff and Field Intelligence Officers that capture the time spent on GM-related work (according to the definition of general maritime)
Partially accepted
The Home Office recognises the spirit of ICIBI’s recommendation and accepts its potential value for inclusion within the scope of Border Force transformation initiatives, aligning with goals for improvement and efficiency. Whilst a technological solution would be preferable, this must be considered against budgetary constraints and the wider transformation landscape. As such, this recommendation has only been partially accepted. Given the increasing demands of multi-skilled Border Force and Field Intelligence Officers, any solution must also ensure that an officer’s ability to effectively fulfil their roles and duties is not impacted.
A Transformation Oversight Board and Delivery Group will be initiated over the summer, aiming to provide strategic leadership and direction for GM transformation. The Home Office commits to exploring the feasibility of this recommendation within the Transformation Oversight Board and Delivery Group by October 2025. Should a viable solution be identified, a more accurate implementation date will be provided.
Date of implementation: January 2026
Recommendation 4b
Overhaul record-keeping in relation to general maritime, focusing on data quality, completeness and retrievability, in order to create and maintain an informed picture of GM threats, trends, actions and outcomes that is capable of supporting operational and strategic decision-making regarding priorities, deployments, resourcing, and investments. As a minimum, this should include:
b. ensuring that the ‘Leave to Enter Assurance Tracker’ is being completed consistently and conducting a review of the current Border Force ‘Assurance Expectations’ to verify that the record keeping of entries within the ‘Leave to Enter Assurance Tracker’ is subject to effective and sufficient assurance measures
Accepted
The Home Office recognises ICIBI’s concerns about the quality of data inputted to the ‘Leave to Enter (LTE) Assurance Tracker’. A targeted communication will be issued detailing LTE assurance requirements to specific individuals who hold assurance responsibilities, to ensure this is undertaken on LTE data from a unit and regional perspective.
Separately, the Home Office are currently reviewing the Border Force Assurance Expectations to help identify and address assurance gaps, to monitor and improve processes. This includes identifying areas where record-keeping can be improved. In response to this recommendation, the Home Office will seek to develop a new, dedicated assurance check focussed on ensuring that entries in the ‘Leave to Enter Assurance Tracker’ are recorded accurately and consistently. This check will help confirm that the right information is being captured and retained in line with our standards.
Date of implementation: December 2025
Recommendation 4c
Overhaul record-keeping in relation to general maritime, focusing on data quality, completeness and retrievability, in order to create and maintain an informed picture of GM threats, trends, actions and outcomes that is capable of supporting operational and strategic decision-making regarding priorities, deployments, resourcing, and investments. As a minimum, this should include:
c. creating an Atlas ‘tag’ and using this to ensure that GM-related casework is reportable
Partially accepted
The Home Office acknowledges the need to improve record-keeping for general maritime (GM) and the creation of a GM Atlas tag may improve its data reporting.
Continuous Improvement items for the Atlas system were previously paused to allow for the development of essential items to enable the decommissioning of the legacy Case Information Database (CID) and the migration of data to Atlas. As this work comes to an end, work to improve Atlas is now being undertaken on a priority basis. As part of these improvements, the Home Office will commit to exploring the creation of a GM tag in the form of a ‘Person Alert’ in Atlas. This must include careful consideration against other suggested Atlas improvements which may support the Home Office more widely. As such, this recommendation is only partially accepted.
The Home Office will explore the addition of a GM Atlas flag and, dependent on other Atlas priorities, will aim to have this operational by 31 December 2025.
Date of implementation: December 2025
Recommendation 4d
Overhaul record-keeping in relation to general maritime, focusing on data quality, completeness and retrievability, in order to create and maintain an informed picture of GM threats, trends, actions and outcomes that is capable of supporting operational and strategic decision-making regarding priorities, deployments, resourcing, and investments. As a minimum, this should include:
d. improving the functionality of the Collaborative Business Portal, so that is more user-friendly and less time-consuming for Border Force users
Partially accepted
The Collaborative Business Portal (CBP) is an aged system with a limited shelf life. It is owned by a third party, adding further complexities to implementing any improvements the Home Office may wish to make. As such the Home Office does not accept this is the most appropriate or cost-effective approach to resolve user issues given the current fiscal environment.
