ARCHIVED - Citizenship and Immigration Canada

• Previous Page
• Table of Contents
• Next Page

This page has been archived.

Section 2: Analysis of Program Activities by Strategic Outcome

The following section highlights program activities and the results achieved for each of the Department’s three strategic outcomes. It also contains tables showing the Department’s planned and actual financial spending for 2007-2008 by program activity. Activities that contribute to more than one outcome or that are department-wide in nature are addressed in the sub-section entitled “Other Programs and Services” at the end of this section.

Strategic Outcome 1:
Maximum Contribution to Canada’s Economic, Social and Cultural Development from Migration

Introduction

Migration is a driving force for economic and social development. CIC continues to promote Canada as a destination of choice for talent, innovation, investment and opportunity. Canada’s immigration policy facilitates the entry into Canada of new permanent and temporary residents who have the ability to contribute to the labour market and economy through their skills, their business experience or the capital they invest. Canada also welcomes Family Class immigrants who are sponsored and supported in their initial integration by close family members. Many people sponsored as members of the Family Class also make a significant economic contribution to Canada. At the same time, the success of these programs requires a balance between welcoming newcomers and protecting the health, safety and security of Canadians.

In 2007-2008, CIC worked with its partners to help increase the contribution of the economic immigration stream to Canada’s economic prosperity and competitiveness while also taking into account the social and cultural objectives of IRPA. Building on Advantage Canada priorities, the Government of Canada, in its budget released in February 2008, committed $109 million over five years to modernize Canada’s immigration system. This modernization initiative focuses on an immigration system that reduces wait times, better responds to evolving labour market needs, and supports the Government of Canada’s immigration objectives. Central to achieving these objectives were amendments to IRPA introduced in March 2008 and enacted on June 18, 2008, which removed the obligation to process all applications received to a decision and provided the Minister of Citizenship and Immigration with the authority to issue instructions establishing priorities for the processing of certain categories of applications.

CIC also advanced work on the development of a new immigration stream, the Canadian Experience Class, intended to facilitate the transition from temporary to permanent residence for skilled temporary foreign workers in the Canadian workforce and foreign students who have earned Canadian educational credentials and have the required work experience. The CEC will enhance labour market responsiveness by facilitating the retention of temporary workers and students with in-demand skills. Temporary foreign workers will continue to support the objective of building Canada’s economy by contributing to labour force growth and providing the talent needed by employers and communities. The rising demand for skilled workers is leading to intense international competition. The unmet demand in some areas for employees with lower skill levels is also affecting the ability of Canadian employers to contribute to the economy. Temporary immigration is one means of providing the Canadian economy with people who have the necessary skills, and an effective and attractive temporary immigration system is a competitive advantage in this context. Building on progress in 2007-2008, CIC will continue to explore and implement improvements to the Temporary Foreign Worker Program to better respond to employers’ needs for temporary workers and to ensure that employers meet the requirements of the program.

As part of its ongoing review of visa requirements for new member states of the European Union (EU) and its commitment to the free and secure movement of people between the EU and Canada, CIC lifted temporary resident visa requirements for citizens of the Czech Republic and Latvia to visit Canada in October 2007. These measures were followed in March 2008 with the lifting of visa requirements for citizens of Poland, Slovakia, Lithuania and Hungary.

CIC continued to reunite families by expeditiously processing applications from sponsored spouses, partners and dependent children at all of its locations. CIC also continued its commitment to protect victims of human trafficking by helping victims secure their immigration status with Temporary Resident Permits (TRPs). CIC continues to be an active partner in interdepartmental efforts to combat human trafficking, including promoting awareness of this crime and protecting foreign victims.

In order to ensure that the benefits of a more responsive immigration system are not undermined, CIC continued to fulfil its role of identifying applicants for permanent or temporary status who could pose security, safety or health risks to Canadians. To be successful, CIC employed its own extensive expertise to detect and deter fraud and supplemented it with effective partnerships with other departments such as the CBSA, CSIS, the RCMP and Health Canada. CIC continued to work with the provinces and territories, and federal and international partners for the management of foreign health risks. The Department also engaged its partners in a broader consultation on strategic and immigration health policy issues, including tuberculosis risk mitigation, vaccine-preventable diseases, and conditions causing excessive demand on the health system.

Program Activity 1 – Immigration Program

Description

Design, develop and implement policies and programs to facilitate the entry of permanent residents in a way which maximizes their economic, social and cultural contribution to Canada while protecting the health, safety and security of Canadians

Expected Results

Contribution, through the Immigration Program, to Canada’s economic, social and cultural development
Indicator: Achievement of the Immigration Plan

Financial Resources (in $ Millions)

Planned spending: $184.0
Total authorities:   $212.4
Actual spending:   $208.6

Explanation of resources used: Total authorities increased by $28.4 million over planned spending, primarily due to additional funding through Supplementary Estimates and due to additional statutory requirements related to refunds of previous years’ revenues for the Right of Permanent Residence Fee.

Actual expenditures were lower than total authorities by $3.8 million as a result of general operating lapses.

Canada has been very successful in attracting highly educated and qualified immigrants. According to Statistics Canada,[note 11] very recent immigrants who landed less than five years ago were more than twice as likely as people born in Canada to have a university degree.

Finding employment remains one of the key settlement challenges faced by new immigrants to Canada. Labour market outcomes vary by category of admission, place of residence, industry and occupation as well as time since arrival. However, other factors such as language and communication skills, recognition of foreign credentials and acceptance of foreign experience by employers are also increasingly important factors as newcomers look for work commensurate with their skills. CIC will continue to support newcomers as they settle and integrate into Canada so that they can achieve economic and social success. With this in mind, amendments to IRPA will create greater flexibility to meet immediate labour market demands, and improve labour market matching and the outcomes of newcomers over time.

As part of the selection process, CIC continued to screen applicants for medical conditions that are likely to be a danger to public health or public safety, or expected to cause excessive demand on health and social services. During 2007-2008, CIC conducted approximately 500,000 immigration medical examinations (IMEs). These resulted in revealing 12,147 cases requiring medical surveillance upon arrival to Canada, and 1,065 applicants being refused entry because of health reasons.

The Fraud Deterrence and Verifications Division was created in 2008 specifically to strengthen and coordinate CIC’s efforts to deter fraud and ensure program integrity in Canada and around the world across all business lines. New anti-fraud training has been delivered, new publications are circulated to staff to share information and promote best practices and new approaches to data collection and analysis on program abuse are being deployed. The division also oversees and conducts quality assurance audits of both inland immigration and citizenship programs, carries out extensive liaison with domestic and international partners, and plays an active role in administering the Permanent Resident (PR) Card program.

