Transcript 16 Years and What Do We Get? Immigration and Integration

16 Years and What Do We Get?
Immigration and Integration in
Canada (1995-2011)
John Biles**
Special Advisor
Integration Branch
Citizenship and Immigration Canada
April 28-30, 2011
London, Ontario
Taking Stock of a Turbulent Decade and Looking Ahead:
Immigration to North America 2000-2010
* Thanks to Ernie Ford for the song title
** The opinions expressed in this presentation are those of the author and not necessarily those of Integration Branch,
Citizenship and Immigration Canada or the Government of Canada
Outline
• Part 1:Context
• Part 2: Policy
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Selection
Integration
Refugees
Admissibility
Citizenship/Multiculturalism
Research / Metropolis
International/Intergovernmental/Stakeholder
Relations
– Evaluation and Audit
• Part 3: Conclusions
• Bibliography
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Context
Legislation
Demographics
Public Discourse
Public Opinion
Research Themes
Department (size, orientation, leadership)
Engagement of Other Governments
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Context: Legislation
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Immigration Act, 1976
Amended many, many times
Legislative Review Advisory Group appointed 1996
Not Just Numbers report published 1998
White paper Building on a Strong Foundation for the 21st
Century: New Directions for Immigration and Refugee Policy
and Legislation published 1999.
• Standing Committee Report Refugee Protection and Border
Security: Striking a Balance published in 2000.
• Bill C-31 introduced in 2000, re-introduced as C-11 in 2001.
• Immigration and Refugee Protection Act, 2002
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Context: Legislation (cont.)
• Main Areas of Reform
• Creating a simpler, more coherent legislative framework,
with objectives that reflect Canadian values and are
responsive to current realities;
• Maintaining the safety of Canadian society and respect for
Canadian norms of social responsibility;
• Introducing transparent criteria for permanent resident
status and enhancing the rights of permanent residents;
• Strengthening refugee protection through a faster, fairer
process;
• Streamlining the immigration appeal system;
• Modernizing the selection system for skilled workers and
business immigrants and facilitating the entry of skilled
temporary foreign workers; and
• Strengthening family reunification
Source: CIC 2001
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Context: Legislation (cont.)
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Citizenship Act (1977)
Amendments 2009 “Lost Canadians”
Amendments 2010 “Adoption”
Bill C-37 Strengthening the Value of Canadian
Citizenship
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Regulates Citizenship Consultants
Increases Penalties for Citizenship Fraud
Strengthens Rules For Residence Requirement
Expands Ban on Criminals Becoming Citizens
Crown Exception to First Generation Limit
Streamlining the Revocation Process
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Context: Demographics
Intake of Permanent Residents by Immigration Category -- 1985 to 2009
Source: Facts and Figures 2009
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Context: Demographics (cont).
Levels
Top 10 Source Countries
Sources: Citizenship and Immigration
Statistics 1995; Facts and Figures 2009
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Context: Demographics (cont).
Permanent Residents
Intended City of Destination
Sources: Citizenship and Immigration Statistics 1995;
Facts and Figures 2009
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Context: Demographics (cont).
Permanent Residents:
Intended City of
Destination (Ontario)
Sources:
Citizenship and Immigration Statistics 1995;
Facts and Figures 2009
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Context: Demographics (cont)
Temporary Residents to Canada: Total (Stock + Flow)
Source: Facts and Figures 2009
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Context: Demographics (cont)
Temporary Residents By Province Present on December 1, 2009
Source: Facts and Figures 2009
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Context: Demographics (cont)
Ontario Foreign Students Present
on Dec 1, 2009
Foreign Students in Quebec Present
on Dec 1, 2009
Source: Facts and Figures 2009
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Context: Demographics (cont)
Source: Okonny-Myers 2010
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Context: Demographics (cont)
Visible Minority and Aboriginal Populations: Canada (Census 2006)
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Context: Demographics (cont)
Ethnocultural Population (Canada) 1867 to 2017
)
40,000,000
35,000,000
30,000,000
25,000,000
20,000,000
15,000,000
10,000,000
5,000,000
0
1871 1881 1891 1901 1911 1921 1931 1941 1951 1961 1971 1981 1986 1991 1996 2001 2006 2017
Aboriginal
French
British Isles
Canadian+NIE
Other European
Latin American
Black and Caribbean
Chinese
Arab/W.Asian
S. Asian
E and SE Asian, Pacific
Sources: Censuses of Canada and 2017 Population Projections
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Context: Demographics (cont)
Reported Religious Affiliation
Sources: 1991 & 2001 Censuses; 2017 & 2031 StatsCan Population Projections