However, the Home Office recognises ICIBI’s findings that some Border Force users may find CBP time consuming or difficult to navigate and will therefore explore the issues with a view to establishing what improvements can be made to existing CBP guidance and training materials while it remains the agreed system in place.
Date of implementation: January 2026
Recommendation 4e
Overhaul record-keeping in relation to general maritime, focusing on data quality, completeness and retrievability, in order to create and maintain an informed picture of GM threats, trends, actions and outcomes that is capable of supporting operational and strategic decision-making regarding priorities, deployments, resourcing, and investments. As a minimum, this should include:
e. recording sufficient details about intelligence referrals (including source, assessment, action(s) taken, feedback provided) to enable them to be linked to outcomes
Partially accepted
The Home Office are currently considering requirements for a new centralised intelligence workflow tool to replace IMS (Intelligence Management System) and COP (Central Operating Platform) workflow as they near end of life/cease to be supported. The requirements for their replacements include the need to record intelligence referrals, actions taken and feedback so outcomes can be evidenced. The Home Office has recruited a dedicated Home Office Intelligence Deputy Director position to lead on the Intelligence Referral and Information System (IRIS) project at pace, working with Digital, Data and Technology (DDaT) on delivery.
While the Home Office accepts the spirit of this recommendation, a significant caveat to delivering all elements is funding and resource so, until financial allocations are confirmed, the Home Office cannot confirm the feasibility of these proposed actions. As such, this recommendation is partially accepted. Initial funding has been secured for 2025/26 financial year and the Home Office is working towards a delivery date of November 2026. The additional requirement for feedback loops linked to outcomes comes in Phase 2 of the project, which remains dependant on funding.
Date of implementation: November 2026
Recommendation 4f
Overhaul record-keeping in relation to general maritime, focusing on data quality, completeness and retrievability, in order to create and maintain an informed picture of GM threats, trends, actions and outcomes that is capable of supporting operational and strategic decision-making regarding priorities, deployments, resourcing, and investments. As a minimum, this should include:
f. evaluating in a common format all operational deployments focused on general maritime, including those where Border Force Maritime Command (BFMC) and regions are supporting another agency, detailing the source of any actionable intelligence, the operational objectives, the immigration and customs outcome(s), and any lessons learned
Accepted
The Home Office accepts a common format to Border Force operational evaluations within General Maritime, and beyond, would support improved data gathering and analysis of its operations.
The Home Office is beginning the national roll out of the “Evaluation Project” across Border Force. The project aims to implement a standardised evaluation process to all Border Force operations, irrespective of whether they are BF or partner led. As part of this project, standardised templates will be rolled out which include actionable intelligence, operational objectives, immigration/custom outcomes and any lessons learned. Intelligence sources will be recorded where possible, but the Home Office has a duty of care to protect its intelligence sources.
The project will also implement assurances of completed evaluation documents through national and regional tasking groups. This will ensure the new standardised templates have been embedded correctly and are completed to the expected standard.
Date of implementation: November 2025
Recommendation 5
Create and maintain a centralised record of what training every Border Force officer has completed and their training needs (including for refresher training), readily accessible to regions and commands, so that training provision and places on training course can be allocated on the basis of business and individual need.
Accepted
The Home Office can confirm Border Force Learning & Development is already developing a centralised, accessible digital learner record for Border Force officers. Alongside this, role profiles are being developed which will outline the training needs for staff undertaking different functions and will contribute to the development of a transparent prioritisation framework. It is envisaged this work, which will fulfil recommendation 5, will be complete by March 2026.