Achievement of Immigration Levels

Each year, under section 94 of IRPA, the Minister of Citizenship and Immigration is required to table before Parliament an annual immigration plan outlining the total number of immigrants Canada aims to receive in the subsequent year. The target range for 2007 was 240,000 to 265,000 and, at the end of that year, a total of 236,758 permanent residents had been admitted to Canada.

It is important to note that CIC controls all but one of the steps that lead to temporary or permanent admission to Canada: namely, the decision of successful applicants and their families to travel to Canada. For a number of reasons, not every visa issued results in a person arriving. In an average year, about two (2) percent of visas are not used. CIC processed applications for permanent residence from approximately 360,000 individuals to a final decision both overseas and in Canada and issued 251,000 visas in 2007. However, only 236,758 were used by December 31. Notwithstanding factors outside CIC’s control, once admissions by temporary foreign workers and foreign students are taken into consideration, Canada has in fact received more newcomers in 2007 than ever before.

Funding from Budget 2008 and key legislative tools will help the Department boost overall capacity to process more applications and, in turn, enable it to meet annual target levels, reduce the current backlog, and manage the inventory today and into the future.

New Permanent Residents in 2007, by Immigration Category
(Compared to the Immigration Plan)[note 12]

Immigrant Category	Plan 2007 Target Ranges	Admitted
		Number	Percent
Economic Class
Skilled workers	116,000 – 128,000	97,857	41.33
Business immigrants	9,000 – 11,000	10,179	4.30
Live-in caregivers	3,000 – 5,000	6,117	2.58
Provincial/territorial nominees	13,000 – 14,000	17,095	7.22
Total Economic Class (incl. dependants)	141,000 – 158,000	131,248	55.44
Family Class
Spouses, partners, children and others	49,000 – 50,000	50,416	21.29
Parents and grandparents	18,000 – 19,000	15,814	6.68
Total Family Class	67,000 – 69,000	66,230	27.97
Protected Persons
Government-assisted refugees	7,300 – 7,500	7,574	3.20
Privately sponsored refugees	3,000 – 4,500	3,588	1.52
Inland protected persons	10,600 – 12,000	11,700	4.94
Dependants abroad	5,000 – 6,800	5,094	2.15
Total Protected Persons	25,900 – 30,800	27,956	11.81
Other
Humanitarian and compassionate grounds[note 13]/Public policy	6,000 – 7,000	11,201	4.73
Permit holders	100 – 200	122	0.05
Total Other	6,100 – 7,200	11,323	4.78
Category not stated		1	0.00
TOTAL	240,000 – 265,000	236,758	100.0

Policy and Program Development

Policy and development work to establish an improved planning framework for setting immigration levels was a key priority in 2007-2008. At a meeting held in June 2006, the federal, provincial and territorial ministers responsible for immigration endorsed a joint consultation process. CIC subsequently undertook country-wide joint consultations with provinces, territories and stakeholders. The results of these consultations informed the 2008 Immigration Levels Plan, which was tabled in Parliament on October 31, 2007.[note 14]

The central policy achievement in the 2007-2008 fiscal year was the Government of Canada’s plan, announced in Budget 2008, to achieve an immigration system that is more responsive to labour market needs, prevents the backlog of some 925,000 people from growing, and commits to significant backlog reduction over the coming years. At the centre of the plan are the amendments to IRPA that were tabled in March 2008 as part of the Budget Implementation Act 2008 (Bill C-50), which received Royal Assent on June 18, 2008. These amendments include the ability to establish priorities while meeting Canada’s objectives for the Economic, Family and Protected Persons Classes.[note 15]

Policy and planning work continued on the development of the new Canadian Experience Class, which will facilitate the transition from temporary to permanent status by permitting, under certain conditions, foreign students with Canadian credentials and skilled work experience, and skilled temporary foreign workers who are already in Canada, to apply for permanent residence. As the program is rolled out in the coming months, it will lead to improved and more rapid success for new immigrants admitted under this program.

The Strategic Plan to Foster Immigration to Francophone Minority Communities,[note 16] which was launched in 2006, seeks to attract and retain a minimum of 4.4 percent French-speaking immigrants to Francophone minority communities (FMCs) in Canada by 2011. The goal is ambitious and requires close collaboration between both federal and provincial governments, as well as communities and employers. In 2006, among immigrants destined for FMCs, 0.70 percent or 1,446 persons declared French as their mother tongue (compared to 728 in 2003) while 2.67 percent of all immigrants (compared to 2.43 percent in 2003) declared they had a knowledge of French and English and originated from a French-speaking country. CIC has made progress over the last year in terms of increased participation and engagement from the provinces and employers. In 2007-2008, several missions held promotional events abroad including Destination Canada 2007, a major event in which provincial and community representatives and 23 employers participated. CIC also continued to build on its partnerships with the provinces, territories and communities through national and regional working groups and liaison with foreign employment agencies in France and Tunisia.

In keeping with its humanitarian tradition, CIC made improvements to the interim guidelines for human trafficking in June 2007. Victims are now eligible to receive an initial Temporary Resident Permit (TRP) for up to 180 days, an increase from the previous 120-day permit. The increased period of validity allows victims to apply for a work permit, an option which was unavailable under the 120-day permit. Both the initial TRP and work permit are fee-exempt. Medical coverage (including psychological counselling) continues to be provided through the Interim Federal Health (IFH) Program. This short-term TRP provides victims with a period of reflection to escape the influence of their trafficker and consider their options, such as pursuing immigration avenues or returning home. A longer-term TRP may be issued to victims of trafficking if circumstances warrant. In 2007-2008, seven permits were issued to four victims of trafficking. This figure includes subsequent permits issued to the same victim in order to maintain legal status in Canada. CIC continued to maintain an active role as a member of the Interdepartmental Working Group on Trafficking in Persons, a group which coordinates the Government of Canada’s approach to preventing trafficking, protecting victims and prosecuting offenders. CIC was also an active participant in RCMP-led workshops delivered to municipal, provincial and federal law enforcement partners across the country.

In order to address the inventory under the humanitarian and compassionate (H&C) category, the Department implemented a pilot project in March 2008 to identify processing improvements that would reduce and manage this inventory at an acceptable level. The final report will include the identification of best practices and gaps, and recommendations to revise application kits, training, procedures and processes.