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Context: Public Discourse
1990s
• Brain Drain
• FCR
• Failure of Multiculturalism
• Welfare Dependency
• SARS / HIV / TB / “Ebola”
• Chinese Refugee Claimants
arriving by Ship (1999)
• 9/11
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2010s
Brain Waste
FCR
Failure of Multiculturalism /
Reasonable
Accommodation
Cuts to Settlement Funding
HIV / TB
Tamil Refugee Claimants
arriving by Ship (2010)
Radicalization
Sources: Nancoo and Nancoo 1997; Mahtani 2001;Dunn and Mahtani 2001; Hier and Greenberg 2002; Mahtani and Mountz 2002; Henry
and Tator 2000, 2002; Biles and Ibrahim 200?; Vukov 2003; Leung and Guan 2004; Jiwani 2006; Adeyanju and Neverson 2007; Bauder
2008; Mahtani 2008; Belkhodja 2008; Potvin 2008
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Context: Public Opinion
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Context: Research Themes
1996
Conference October 1996, Winnipeg
40 Papers Presented covered:
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Theory of integration
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Demographic Impact
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Economic Impact
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Social Impact
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Refugee Resettlement
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Economic Adaptation of Asian Immigrants
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Racism and Discrimination
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Measuring identity markers in the Census
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Chinese delinquency
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Coping with stress
Resulted in two edited volumes by
Leo Driedger and Shiva S. Halli
Race and Racism: Canada’s Challenge (2000)
Immigrant Canada: Demographic, Economic and Social
Challenges (1999)
Sources: Driedger and Halli 1999, 2000; Conference
Programme 13th National Metropolis Conference
2010-11
March 2011, 13th Nat’l Metropolis Conference
Approximately 300 Papers Presented covering:
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Temporary Foreign Workers
Immigrant Seniors
Youth
Employment equity
Citizenship
Welcoming Communities
Economic Integration
Foreign Trained/Credentialed Workers
Roles of ethno-specific organizations
Mental and Physical Health
Role of Media
Border Control
Diversity in local contexts (large and small)
Religion
Provincial involvement in immigration
Municipal involvement in immigration
Settlement and integration
Selection Policy
Official Language Minority Communities and Immigration
Refugees
Transitioning to Permanence
International Comparisons
Immigration and the Family
Immigrant Women
Crime and Justice
Housing/Homelessness
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Context: Department
1998-1999
• Priorities
– Maximum economic and social
benefit from the global movement
of people ($73.1M / 1,102 FTEs)
– Enhanced protection of refugees
and others in need of resettlement
($85.6M / 155 FTEs)
– Support for the adaptation,
settlement and integration of
newcomers into Canadian society
($299M / 365 FTEs)
– Management of access to Canada
with a fair and effective
enforcement strategy
($101M
/ 1,287 FTEs)
– Corporate Services
($96.8M
/ 862 FTEs)
• Budget $645.8 million
• FTEs 3,815
2010-2011
• Priorities
– Migration that significantly benefits
Canada’s economic, social and cultural
development, while protecting the
health, safety and security of Canadians
($243.6M / 1,957 FTEs)
– International recognition and
acceptance of the principles of
managed migration consistent with
Canada’s broader foreign policy agenda,
and protection of refugees in Canada
($106.4M / 131 FTEs)
– Successful integration of newcomers
into society and promotion of Canadian
citizenship ($1,561.7M / 836 FTEs)
– Corporate Services ($136.3M / 1,091
FTEs)
• Budget $1,561,700,000
• FTEs 4,015
Sources: Citizenship and Immigration Canada Reports on Plans and Priorities 199821
1999; 2010-2011.
Context: Department (cont.)
• Leadership Changes: 2006-2011
Citizenship and Immigration Canada
– 8 Ministers (Robillard, Caplan, Coderre, Sgro, Volpe, Solberg, Finley, Kenney)
– 5 Deputy Ministers
(Cochrane, Dorais [Assoc DM Vincent], Charette, Fadden, Yeates)
– 8 Assistant Deputy Ministers (Policy)
(Tsai, Fyffe, Atkinson, McLeod, Frith, Brown, Lyon, Linklater [AADMTapley/McDougall])
Multiculturalism Program
– 5 Secretaries of State / Ministers
(Fry, Bradshaw, Augustine, Chan, Kenney)
– 7 Directors General
– (Scotti, Ginsberg, Ellis, Paquet, Namiesnowski, Biguzs, Griffith)
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Context:
Engagement of Other Governments
• Federal Provincial Territorial Agreements (Immigration)
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Quebec 1991
Manitoba 1996 (Updated 2003)
Saskatchewan 1998
British Columbia 1998 (Updated 2010)
Yukon 2001 (Updated 2008)
Prince Edward Island 2001 (Updated 2008)
New Brunswick 2005
Ontario 2005 (Extended until March 31, 2011)
Newfoundland and Labrador 2006
Alberta 2007
Nova Scotia 2007
Northwest Territories (2009)
Source: CIC Annual Report to Parliament on Immigration 2010
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Context:
Engagement of Other Governments (Cont.)