Date of implementation: March 2026
Recommendation 6
Update ‘General Maritime’ guidance in line with the revised definition of GM, roles and responsibilities, and record-keeping requirements, ensuring that it is subject to regular reviews to remain up-to-date.
Accepted
This recommendation is accepted and is now considered partially complete. Updated General Maritime guidance was issued to all frontline staff in May 2025, including updated definitions, roles, responsibilities and record keeping requirements. The guidance will be updated with any further revisions to the GM definition, in line with recommendation one. A review process has been instigated by the newly formed Maritime Directorate within Border Force. The process will follow a six-monthly cycle or sooner if there is a significant change in operational policy or legislation. The first review is in November 2025, after which the recommendation is considered complete
Date of implementation: November 2025
Recommendation 7
Relaunch Operation Tipson, setting a date for completion of the initial mapping of all general maritime locations of no later than 31 December 2026, and tasking the Field Intelligence Officer (FIO) network to prioritise mapping GM locations, starting with those where there is a regular ‘official’ presence (a harbour master, marina manager etc.) and capturing a standard set of data recorded in a standard format (including as a minimum: name and type of location, geolocation data, local police contact, name(s) and contact details of responsible persons, date(s) of visit). Where available, Border Force regional staff should be used in support, but with Home Office Intelligence taking responsibility for the operational plan and programme of work.
Partially accepted
The Home Office recognises the value of Operation Tipson and agrees with the substance of ICIBI’s findings and the importance of improving visibility and understanding of general maritime (GM) locations across the UK. However, the Home Office does not wholly agree relaunching this Operation using ICIBI’s suggested approach, or that it should be led by Home Office Intelligence, is the most effective way to utilise resources to achieve these objectives. This recommendation is therefore partially accepted.
The Home Office is considering how its objectives might be more effectively addressed through the broader Maritime Transformation Programme which has now been established within Border Force. This reflects the current operational environment where there are competing demands on staff time and capacity, particularly among those in frontline and intelligence roles. This programme will consider a range of options, including the development of a technological solution to use in tandem with Border Force officers and Field Intelligence officers, to support the mapping and data collection process. Such a solution may reduce the need for physical site visits while enabling the collection of consistent and comprehensive data.
The first in a series of workshops to explore these options is scheduled for July 2025 and will involve a broad range of Home Office units.
Date of implementation: December 2026
Recommendation 8
Produce a short-term (1-2 years) succession plan for Border Force Maritime Command (BFMC), identifying the risks, mitigations and contingencies involved with filling key posts, and setting out the work required (to incentivise staff to follow career pathways, for example) to ensure that the right staff with the right skills and professional qualifications will be in place in the medium to long-term (3-10 years).
Accepted
The Home Office accepts this recommendation. Given the transformation of the BF Maritime Command into the Maritime Directorate, the current workforce plan no longer aligns with the current needs of Border Force’s fleet, nor sets out the training necessary for officers to achieve certification in key roles over the medium to long term. Several critical deliverables, such as enhanced financial incentives and a system to monitor pathway progression, have not yet been met. It is acknowledged that the risks associated with these unmet deliverables, or their absence, must be thoroughly examined and mitigated.
A revised version of the workforce planning document will be produced to highlight any predicted gaps in training delivery over both the short and medium term, which incorporates the stated requirements of ICIBI’s recommendation. This revised document will be completed by December 2025.
Date of implementation: December 2025
Recommendation 9
Develop and implement a communications strategy to promote Border Force’s general maritime work internally within the Home Office, and with external stakeholders and the public (incorporating Project Kraken and other initiatives).
Accepted
The Home Office has already commissioned an external communications company to explore how initiatives such as Project Kraken can be leveraged to enhance engagement with external stakeholders and the public. The findings from this work, alongside internal feedback and operational insights, will directly inform the development of a comprehensive communications strategy which is expected to be operational by September 2026.