To promote consumer protection and program integrity, and to better serve foreign nationals who choose to use an immigration representative, CIC continued the development of an information disclosure policy with representatives’ governing bodies. In addition, CIC further developed communication tools to increase people’s awareness of the Department’s policy on immigration representatives and ways to protect themselves when hiring an intermediary.

Selection and Processing of Skilled Workers

Baseline data continued to be collected for use in a formative evaluation to assess the early outcomes of skilled worker immigrants selected under the new criteria introduced in IRPA in June 2002. In 2007-2008, data volumes were sufficiently large and representative to allow for a full evaluation to be conducted in 2008-2009.

In 2007, skilled worker admissions reached 97,857, which is below the planned range of 116,000 to 128,000 announced in the 2007 Levels Plan.

Selection and Processing of Business Immigrants

CIC refined the data requirements to evaluate the three federal business programs (Entrepreneur, Investor, and Self-Employed) and initiated a feasibility study to determine what data are available to undertake a full evaluation of these programs in 2011-2012.

A review of the Entrepreneur Program from an operational and policy perspective was initiated in the summer of 2007, with a view to determining the economic impacts of the program and enhancing program delivery.

CIC continued to monitor approximately 30 private and provincially administered investment funds that operate under the 1976 Immigration Act. This monitoring ensures the funds comply with the Act’s associated regulations.

Under the revisions to the Immigrant Investor Program (IIP), launched in April 1999, CIC acts as an agent to allocate immigrant investor capital to participating provincial and territorial governments for their use in economic development initiatives. No new provinces or territories joined the program in 2007-2008; however, Nova Scotia joined on April 1, 2008. CIC is continuing discussions with other provinces that have expressed an interest in participating.

As of March 31, 2008, CIC had outstanding gross allocations of $1,309,600,000 to the provincial and territorial government funds operating under the new IIP. This amount is not recorded as either an asset or liability of the Government of Canada because CIC acts solely as an agent for the provinces and territories. Only investments that have been collected, but not yet remitted to either the provincial funds or the investor (i.e., they are still being held in CIC’s account for a limited period of time), are recorded.

Year Received	Investors	Amount Invested	Ontario	B.C.	P.E.I.	Manitoba	N.W.T.	Newfoundland and Labrador	Year of Repayment
2002-2003	80	32,000,000	17,600,216	8,970,814	5,428,970	–	–	–	2007-2008
2003-2004	105	42,000,000	21,875,124	10,615,401	6,104,484	1,384,506	2,020,485	–	2008-2009
2004-2005	723	289,200,000	133,807,464	59,016,231	29,740,972	37,029,218	29,606,115	–	2009-2010
2005-2006	757	302,800,000	132,781,133	57,648,800	26,905,490	34,279,968	26,870,025	24,314,584	2010-2011
2006-2007	527	210,800,000	90,939,316	39,979,871	18,136,775	23,240,523	18,154,036	20,349,479	2011-2012
2007-2008	1172	468,800,000	204,246,632	93,549,386	43,613,696	55,018,652	23,318,454	49,053,180	2012-2013

In 2007, business immigrant admissions reached 10,179, meeting the planned range of 9,000 to 11,000 announced in the 2007 Levels Plan.

Family Class

CIC will continue to carry out policy analysis with regard to the Family Class to improve understanding of economic, social and cultural contributions made by Family Class immigrants to Canadian society.

Family Class admissions in 2007 reached 66,230, just below the planned range of 67,000 to 69,000 announced in the 2007 Levels Plan.

Provincial and Territorial Nominee Program

In 2007-2008, comprehensive immigration framework agreements, which included annexes relating to PNPs, were signed with Alberta, Nova Scotia and the Yukon. These long-term agreements removed the cap on the number of individuals who can be nominated by the province or territory. They also include clauses that help ensure that provinces and territories support and assist the development of official language minority communities.

Canada has signed PNP agreements with nine provinces and one territory. The agreements give those governments the authority to nominate, for permanent resident status, foreign nationals who match the specific economic and demographic needs of their communities. CIC co-chairs a federal-provincial-territorial working group on the PNP that meets semi-annually. These meetings provide a forum in which program information and best practices are shared between federal and provincial/territorial PNP staff. CIC also offered training to provincial and territorial government employees in 2007-2008 in order to improve the processing of PNP applicants.

In 2007, provincial nominee admissions reached 17,095, exceeding the planned range of 13,000 to 14,000 announced in the 2007 Levels Plan. The increase is due largely to growing nomination volumes by provinces and territories in response to the strong demand for workers with specialized skills in certain regions and labour markets across Canada. CIC continued to process applicants nominated by provinces and territories on a priority basis.

Permanent Resident Card

As predicted last year, PR Card renewal volumes increased significantly. Early indicators suggest that estimated numbers are on par with previously projected volumes. Applications received for the first two months of fiscal year 2008-2009 have increased by 350 to 400 percent over the same period last year. This increase has resulted in pressure for additional resources to handle the increased workload.

The PR Card renewal campaign that was implemented through various media in 2007 has proven to be effective, and projections are being realized. The processing centre has responded with increased resources to address these numbers and provide our clients with timely service. CIC’s Web page continues to provide clients with information on PR Card renewal.

Program Activity 2 – Temporary Resident Program

Description

Design, develop and implement policies and programs to facilitate the entry of temporary workers, students and visitors in a way which maximizes their contribution to Canada’s economic, social and cultural development while protecting the health, safety and security of Canadians

Expected Results

Contribution, through the Temporary Resident Program, to Canada’s economic, social and cultural development
Indicator: Number of temporary residents (processed on demand)

Financial Resources (in $ Millions)

Planned spending: $59.8
Total authorities:   $74.9
Actual spending:   $73.4

Explanation of resources used: Total authorities were $15.1 million higher than planned spending, primarily due to additional funding received through Supplementary Estimates for collective agreements, the Temporary Foreign Worker Program and the operating budget carry forward.

Resources totalling $1.5 million lapsed, primarily due to general operating lapses.

In response to sustained labour market demand, particularly in Western Canada, and to the Government of Canada’s commitment in Advantage Canada to “making improvements to the Temporary Foreign Worker Program to respond to employer needs,” Canada welcomed a record number of 165,198 temporary foreign workers (including initial entries and re-entries)[note 17] in 2007. This figure represents an increase of 20 percent from 2006 and the second year of double-digit growth in the program. Since 2004, CIC has responded to growing demand by increasing admissions 46 percent.