Sources: Biles 2008; Provincial Immigration Ministry Annual Reports 2009/10
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Context:
Engagement of Other Governments (Cont.)
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Since the mid-1990s, CIC has increasingly recognized the importance of
engagement at the local level.
– Municipalities play a central role in delivering many services that impact the settlement and
integration experiences of newcomers.
– Tremendous capacity and expertise exist at the local level.
– Economic benefits of immigration are most evident in the local context.
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Municipalities and communities are taking a greater role in planning for and
guiding immigration and settlement.
– Attraction: critical gaps have been identified in the local labour force.
– Retention: entire families need to feel welcomed for workers to stay.
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Ongoing and growing appetite for engagement.
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Municipal Participation in Metropolis
Federation of Canadian Municipalities: Quality of Life
Francophone Minority Communities
UNESCO: Cities Against Racism
Maytree: Cities of Migration
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Context:
Engagement of Other Governments (Cont.)
With the Canada-Ontario Immigration Agreement municipal engagement was
explicitly included in a formal federal-provincial agreement for the first time.*
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Annex F: Partnerships with Municipalities
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Commits two governments to involve municipalities in planning and discussions on immigration and
settlement.
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Trilateral MOU: CIC, Ontario and Toronto
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Municipal Immigration Committee (MIC)
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Co-chaired by CIC, MCI and the Association of Municipalities of Ontario (AMO).
Municipalities identified key priorities: attraction, retention, settlement and integration. (“Putting out the
Welcome Mat: Why Immigration Matters to Ontario Municipalities” – September 2008).
Municipal Initiatives under COIA
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2006 Consultations with 700 stakeholders in 10 Ontario communities.
Strategy 3 of the Work Plan: “Work with municipalities and federal-provincial government departments to
enable partnerships that will integrate newcomers in the economic and social life of Ontario communities”.
COIA generated the right conditions for creating the Local Immigration Partnerships, Portals (MIIO Projects)
and Regional Newcomer Employment Networks.
* Canada-Alberta Agreement commits to working with municipalities.
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Municipal Initiatives
under COIA
Local Immigration
Partnerships
Guelph
Huron
Hamilton
Kingston
Timmins
Ottawa
Peterborough
Toronto
North
Bay
Durham
Waterloo
Windsor
Lambton
London
ChathamKent
Brantford
Smiths Falls
Niagara
Sault Ste.
Marie
York
Thunder
Bay
Regional
Newcomer
Employment
Networks
Peel
Municipal Immigration
Information Online (MIIO)
Projects
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Context:
Engagement of Other Governments (Cont.)
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Welcome BC has created the Welcoming and Inclusive Communities and
Workplaces Program (WICWP).
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CIC and provincial counterparts at Manitoba Labour and Immigration have funded
four rural case studies in Manitoba (Parkland Region, Portage la Prairie, Steinbach
and Winkler) to assist communities developing strategies for immigrant attraction,
settlement and retention.
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The cities of Edmonton (2007) and Calgary (2011) have both passed settlement
policies, and the City of Saskatoon (2008) has established an immigration action
plan with funding from three levels of government.
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Quebec’s Conférences régionales des élus are creating strategic plans and
distributing funding for settlement/integration programs.
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The Atlantic Mayor's Congress held an immigration conference in 2005, the Halifax
Regional Municipality Immigration Action Plan followed quickly, and New
Brunswick francophone minority communities are focused on facilitating attraction
and retention of newcomers.
Source: Burr 2010
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Policy: Centripetal Frame
Source: Biles et. al. 2011 (forthcoming)
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Policy: Selection
Sources: Burstein et. al. 1994; Tolley 2003.