While the strategy will cover all areas of Border Force’s operations, general maritime (GM) activity will be a central focus. In the interim, the Home Office is actively working with its internal communication’s team to lay the foundations for a successful Border Force strategy by implementing a range of targeted internal and external communications initiatives:
Internal Communications
The Home Office will harness its intranet to provide key notices, news, and updates across the Home Office. This includes exploring the potential of producing a regular newsletter or feature on the intranet, alongside updates from the Maritime Directorate, to ensure staff across the department are informed and engaged with ongoing maritime operations.
External Communications
Using feedback from the commissioned communications review, the Home Office are working closely with partners across the department and wider government to better communicate key messages. This collaborative approach will ensure the final strategy is well-informed, targeted, and effective in reaching the public through appropriate channels. In the meantime, the Director of the newly formed Maritime Directorate has already undertaken several high-profile media engagements — including appearances on national and regional news (in print, broadcast, and radio) — to promote the work of the command and raise awareness of its role and impact.
These actions demonstrate the Home Office’s commitment to building a robust and effective communications strategy, grounded in evidence, expert input, and cross-government collaboration.
Date of implementation: September 2026
Recommendation 10
The Home Office should not:
Mandate general maritime activity, beyond what is currently included in the Border Force Operating Mandate, without a fundamental review of all Border Force activities to determine what should and should not be mandated or otherwise required and the process for amending what is included in each category.
Accepted
The current review of the BF Operating Mandate does not propose to mandate general maritime activity beyond what is already mandated. The BF Operating Mandate requires BF to “conduct comprehensive checks on all individuals entering the UK”. This must include establishing identity, verifying status, watchlist checks and a risk and vulnerability assessment. The checks models, applicable to GM, recognise the need to accommodate the particular circumstances pertaining to GM arrivals.
Date of implementation: N/A – As the current review of the BF Operating Mandate does not propose to mandate general maritime activity beyond what is already mandated, there is no implementation date to provide and this recommendation is considered closed.
Recommendation 11
The Home Office should not:
Make the ‘submit a Pleasure Craft Report’ (sPCR) system mandatory, without first developing a clear plan for how Border Force would respond to a significant increase in notifications and how it would police compliance.
Accepted
As the ICIBI report notes, Border Force needs to increase its awareness of GM pleasure craft.
Knowing who is travelling, or intending to travel, to and from the UK border and identifying those who do and do not pose a threat to the UK or to UK interests is an important part of UK border security. The introduction of sPCR, even on a voluntary basis, has increased Border Force situational awareness of GM pleasure craft and is enabling more scrutiny of vessels which have not reported.
Information submitted electronically to sPCR is processed automatically to identify individuals of interest to Border Force and to other law enforcement authorities, such as the police and National Crime Agency. These include individuals excluded from the UK, or who have been previously deported or are using documents reported lost or stolen. In addition to the border security benefits, sPCR also supports the operation of the Universal Permission to Travel Scheme, providing assurance that information about e-Visas and Electronic Travel Authorisations is correct and enabling GM skippers to know those onboard their ship are able to travel to the UK.
The current legal requirements for reporting GM pleasure craft voyages, for customs purposes, can be made by post on arrival. Requiring use of sPCR will enable the automated assessment of arriving and departing vessels. This will give Border Force and other law enforcement partners better situational awareness of GM pleasure craft movements and enable greater focus on non-compliant vessels.
Should sPCR reporting be made mandatory, the Home Office will ensure planning is in place for Border Force to manage increased reporting of GM pleasure craft and enforce necessary compliance with new reporting regulations. Any regulations, to require GM pleasure craft to report voyages and persons onboard using the sPCR system, will not be introduced without Parliamentary approval.
Date of implementation: N/A – The above confirms the Home Office will ensure planning is in place to manage increased report should sPCR be made mandatory. As there are no confirmed plans to make sPCR reporting mandatory, there is no implementation date to provide and this recommendation is considered closed.