Foreign students bring with them new ideas and cultures that enrich the learning environment within Canadian educational institutions. The number of foreign students entering Canada in 2007 totalled 74,009 (including initial entries and re-entries) an increase of three (3) percent from the previous year’s total of 71,800.[note 18] Foreign students who enter Canada on temporary visas may also be an important source of future immigrants in the skilled worker category since they are well prepared for the Canadian labour market. In fact, 9,914 temporary foreign students became permanent residents in 2007. This represents four (4) percent of the total number of permanent residents for 2007.

Tourists and business visitors also make significant contributions to our economy by creating a demand for services in the hospitality sector and allowing Canadian businesses to benefit from their specialized expertise. At present, citizens from 143 countries require Temporary Resident Visas to visit Canada.[note 19] In 2007, CIC processed applications (new and extensions) from over 1,040,000 persons seeking TRVs as tourists and business visitors to Canada.

Reflecting the Department’s responsibility to protect the health, safety and security of Canadians, new initiatives were undertaken to ensure that temporary residents seeking to enter Canada were effectively screened to prevent inadmissible persons from coming into the country. Departmental staff received training related to program integrity, reference materials were updated and, in cooperation with partner agencies, additional measures were taken to ensure that visa applications from high-risk countries received closer scrutiny.

Temporary Foreign Workers

As announced in Budget 2007, funding was made available for the implementation of two new Temporary Foreign Worker Units in Moncton and Toronto. Similar to the existing units in Calgary, Vancouver and Montréal, these units now provide advice to employers on the use of the Temporary Foreign Worker Program, facilitate the entry of temporary foreign workers who do not require a visa or labour market opinion, and pre-screen supporting documents from employers in order to streamline the application process. CIC also responded to the increased volume of temporary foreign worker applications by announcing increased staffing resources in key locations.

Under the Canada-Mexico Partnership, the governments of Canada and Mexico announced the creation of a Labour Mobility Working Group to explore ways to facilitate labour mobility between the two countries in areas of mutual interest, promote the protection of workers, and share information on skills and credential recognition processes and requirements. Work has begun on the development of three pilot projects that would facilitate the process of hiring Mexican workers in the construction, tourism and hospitality sectors, and in highly skilled occupations and professions. The pilot projects are expected to be implemented in the summer or fall of 2008.

Negotiations with the Government of Ontario on the Temporary Foreign Workers Annex of the Canada-Ontario Immigration Agreement established the basis for similar arrangements with other provinces that would allow both levels of government to work together and facilitate the entry of temporary foreign workers to support regional economic stability and growth. Most notably, negotiations with the governments of Alberta and British Columbia progressed well, and agreements with these provinces should be concluded in the summer or early fall of 2008.

CIC and HRSDC, in consultation with the CBSA, continued to work together on a package of regulatory amendments, announced in Budget 2007, that will facilitate the flow of temporary foreign workers to Canada, and establish responsibility for employers and third-party recruiters to comply with program requirements.

Visitors and Foreign Students

In collaboration with partners, CIC successfully delivered key initiatives to help Canada maintain its competitive edge in attracting international students. Following the launch in April 2006 of the Off-Campus Work Permit Program, a national program that allows international students in public post-secondary institutions to seek employment off campus, a pilot project began in 2007 to extend the program to selected private institutions. Memoranda of Understanding to implement the pilot project were finalized with Alberta and Manitoba in 2007, and with British Columbia in 2008. The total number of foreign students who received off-campus work permits increased from 1,190 in 2005-2006 to 15,454 in 2006-2007. In 2007-2008, the number of off-campus work permits issued further increased to 17,044.

As well, the Post-Graduation Work Permit Program was significantly improved by extending work permits to up to two years for international students who have graduated from public post-secondary institutions and certain private institutions located in regions outside of Montréal, Toronto and Vancouver. The aim is to help spread the benefits of immigration to more of Canada’s regions. During 2006-2007, a total of 1,388 students received a two-year work permit. More broadly, the total number of students who received post-graduation work permits increased from 7,354 in 2005-2006 to 9,121 in 2006‑2007. In 2007-2008, the number of post-graduation work permits issued increased to 10,933.

Discussions took place with key partners and stakeholders, including provinces and territories, the Advisory Committee on International Students and Immigration, the Association of Universities and Colleges of Canada, and the Association of Community Colleges of Canada, to explore options for improving CIC’s international student programs. The focus of these discussions was to share information on changes to employment provisions for international students to ensure that as many eligible students as possible can take advantage of the opportunity to work in Canada, and to explore possible changes to improve the integrity of the student program.

Strategic Outcome 2: Reflection of Canadian values and interests in the management of international migration, including refugee protection

Introduction

The overarching objective is to promote internationally the Canadian vision of the benefits of managed migration. The long-term benefits include minimized risks for the countries of destination as well as migrants, viable programs that address labour market issues and demographics, and improved economic benefits for all stakeholders. Internationally, migration and humanitarian issues continue to gain attention among governments, bilateral and multilateral fora, NGOs, and academic and other research institutes. CIC is expanding its leadership role in framing and advancing important international migration policy and governance dialogues. These dialogues explore the links between migration policy and development assistance, health, environment, trade and human capital flows. Given the complexity of these links, CIC continues to foster partnerships, both domestically and internationally, to develop and implement a strategic agenda on global migration and protection, and to identify opportunities for advancing Canada’s policy and program priorities.

As a member of the international community, Canada works closely with the UNHCR to help find solutions to prolonged and emerging refugee situations. Canada offers refuge to those who need refugee protection in Canada and those who need it abroad. There are about 11.4 million refugees in the world today. Globally, countries with resettlement programs agree to resettle about 100,000 refugees from abroad each year. From that number, Canada annually resettles 10,000 to 12,000, or one out of every 10 refugees resettled. This is in addition to the number of people who are offered a safe haven in Canada each year.

To build on the foundation of Canada’s long-standing humanitarian tradition, CIC aims to strengthen policies and programs for refugees and protected persons to provide protection where needs are greatest while ensuring the integrity of its programs. CIC assists refugees through the domestic asylum system, the resettlement program for refugees selected abroad, and through international advocacy and engagement to find durable solutions for refugees outside Canada’s borders.

Program Activity 3 – Canada’s Role in International Migration and Protection

Description

Assert Canada’s position in the context of international migration to influence the international agenda on migration and protection

Expected Results

Canada influences the international agenda on migration and protection
Indicator: Influence on international migration and protection policies

Financial Resources (in $ Millions)

Planned spending: $4.0
Total authorities:   $3.1
Actual spending:   $1.6

Explanation of resources used: Actual spending was lower than total authorities by $1.5 million, primarily due to lower-than-planned exchange rate fluctuation for CIC’s contribution to the International Organization for Migration and due to general operating lapses.