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Policy: Integration
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1996
Program Review
Settlement Renewal
LINC, ISAP, HOST (eventually
ELT, WCI, Portal, OLMC)
Focus on early settlement
with emphasis on those
most in need of assistance
FCR Conference (1999)
Little provincial interest
(Quebec, BC, Manitoba)
Little municipal engagement
($299M / 365 FTEs)
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Strategic Review
Settlement Review
“Modernized approach”
Focus on early settlement with
emphasis on both low
language and education
newcomers AND those with
high education (e.g. FCRO)
Pan-Canadian Framework
All provinces
interested/engaged
Many municipalities engaged
($1,561.7M / 836 FTEs)
Sources: Citizenship and Immigration Canada Reports on Plans and Priorities 1998-1999;
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2010-2011; Biles 2008; Smith 2010
Policy: Integration (Cont.)
Money, Partnerships & Governance, Accountability, and Outcomes
Money: Settlement funding has increased more than 500%
$299 Million (1998-1999) - $1,561.7M (2010-2011)
Partnerships & Governance: Governance structures needs to adapt
All provincial govts and many municipal govts are now active
Many more service provider organizations & “mainstream organizations”
Accountability: Updated governance structure needed to ensure
accountability on expenditures, best practices and outcomes
Outcomes: Agreement on measures (social, cultural, economic and civic),
investment in data collection, utilization for policy and program development
Sources: Biles et. al. 2011; Seidle 2010a, 2010b; Good 2003
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Policy: Integration (Cont.)
• Foreign Credential Recognition Chronology
•1990 Canada ratified 1979 UNESCO Convention on the Recognition of Studies, Diplomas and Degrees
Concerning Higher Education in the States Belonging to the European Region
•1990 Council of Ministers of Education of Canada establish the Canadian Information Centre for International
Credentials
•1991 Ontario Regulated Health Professions Act
•1997 Canada signs the Lisbon Recognition Convention on the Recognition of Studies, Diplomas and Degrees
Concerning Higher Education in the States Belonging to the European Region
•2003/04 HRSDC funds $68 million over five years for the Foreign Credential Recognition Program as part of
Canada’s Workplace Skills Strategy
•2005 Internationally Trained Workers Initiative introduced
•2005 Internationally Educated Health Professionals Initiative launched by Health Canada
•2006 Ontario Fair Access to Regulated Professions Act
•2007 Foreign Credential Referral Office established within CIC
•2007 Manitoba Fair Registration Practices in Regulated Professions Act
•2009 Pan-Canadian Framework for the Assessment and Recognition of Foreign Qualifications
• 2009 FPT Govts approved amendment to Agreement on Internal Trade to begin full implementation of labour
mobility
Source: CIC 2009
Policy: Refugees
Quick Chronology
1956 Hungarians
1968 Czechoslovakians
1960s/70s American Vietnam War resisters
1970/71 Tibetans
1972-1973 Ugandan Asians
1973 First legal basis for entry of refugees
1973 Chileans
1976 Immigration Act includes refugee category
1979 Three Designated Classes: Indochinese; Latin American Political Prisoners; Eastern European
Self-exiled persons
1979s-early 1980s Southeast Asian “Boat People”
1981 Salvadoreans
1983 Sri Lankans
1985 Singh Decision
1988 C-55: Refugee Backlog Clearance Program
1988 C-84 Deterrents and Detention
１９８８．Chinese (post-Tiananmen Square Massacre)
1992 C-86 Amendments to Immigration Act
1995 Hathaway Report on refugee determination process
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Policy: Refugees (Cont.)
More Recent Chronology
1999-2000 Operation Parasol (Kosovars)
2000 Right of Landing Fee abolished for refugees
2001 Immigration and Refugee Protection Act
2002 Safe Third Agreement with United States
2007 Karen
2007 Bhutanese
2008 Iraqis
2010 Tibetans
2010 C-11 Refugee Reform
Sources: Kelley and Trebilcock 1998; Mangat 1995; Dirks 1977
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Policy: Refugees (Cont.)