Canada is an international leader in migration management. This leadership role presents both an opportunity and a responsibility to play a strategic role in global migration fora.

As a basis for its international migration work, CIC conducted comprehensive consultations with internal and external stakeholders and developed a framework for an international engagement strategy. The strategy is expected to be finalized and approved in 2008-2009.

Migration policies often intersect with other global issues. To foster an all-of-government understanding of migration policies and perspectives, the Interdepartmental Migration Group, developed and managed by CIC, met quarterly in 2007-2008 to advance the cross-departmental integration of migration-related issues.

Internationally, Canada continued its role as an influential leader in the international dialogue on migration. Canada served on the steering group for both the first and second Global Forums on Migration and Development, which allowed CIC to influence both the agenda and the role this important forum plays in the international arena.

Canada also played a widely recognized and central role in the successful negotiation of the long-delayed International Organization for Migration Strategy,[note 20] including developing models for new governance bodies and budget structures that were eventually adopted. With the interests of Canada and the global community in mind, CIC has also contributed extensively to the international dialogue on the movement of health workers and to the development of an International Code of Practice on Recruitment of Health Workers.

Program Activity 4 – Refugee Program

Description

Maintaining Canada’s humanitarian tradition by protecting refugees and persons in need of protection in Canada and abroad

Expected Results

Maintenance of Canada’s humanitarian tradition with respect to refugees and persons in need of protection
Indicator: Achievement of protected persons levels in the Immigration Plan

Financial Resources (in $ Millions)

Planned spending: $97.5
Total authorities:   $96.0
Actual spending:   $94.8

Explanation of resources used: Actual expenditures were lower than total authorities by $1.2 million primarily due to general operating lapses.

The primary objective of the Refugee Program is to provide protection to refugees and persons in need of protection, both in Canada and abroad. Canada offers refugee protection to people who fear persecution or who may be at risk of torture or cruel and unusual treatment or punishment, and are unwilling or unable to return to their home country. Canada operates one of the largest refugee resettlement programs in the world. In 2007, CIC exceeded the planning range of 7,300 to 7,500 for government-assisted refugees, offering protection to 7,574 new permanent residents. CIC met the target of 3,000 to 4,500 for privately sponsored refugees by uniting 3,588 refugees with their sponsors in Canada.

Canada is a signatory to the 1951 Convention and Protocol Relating to the Status of Refugees, and its resettlement program is therefore complemented by acceptance of the international legal obligation to extend refugee protection to individuals in need of asylum upon or after their arrival in Canada. In 2007, a total of 28,523 individuals made a claim for refugee protection across Canada. This total represents an increase of 24 percent over the 2006 total of 22,944 (the 2005 total was 19,761). In 2007, the IRB approved 42.5 percent of all cases for which it rendered final decisions. Persons recognized as protected persons may then apply for permanent residence in Canada. Canada granted permanent residence to 11,700 in-Canada protected persons as well as 5,094 dependants of refugees abroad. Both of these totals were within the planned ranges for 2007.

Medical screening of refugees in their countries of origin mitigates health risks and minimizes the impact of the movement of refugees on the public health of Canadians. In addition, the effective and timely provision of essential health-care services in Canada continues to be an important aspect of protecting the health of refugees, refugee claimants and other vulnerable immigrants, as well as Canadians.

Policy and Program Development

In 2007-2008, CIC continued to identify challenges and develop policy options to improve the refugee protection system and provide protection where needs are greatest. This analysis benefited from the recommendations of the Standing Committee on Citizenship and Immigration that appeared in its report Safeguarding Asylum – Sustaining Canada’s Commitments to Refugees.[note 21] In addition, CIC consulted with NGOs, academics and private sponsors of refugees to understand their perspectives and incorporate their ideas into policy options.

CIC completed an evaluation of the Pre-Removal Risk Assessment Program (PRRA), which assessed the program’s relevance, design and delivery, integrity, results and cost effectiveness. The evaluation concluded that the program’s objectives are consistent with Government of Canada and CIC objectives, and the program is consistent with Canada’s international obligations and commitments under several conventions. However, the evaluation also identified the PRRA Program as a factor in the increasing time lapse between the rendering of a negative IRB decision and removal from Canada. CIC identified plans to improve coordination and communication, identify best practices and further analyse options for increasing program efficiency.

CIC strengthened its partnerships with internal and external partners to provide effective protection to refugees in Canada and abroad. Domestically, CIC negotiated a new trilateral agreement with the IRB and the CBSA to guide interorganizational relationships. CIC also worked in partnership with the CBSA and the UNHCR to support and monitor the Safe Third Country Agreement with the United States. Finally, the Department continued work on the implementation plan for the Asylum Annex, an information-sharing agreement with the United States. The successful implementation of this agreement requires a careful balancing and alignment of priorities and interests among the organizations involved, including CIC, the IRB, the CBSA, the RCMP and the United States Department of Homeland Security.

Internationally, CIC worked effectively with other government departments, NGOs, academics and other governments to put the issue and the resolution of protracted refugee situations at the top of the global protection agenda. These refugee situations are complex, requiring a coordinated approach among participants in such areas as immigration, development and diplomacy. With strong and sustained encouragement from Canada, the UNHCR adopted protracted refugee situations as a key priority and will devote the December 2008 High Commissioner’s Dialogue to this issue. The UNHCR also appreciated Canada’s advice and capable chairing of one of the three sessions during the December 2007 High Commissioner’s Dialogue on refugee protection in the context of mixed flows of asylum claimants and other migrants.

As Chair of the Working Group on Resettlement at UNHCR, Canada advocated on behalf of refugees to increase the number of resettlement opportunities globally, while building partnerships to support new and emerging resettlement countries. The Canadian Chair also used this opportunity to enhance partnerships by bringing NGOs into the working group for the first time, and inviting them to set part of the agenda.

Canada used its role as Rapporteur to the UNHCR’s Executive Committee (EXCOM) to influence the international protection agenda. In light of the results achieved in 2006‑2007, the CIC representative, the first Canadian to hold this position in decades, was re-elected for a second one-year term in 2007‑2008. In addition to introducing a more rigorous consensus-building approach to negotiating EXCOM conclusions, Canada facilitated a formal review of the EXCOM conclusions process to ensure its effectiveness in raising standards of international protection for refugees.

In 2007-2008, the UNHCR used Canada’s $1-million contribution to the Mexico Plan of Action, made at the end of 2006-2007, to help open protection space for refugees in Latin America. The UNHCR repeatedly expressed appreciation for Canada’s financial contribution and CIC’s sustained support for this important multilateral initiative.

Selection and Processing of Refugees and Protected Persons (Resettlement/Asylum)

CIC completed an evaluation of the Private Sponsorship of Refugees (PSR) Program.[note 22] In addition, extensive analysis and consultations were undertaken with sponsoring groups and key stakeholders to identify solutions to challenges facing the program. This process included a major national conference on the program. The consultations and analysis led to increased training for sponsorship agreement holders (SAHs) and the establishment of a Quality Assurance Framework for the program. Committees of CIC officials and private sponsors were established following the conference in order to identify administrative and policy options to improve the PSR Program. CIC’s relationship with private sponsors has improved, and while it is still early to see these efforts reflected in shorter processing times and increased approval rates, preliminary indications are positive. Following these initiatives to strengthen the program, the PSR target range for 2008 was increased to 3,300–4,500.

CIC continued to implement administrative measures to increase the efficiency of refugee processing. An evaluation was completed of the Harmonized Form Pilot project that combined a number of forms used to collect information from refugee claimants, and the recommendations are being reviewed. CIC prioritizes the processing of applications for protected persons. Applications inventories were reduced to 6,400 persons in 2008 compared to 9,400 in 2007.

CIC analysed specific protracted refugee situations and continued to use the resettlement program more strategically in order to reduce the numbers of refugees in particular situations. It resettled 1,812 Karen refugees from Thailand in 2007, as part of an international effort to reduce the numbers of refugees in specific camps. Moreover, as a member of the Core Group for Bhutanese Refugees in Nepal (a sub-committee of the UNHCR EXCOM), the Department helped to find solutions to this long-standing refugee situation, clearing the way for the resettlement of up to 5,000 Bhutanese refugees in Canada over the next two to four years. CIC also resettled several especially vulnerable and at-risk Rohingya refugees in Bangladesh as part of a multilateral effort to engage the Government of Bangladesh in improving conditions in a refugee camp acknowledged as one of the world’s worst in terms of daily living conditions.

Immigration Loans Program

Canada provides loans to refugees to help them pay for the costs of medical examinations abroad, travel documents and/or transportation to Canada. This fund is essential since refugees often have few personal financial resources and are unable to access traditional lending institutions.

The repayment record for the 50-year-old program is over 90 percent. In 2007-2008, CIC continued to manage loan collection with due diligence to ensure the recovery rate for repayment remains at this level, and thereby ensuring the sustainability of the refugee program. The current limit on the loan fund is $110 million, and outstanding loans accounted for $34.4 million of this amount as of March 31, 2008. CIC also contributed $734,363 from the Resettlement Assistance Program (RAP) toward the medical examination and transportation costs of some refugees with special needs (e.g., seniors and refugees with serious health issues).

Interim Federal Health Program

The IFH Program continued to provide temporary health-care services for refugees, refugee claimants, those clients issued a TRP on the basis of being a victim of human trafficking, and those detained under IRPA who are not eligible for provincial health insurance and who have no means of obtaining health services. In 2007- 2008, the total for program expenditures was $51.1 million (compared to $48.3 million for 2006-2007) and 101,791 clients had valid IFH certificates, generating over 523,000 medical claims.

CIC has engaged many of its stakeholders in modernizing the IFH delivery mechanisms and processes. The Department undertook several concurrent initiatives during the year to enhance the program’s analytical capacity, improve reporting, increase outreach, and strengthen accountability. These measures represented the foundation of a larger change that will integrate the program functions and strengthen its governance structure.

CIC initiated the review and revision of IFH standard operating procedures and engaged internal partners in the development of the program’s Results-Based Management Framework. An audit of the Claims Administrator revealed opportunities to enhance service standards, quality control measures and compliance with official languages requirements.

Systematic input from stakeholders contributed to a comprehensive gap analysis. Input from regional offices, the Canadian Council for Refugees, primary health-care providers, provincial and territorial partners, and other stakeholders was complemented by an in-depth data analysis and an internal CIC survey. These elements were integrated to form the basis of an evergreen gap analysis process that will continue to lead IFH priority setting and the alignment of services to client needs.

A comparative analysis was conducted of the various public dental-care programs available in the four provinces where the majority of clients reside (Ontario, Quebec, British Columbia, and Alberta). The project benchmarked legislation, regulations and policies concerning publicly financed dental-care coverage that will serve as a guide for IFH policy development on dental care, especially for youth and children, in 2008-2009.

IFH policy integration was enhanced in cooperation with internal and external stakeholders by addressing common program areas with RAP, improving management of access to IFH by persons in detention and removal streams, and by developing a plan to streamline the issuance of IFH eligibility documents.

The Department developed a comprehensive communications strategy focusing on improving provider engagement and client outreach, which will be fully implemented in 2008-2009. CIC identified the business requirements for enhancing the IFH Program’s electronic communications capability. In addition, it upgraded the functionality and content of the IFH Claims Processor’s website, and streamlined claim forms and processes.

In 2007-2008, a total of 78,154 eligible persons accessed the IFH Program through a network of 17,974 health-care providers across Canada.

Strategic Outcome 3: Successful integration of newcomers and promotion of Canadian citizenship

Introduction

All Canadians have a stake in supporting the successful integration of newcomers into Canadian society. Newcomers shape our collective experience and benefit all Canadians through their contributions to the economy and society. As immigrants and refugees seek to overcome barriers, settlement programming provides them with a supportive environment, enabling them to maximize their potential and realize their aspirations. For these newcomers to achieve their goals, maximize their economic contributions and become integrated socially, it is essential for governments, organizations, the broader community and the newcomers themselves to work together toward shared settlement and integration goals. Integration and citizenship policies and programs support newcomers from the initial planning and preparation stage overseas, through arrival and settlement, to longer-term integration, full participation in Canadian society and the attainment of citizenship.

The acquisition of citizenship is an important step in the Canadian integration process, as it invests newcomers with the full range of Canadian rights and responsibilities and provides them with the tools to develop and foster their sense of belonging to Canada. This integration takes place in the context of a broader sense of citizenship that is shared by all Canadians. Much has changed since 1947 when the first Citizenship Act took effect and the modern concept of a “Canadian citizen” was established. CIC recognizes the evolution of citizenship issues; their interdependence with other sectors within CIC and across government; and the need to build capacity to better understand the drivers for change and translate them into concrete policy direction.