Ships, Security, and Processing Capacity
Ships
South Asians (Komagata Maru, 1914), European Jews (St Louis,
1939), Sikhs and Sri Lankans (1986, 1988), Chinese (1999), Tamils
(2010)
Security: “Terrorists, Scholars and Refugees”
FLQ 1970; Montreal Olympics 1976; Air India 1985; Turkish
Embassy Attack 1985; animal rights and environmentalist
incidents 1990s; 9/11 2001
Processing Capacity
Numbers, appeal processes, amnesties, backlogs
Sources: Bell 2007; Kellett 2004; Thompson and Terlej 2003; Grace and Helms 1998; Kelley and Trebilock 1998;
Mangat 1995; Thomas and Morgan-Witts 1994; Cox and Glen 1994; Adelman and Cox 1994; Hawkins 1991;
Whitaker 1987
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Policy: Admissibility
1998-1999
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Phase 1 of a National Case
Management System (NCMS) to
provide an integrated system for all key
enforcement activities
International Enforcement Strategy
Developed
Created Secretariat for Protocols on
Human Smuggling and Trafficking
6,000 improperly documented
passengers were intercepted by
Canada’s overseas Immigration Control
Officers (Number of undocumented
persons arriving at Canadian ports of
entry declined by 6%)
Acted on recommendations of Standing
Committee Report on Detention and
Removals (8,109 individuals were
removed)
Review of Ports of Entry Policies
2009-2010
CIC
• Introduced new permanent resident card
with enhanced security features
• Visa requirements introduced for citizens of
Mexico and Czech Republic
• Made changes to Safe Third Agreement with
the US
• Refugee Reform
• Speech from the Throne (March 2010)
promised action on unscrupulous
immigration consultants and to speed up
action on citizenship revocation for war
criminals
CBSA
• CBSA removed 14,775 individuals
• CBSA acted on recommendations of 2008
Auditor General Report on “Detention and
Removal of Individuals”
• Enhanced reporting functions of NCMS
• Quality assurance of four holding centres
• Negotiate with provinces
Sources: Citizenship and Immigration Canada Performance Reports 1999; 2009-10 and
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Canada Border Services Agency Performance Report 2009-10.
Policy: Admissibility (Cont.)
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Individuals may be denied a visa, or refused entry to or removed from Canada on the following
grounds:
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Failure to comply with any provision of the Immigration and Refugee Protection Act (IRPA), such as,
staying longer than authorized, working or studying without the necessary permits, or being
previously deported;
misrepresentation, which includes providing false information or withholding information directly
related to decisions made under IRPA;
financial reasons, if they are unable or unwilling to support themselves and their family members;
having an inadmissible family member;
security reasons, including espionage, subversion, violence or terrorism, or membership in an
organization involved in such activities;
human or international rights violations, including war crimes or crimes against humanity, or being
a senior official in a government engaged in gross human rights violations or subject to
international sanctions;
serious criminality involving an offence, or its equivalent, punishable by a maximum term of
imprisonment of at least 10 years;
Criminality, including conviction for an offence or commission of a criminal act;
Organized crime, including membership in an organization that takes part in organized criminal
activity, people smuggling or money laundering;
health reasons, if their condition is likely to endanger public health or public safety, or might
reasonably be expected to cause excessive demands on health or social services.
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Policy: Admissibility (Cont.)
 IRPA Section 38(1) A foreign national is inadmissible on health
grounds if his/her health condition:
a) is likely to be a danger to public health
b) is likely to be a danger to public safety
c) might reasonably be expected to cause excessive demand on
health or social services
 IRPA Section 38(2): exempts some categories of immigrants
from the excessive demand assessment:
 Spouse, conjugal partner or common law partner of a Canadian
resident/citizen
 Dependent child
 Convention refugee/Refugee Claimant
 Protected person
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Policy: Admissibility (Cont.)
Regulation 30(1): the following applicants require
immigration medical examinations:
• all individuals applying for permanent residency
• temporary residents who are seeking to work in Canada in an
occupation in which the protection of public health is essential
(e.g. Health care, food services etc.)
• any applicant who an officer has reasonable grounds to believe is
inadmissible under IRPA s.38(1)
• temporary residents (worker-student-visitor)
– who will reside in Canada for a period of six consecutive months AND
– who have resided or sojourned for a period of six consecutive
months in a designated country*, during the one-year period
immediately preceding the date they sought entry or made their
application
* Designated countries established based on TB Incidence rates current list can be
found at: http://www.cic.gc.ca/english/information/medical/dcl.asp
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Policy: Admissibility (Cont.)
• Danger to Public Health
– Active Tuberculosis
– Untreated Syphilis
• Danger to Public Safety
– Drug addiction with history of violent behaviour
– Uncontrolled psychotic conditions with history of
violent behaviour
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Policy: Admissibility (Cont.)
Excessive Demand
◦ Defined in IRPA Regulation 1 as:
 (a) a demand on health services or social services for which the
anticipated costs would likely exceed average Canadian per capita
health services and social services costs over a period of five
consecutive years immediately following the most recent medical
examination required by these Regulations, unless there is evidence
that significant costs are likely to be incurred beyond that period, in
which case the period is no more than 10 consecutive years; or
 (b) a demand on health services or social services that would add to
existing waiting lists and would increase the rate of mortality and
morbidity in Canada as a result of an inability to provide timely
services to Canadian citizens or permanent residents.