In 2007-2008, the Government tabled amendments to the Citizenship Act to address outdated provisions. C-14, An Act to Amend the Citizenship Act (adoption), allows children adopted abroad by Canadians to obtain Canadian citizenship without first having to become permanent residents, thereby minimizing the difference between children adopted abroad and children born abroad to a Canadian parent. Bill C-37, An Act to Amend the Citizenship Act, gives Canadian citizenship to many who lost or never had Canadian citizenship due to outdated provisions in the legislation.

Program Activity 5 – Integration Program

Description

Develop policies and programs to support the settlement, resettlement, adaptation and integration of newcomers into Canadian society by delivering the orientation, adaptation and language programs for newcomers

Expected results

Successful integration of newcomers into Canadian society within a reasonable time frame; newcomers contribute to the economic, social and cultural development needs of Canada
Indicator: Labour market integration

Financial Resources (in $ Millions)

Planned spending: $783.2
Total authorities:   $774.1
Actual spending:   $667.9

Explanation of resources used: Actual expenditures were lower than total authorities by $106.2 million. The lapse is mostly attributable to lower spending of $63.4 million on the Canada-Ontario Immigration Agreement. It also includes $26.2 million against the grant payment under the Canada-Quebec Accord which is the variance between the estimated amount and the final adjustment. Other lapses are due to lower spending of $16.6 million in general settlement programs.

The main objectives of the Integration Program are to provide appropriate support and services for newcomers to assist in their settlement and long-term integration in Canada, and to help newcomers contribute to Canada’s economic, social and cultural development. While immigrant labour market data from Statistics Canada’s Labour Force Survey[note 23] are used as one indicator of economic progress, CIC recognizes that economic outcomes provide only a partial indication of successful integration. With this in mind, the Department has been developing additional performance indicators to measure the impact of its Integration Program more accurately in the future.

Data from the Labour Force Survey show that during 2007, the Canadian economy generated 382,000 new jobs, which corresponds to a 2.3 percent increase from the level recorded in 2006. Employment for the Canadian-born population grew by 2.1 percent or 272,000 new jobs and immigrant employment surged ahead by 3.5 percent or 117,000 new jobs. Breaking down these figures based on the immigrant population shows that employment growth is 2.6 percent for very recent immigrants (landed in Canada five years or less), 3.1 percent for recent immigrants (landed in Canada five to 10 years ago), and 3.8 percent for established immigrants (landed in Canada more than 10 years). These results are all stronger than the average of 2.1 percent for the Canadian-born population.

Despite this stronger-than-average employment growth, the unemployment rates of very recent immigrants (11.9 percent) and recent immigrants (8.2 percent) were still well above the Canadian-born average (5.7 percent) in 2007. In contrast, the unemployment rate of 5.7 percent for established immigrants was the same as the Canadian-born average during 2007. The labour market performance for established immigrants continues to be resilient, and data through the first several months of 2008 point to positive results.

Settlement/Resettlement Policy and Program Development

The Foreign Credentials Referral Office (FCRO) was launched at CIC in May 2007 and offers information, path-finding and referral services on foreign credential recognition processes, and Canadian labour market information through a dedicated toll-free phone line and in-person service delivered by Service Canada. When the FCRO was established, its services were offered at six key Service Canada Centres. By the end of October 2007, services were offered at 289 Service Canada Centres across Canada and at the end of November 2007, all 320 Service Canada Centres were providing services. In the FCRO’s first year, close to 20,000 internationally trained individuals were offered information, path-finding and referral services through these channels.

The FCRO also offers these services to newcomers in Canada and to prospective immigrants overseas through its new website (www.credentials.gc.ca), featuring a search engine called “Working in Canada” that was developed by HRSDC. The website provides authoritative, centralized and relevant information on foreign credential recognition and the labour market, and has received just over 400,000 visits in its first year, the majority from overseas.

The FCRO is also collaborating with the Canadian Immigration Integration Project, funded by the Foreign Credential Recognition Program at HRSDC, which has been offering pilot orientation sessions to prospective immigrants in India, China and the Philippines since January 2007. During these sessions, skilled immigrants who have qualified and are awaiting completion of final immigration requirements are provided with information on foreign credential recognition processes, as well as information on the Canadian labour market. The FCRO website is one of the tools used by facilitators during these orientation sessions. The goal is to provide information to immigrants earlier in the immigration process so that more skilled immigrants contact the responsible assessment agency or regulatory body to initiate their credential assessment process while still overseas. This pilot led to the development of the FCRO’s overseas strategy, and an implementation plan is currently under way.

The FCRO is also working closely with federal, provincial and territorial partners and stakeholder groups (e.g., regulatory bodies and employers) to improve foreign credential recognition processes in Canada. For example, the FCRO partnered with the Alliance of Sector Councils to develop a foreign credential recognition roadmap for employers tool that includes a step-bystep information guide for employers on hiring and retaining internationally trained workers. The FCRO also engaged the Canadian Network of National Associations of Regulators to discuss initiating foreign credential assessment and recognition overseas. The FCRO held a national conference on foreign credential recognition in April 2008, which brought together 130 key players to find collaborative solutions to foreign credential recognition and share best practices.

Based on diagnostic evidence and consultations, the Department developed an outcomes-focused, long-term approach to settlement programming that was approved by Treasury Board.

• The approach is flexible, responsive and holistic, and will better enable service providers to tailor program offerings to best meet individual newcomer’s needs.
• The approach also includes a strong accountability framework to better link newcomer settlement outcomes to programs and program investments, and to better understand which programs are effective and which may need to be strengthened or changed.

Following discussions with the provinces and territories, a new formula for the allocation of settlement funding was established and implemented. The new formula applies to all existing and new settlement contribution funding, with the following exceptions: a) Ontario, where the allocation is governed by the COIA; b) Quebec, which receives an annual grant under the Canada-Quebec Accord; and c) the Official Languages Action Plan, which is allocated to regional CIC offices.

In 2007-2008, CIC worked closely with Ontario and municipal partners to implement the strategic directions in the COIA Strategic Plan for Settlement and Language Training.[note 24] Both the Settlement Working Group and the Language Training Working Group met regularly to provide recommendations to move priorities forward.

At the national level, further policy and program development work was undertaken in the area of refugee resettlement (the term used by CIC to describe the legal process of bringing a refugee to Canada to live as a permanent resident) in order to respond to a changing policy context. Since the implementation of IRPA in 2002, Canada has emphasized protection need over an ability to immediately establish in its resettlement decisions. As a result, refugees resettled in Canada today have higher and more varied needs than previous refugee populations. Available economic and social integration indicators suggest that refugees face more difficulty integrating than other immigrants. Key challenges include difficulty accessing adequate housing, limited or no labour market skills, limited official language skills, mental and physical health concerns, and developmental issues for children. In response to increasing funding pressures on resettlement activities addressing these issues, CIC allocated an additional $13.9 million over three years in temporary funding to RAP, starting in 2007‑2008.