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Policy: Admissibility (Cont.)
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Approximately 450,000 to 500, 000 Immigration Medical Examinations
(IMEs) performed annually
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by 1,200 Designated Medical Practitioners (DMPs) around the world
(Immigration Medical Officers no longer do the exam themselves.)
Processed in 10 regional medical offices
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Ottawa, Port of Spain, Paris, London, Vienna, Nairobi, Delhi, Singapore, Beijing,
Manila
By Immigration Medical Officers
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Medical Officers responsible for:
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Review of the IMEs and recommendations of inadmissibility
Quality Assurance visits of DMPs, radiology clinics and laboratories
Medical intelligence
 Note: Information in this section provided to Robert Vineberg (2010) by CIC Immigration Health
Branch
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Policy: Admissibility (Cont.)
The IME consists of:
Pre-2002
◦ History and complete physical examination for all applicants
◦ Urinalysis – those 5 years of age and older
◦ Syphilis testing (VDRL) and HIV testing - those 15 years of age and older
◦ Chest X-ray – those 11 years of age and older
◦ Further tests as required upon review of the initial examination
Since January 15, 2002 – All of the above plus:
◦ Routine HIV testing all applicants 15 years of age and over or at any age if known risk
factor (s)
 Based on Health Canada’s advice received in 2001
 HIV testing is fundamental to Canada’s objective of preventing transmission
 Not considered a danger to public health
 Transmission completely preventable
 Risk determined by individual behaviour
 Risk can be mitigated by education and counselling
 May be deemed inadmissible if their health requirements are likely to create excessive
demand on health or social services
 The IME is usually valid for one year
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Policy: Admissibility (Cont.)
Outcomes
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Admissible on health grounds (approximately 97%)
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Admissible under condition – requiring medical surveillance (approximately
2-3%)
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Normal or having a health condition considered not significant for the purposes of IRPA
Inactive tuberculosis (the vast majority of cases) and syphilis must have been adequately
treated
Inadmissible on health grounds (approximately 0.3%)
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Vast majority for excessive demand on health or social services
Threshold used for ED assessment: $4,806/year
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Composite figure developed by adding the average Canadian cost published annually by
the Canadian Institute of Health Information (CIHI) to a supplementary amount covering
certain social services not included in the CIHI average
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An applicant is likely to create excessive demand on health or social services if:
Requirements’ costs exceed $24,030 over 5 years ($48,060 over 10 years) and/or
Requirements add to the waiting list
Sources: Vineberg 2010; Iyioha 2009
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Policy: Citizenship / Multiculturalism
• Citizenship Act (1947, 1977)
– Establish distinct Canadian citizenship
– Established criteria for conferring and revoking citizenship
– Outlines rights and responsibilities
• Three Acts that failed to pass (1990s and early 2000s)
– Focus in the 1990s – redesigning naturalization process and
official language requirements, BUT revocation became the
main issue
– Rights and responsibilities focus from Standing Committee in
1994, through C-16 (1999-2000), to new citizenship guide in
2010.
– Toughening requirements for acquisition focus from Bill C-63
(1998-99) until present
– National security implications key since debate on C-16, through
Bill C-18 (2002-03) to present
Sources: Anderson 2008; Garcea 2003; Galloway 2000)
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Policy: Citizenship (Cont.)
Three Acts that did pass (2005-2009)
• Private Member’s Bill: S-2 Resumption (2005)
(Received royal assent and came into force on May 5, 2005)
• Targeted Reforms: C-14 Adoption (2006)
(Received royal assent on June 22, 2007; came into force December 23)
• Targeted Reforms: Bill C-37 Lost Canadians and the
First Generation Limit
(Received royal assent April 17, 2008 and came into force April 17, 2009)
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Policy: Citizenship / Multiculturalism
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Policy: Multiculturalism (Cont.)
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Policy: Multiculturalism (Cont.)
Sources: Biles 2008; Annual Reports on the Operation of the Canadian
Multiculturalism Act 1996/97-2008/09.
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Policy: Multiculturalism (Cont.)
Funded Projects
1992-93 1,264 applications (Budget $25,792,651)
26.8% Monoethnic organizations; 47.4% Multiethnic organizations;25.8%
Mainstream organizations
5.4% Support for minority languages; 38.6% Intercultural understanding and
institutional adaptation; 9.6% Fight against racism; 46.2% Integration into
society and participation; .2% Special Projects
2001-02 182 applications (Budget $6,898,304)
17.7% Monoethnic organizations; 56% Multiethnic organizations; 27%
Mainstream organizations
1.3% Support for minority languages; 47.8% Intercultural understanding and
institutional adaptation; 29.1% Fight against racism; 21.1% Integration into
society and participation; 1.5% Special Projects
Source: McAndrew et. al. 2008.
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Policy: Research / Metropolis
Internal Research & Data Dvt
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Large scale data development (IMDB, LSIC,
EDS, influence StatsCan surveys to
increase immigrant sample (e.g. LFS, GSS)
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Key Publications:
– Facts and Figures
Metropolis 1996-2012
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Analysis of large scale data sets;
development of some large data sets
(e.g.NCCYS)
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Key Publications (Phase II alone)
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• Visited 64,817 times in 2010
– Municipal Profiles
– The Monitor
– 20+ Research Reports
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930 ad hoc data requests in 2010
Expenditures:
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Policy Uptake
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Policy Uptake:
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•
•
1995/96 $600,000 and 6 FTEs
2010/11 $7.4 Million and 67 FTEs*
* This includes resources for evaluation which was not
included in 1995/96.
•
120 Working Papers
306 magazine-style articles
274 peer-reviewed articles
44 Books
86 Book Chapters
760 presentations
46% of the total time policy-makers spent reading
or reviewing materials or attending research
dissemination events was Metropolis related; for
17% of respondents 100% of the time was
focused on Metropolis
Expenditures:
–
–
Approx $3.5 million/year*
FTEs 12 (@CIC); >12 (5 University-based Research
Centres)
* $2 million provided by CIC. This only counts direct expenses provided by the federal
government. For further breakdown of other resources flowing to this initiative see
Biles (forthcoming)
52
Policy: International /Intergovernmental /
Stakeholder Relations
1990s
2000s
• Working with Intergovernmental
Conference, Puebla Process
• Enhanced cooperation with the
UK and the United States on
security threats, and the activities
and movements of criminals
• UN Convention on Transnational
Organized Crime, the G-8
Protocol and protocols on
migrants smuggling and
trafficking in women (1998-99)
• International Engagement
Strategy (2010)
• Beyond the Border Shared Vision
for Perimeter Security and
Competitiveness (2010)
• UNHCR Executive Committee
conclusion on protracted refugee
situations (2009)
• Global Commission on
International Migration (2005)
• December 29, 2004 Safe Third
Agreement comes into effect
between Canada and US
• Smart Border Accord 2001
Sources: Citizenship and Immigration Canada Reports on Plans and Priorities 199853
1999; 2010-2011.
Policy: International /Intergovernmental /
Stakeholder Relations
• Settlement Renewal 1996-1999
• FPT Ministers Meetings launched 2002; DM
Meetings launched 2007
– Strategic Directions (2005)
• Improved selection, improved outcomes for immigrants,
increased regionalization and increased client services.
– Vision (2010)
• Welcoming and supporting newcomers to join in building
vibrant communities and a prosperous Canada
• Governance (see next slide)
Sources: Biles 2008; Canadian Intergovernmental Conference Secretariat website
54
Intergovernmental: Governance Structure
Ministers Responsible for Immigration
FPT Table
Deputy Ministers Responsible for
Immigration Table
ADMs Responsible for Immigration
Table
FPT
Planning
Table
Settlement and Integration Working Group
Information Sharing Working Group
FPT Priorities
ad hoc committees
Research Working Group
Economic Immigration Working Group
(Permanent and Temporary)
FPT Network of Officials Responsible for
Multiculturalism Issues
55
Policy: International /Intergovernmental /
Stakeholder Relations
•
•
•
•
•
•
•
•
Metropolis
Settlement Conferences I and II
Settlement Sector: SPO Umbrellas
Canadian Council for Refugees
Levels Consultations – who played; who didn’t
DM Advisory Committee
Employer Engagement
Local Immigration Partnerships
56
Stakeholder Relations: Metropolis
Source: Biles (forthcoming)
57
Stakeholder Relations: Metropolis
Source: Biles (forthcoming2)
58
Policy: Evaluation and Audit
Evaluation
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
Federal Skilled Worker Program [August 2010]
Language Instruction for Newcomers to Canada (LINC)
Program[ March 2010
Metropolis Project Phase II: Knowledge Transfer Activities and
Impacts [May 2009]
Pre-Removal Risk Assessment Program [Feb 2008]
Migration Policy Development Program [Feb 2008]
Enhanced Language Training Initiative [January 2008]
Private Sponsorship of Refugees Program [April 2007]
CIC Evaluation Policy [January 2007]
Initiatives to Foster Immigration to Francophone Minority
Communities [October 2006]
Canadian Orientation Abroad Initiative [June 2005]
Canada’s Membership in the IOM [April 2005]
Immigration Settlement and Adaptation Program (ISAP) [Jan
2005]
Host Program [Nov 2004]
Resettlement Assistance Program [Oct 2004]
Language Instruction for Newcomers to Canada [Sept 2004]
Canada’s Citizenship Week [Jan 2004]
Auditor General
•
•
•
•
•
•
•
Fall 2010 Chapter 3 – Service
Delivery
Fall 2009 Chapter 2—Selecting
Foreign Workers Under the
Immigration Program
May 2008 Chapter 7 – Detention
and Removal of Individuals (CBSA)
May 2003 Update Chapter 3 –
Economic Component of the
Canadian Immigration Program
April 2003 Chapter 5—Control
and Enforcement
April 2000 Chapter 3 -The
Economic Component of the
Canadian Immigration Program
December 1997 Chapter 25—The
Processing of Refugee Claims
There are also many CIC internal audits in this period.
59
Conclusions:
• Some Things Old
• Some Things New
• Some Things Borrowed; and
• Some Things Blue?
• Plus Areas in Need of Research
60
Conclusions: Some Things Old
• Ubiquitous Policy Trade-Offs
–
–
–
–
–
–
–
Selection (balance, priority, resource allocation)
Settlement (service delivery vs. accountability)
Refugees (in-Canada versus UNHCR applications)
Admissibility (access vs. safety and security)
Citizenship (rights vs. responsibilities)
Multiculturalism (balance among priorities)
Research (data development, internal vs. external
research)
– Int’l/Intergovt’l/Stakeholders (governance)
– Evaluation and Audit (Fiscal probity vs. outcomes)
61
Conclusions: Some Things New
•
•
•
•
•
•
•
•
•
Religion
Regionalization
Francophone Minority Communities
Welcoming Communities
Human Capital
Shift from Enforcement to Integration
Pathways to Permanence
TFW Explosion
Settlement-Integration Continuum
62
Conclusions: Some Things Borrowed
We have a lot to learn: Importance of International Comparisons
•
•
•
•
•
•
•
Selection/FCRO – Australia
Settlement – Australia, Europe
Refugees – Europe
Admissibility – Europe
Citizenship – Municipal Franchise in Europe
Multiculturalism - ?
Internat’l/Intergovt’l/Stakeholders – Australia, Europe
63
Conclusions: Some Things Blue?
2011 Election Platforms
Bloc – Family reunification, Haitian adoptions, humanitarian relief strategy, human trafficking, equitable
refugee determination system, revise IRB appointments process, disable Cdn Multi Act in Quebec,
amnesty for those in Canada more than 3 yrs, refugee appeal division implemented, revise act on security
certificates and deportations, exempt TFWs from EI payments, revisit Mexican and Czech visas
Conservatives – loans for credential recognition, extend security infrastructure program, develop and
implement national action plan to combat human trafficking, protect religious minorities (refugee program
and create an Office of Religious Freedom at DFAIT), expedite deportation of foreign criminals
Green – Nothing immigration specific
Liberals – better manage Can-US border, improve credential recognition and quickly integrate new
Canadians, make fixing immigration and refugee determination a top priority, increase language training
($100 million), consult to develop solutions to wait times/inadequate information/confusion/inefficient
procedures, work with Mexico to address Canada’s concerns with refugee claims and phase out visa
requirement
NDP – fast-track family reunification (regular and disaster areas), move towards a fair, efficient, transparent
and accountable immigration system, once-in-a-lifetime sponsorship, accelerate FCR, ensure tough laws
against crooked immigration consultants, work with official language minority communities to ensure
immigration meets their needs, redress historical injustices, increase resources to reduce immigration
backlogs, reinstate federal settlement funding to focus on literacy, community integration and orientation
(including bridging and mentorship), ESL and FSL, and resource centres, and develop credible/accountable
procedures with appeal for visa applicants seeking to attend family events
Sources: Election Platforms 2011
64
Conclusions: Areas in Need of
Research
•
•
•
•
Settlement (programs, delivery, governance, outcomes)
Governance
Admissibility
Immigration and Integration Policy Development
Updated (more players are more active)
–
–
–
–
Veugelers 1999
Hardcastle, Parkin, Simmons, Suyama 1994
Simmons and Keohane 1992
Hawkins 1991
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