Furthermore, government-assisted refugees (GARs) take longer to become self-sufficient and active participants in their new communities. Income support provided under RAP is essential to providing basic life needs while GARs take their first steps towards integration. Therefore, RAP programming is being reviewed to ensure it meets the increasing needs of GARs. To support program development, CIC funded research on various elements of RAP to determine which areas require enhancement. To this end, a report entitled A National Approach to Meeting the Needs of GAR Children and Youth within the Resettlement Assistance Program[note 25] was completed in June 2007, and the Study of Income Support Benefits Offered to GARs Under RAP was completed in October 2007. Both reports continue to inform resettlement policy and program development. Another initiative was the national Infectious Disease Control Training for RAP service provider organizations and PSR sponsors.

Newcomer Settlement Support

CIC-funded settlement programs and services comprise language instruction and skills development, information and orientation, and initiatives to support social engagement, community connection and labour market participation.

Language Learning

In 2007-2008, CIC increased investments to expand and create innovative language training programs. As a result, the Language Instruction for Newcomers (LINC) Program, which provides basic language training on a full- or part-time basis in one of Canada’s official languages, was improved in a number of ways, including:

• An increase in enrolment of more than 10 percent;
• More flexible class schedules and reduced class sizes;
• Expansion to new service regions, especially rural areas;
• Expansion to higher LINC level classes;
• Innovative delivery models, such as distance learning and home study;
• An increase in child-minding assistance;
• An increase in services to support and improve the delivery of programs, such as professional development; and
• Enhanced tools and supporting materials, such as new standardized assessment tools to improve learning progress measurement.

The Enhanced Language Training (ELT) initiative helps immigrants acquire the language proficiency, and workplace culture and bridge-to-work opportunities they need to pursue careers in very diverse fields. By offering language training paired with a workplace component, CIC helps newcomers gain the skills they need to better access the Canadian labour market at levels consistent with their skills and qualifications. The number of ELT projects has increased since the initiative’s inception. CIC currently funds service providers across Canada for approximately 3,500 to 4,500 ELT clients per year.

ELT is a successful initiative that meets the immediate needs of its target audience. The formative evaluation of ELT, completed in 2008, found that it contributed to:

• Improved language skills;
• Increased knowledge/experience of the Canadian work environment;
• Increased job-finding skills;
• Preparation for licensure exams; and
• The establishment of mentors, contacts and/or networks.

The evaluation indicated that the quality of curricula and tools is a strength of the ELT initiative and has contributed to its success. It also indicated areas for improvement, such as the need for better information sharing and more robust data collection. In response to these findings, and in preparation for the ELT’s summative evaluation in 2009-2010, CIC has been working to enhance its data collection processes, and is developing mechanisms to promote ELT successes. For example, regional ELT conferences were held in three locations (Edmonton, Moncton and Niagara Falls) in the winter of 2008 as a way to share promising practices in and between regions.

Information Provision

The Going to Canada Immigration Portal (www.goingtocanada.gc.ca), developed by CIC and HRSDC, offers comprehensive and integrated information to prospective and new immigrants to help them prepare to live, work and study in Canada. Work continued on the enhancement of portal tools and content and an updated portal website was launched in the fall of 2007. Contribution agreements have been finalized with all provinces and territories (except Quebec) to help these jurisdictions develop their respective immigration websites. Finally, a Results-Based Management Accountability Framework for the Going to Canada Immigration Portal initiative was completed in 2007-2008.

During 2007-2008, Canadian Orientation Abroad (COA), an initiative of the Immigrant Settlement and Adaptation Program, provided some 15,000 future newcomers in 22 countries with orientation sessions to familiarize them with life in Canada before their arrival.

Social Engagement

The Host Program is a volunteer-based program that matches newcomers with Canadian volunteers who help them learn about available services in their community, practise their English or French, participate in community activities, understand the Canadian labour market and find job contacts in their field. By connecting newcomers with Canadians, the program promotes inclusion and diversity, improves cross-cultural understanding, and helps reduce racial stereotyping. Over 5,440 clients received Host-related services in 2007.

In 2007-2008, CIC continued to contribute to Canada’s Action Plan Against Racism through the Welcoming Communities Initiative (WCI). WCI supports a range of anti-racism activities intended to foster more inclusive and welcoming communities, and to promote the full participation of newcomers in Canadian society. Funding was allocated to regions and provinces (British Columbia and Manitoba) to support ongoing anti-racism activities, such as awareness raising, outreach, direct services, and tools and resource development. A 2006 national call for proposals yielded six national projects for the period of 2006-2008. These initiatives included a tool kit for small centres; a series of discussion groups and tool kit development with immigrant women; partnership and resource development with the Family Resource Programs sector; youth focus groups, workshops and multimedia tools on racism and workplace conflict; anti-racism curriculum for settlement workers; and a searchable online database on anti-racism resources.

The past year also saw the creation of several Francophone community networks outside Quebec to provide a more concerted approach based on the needs of French-speaking immigrants and FMCs. The Implementation Committee, in collaboration with federal, provincial, territorial and community partners both at the national and regional levels, is moving forward with the implementation of the Strategic Plan to Foster Immigration to Francophone Minority Communities.

Program Activity 6 – Citizenship Program

Description

Design, develop and implement policies and programs to administer the acquisition of Canadian citizenship and to enhance the values and promote the rights and responsibilities of Canadian citizenship

Expected Results

Accordance of full participation in Canadian society to eligible permanent residents; contribution to Canada’s economic, social and cultural development
Indicator: Attitudes towards Canadian citizenship

Financial Resources (in $ Millions)

Planned spending: $59.3
Total authorities:   $75.3
Actual spending:   $73.2

Explanation of resources used: Total authorities were $16.0 million higher than planned spending, primarily due to additional funding received through Supplementary Estimates and internal re-allocations to support increased workload in the Citizenship program.

Actual expenditures were lower than total authorities by $2.1 million, mainly due to general operating lapses.

The acquisition of citizenship is an important tool for integration as it invests the newcomer with the full range of Canadian rights and responsibilities. According to the 2006 Census, the majority of foreign-born people who were living in Canada and who were eligible for Canadian citizenship chose to become Canadians. In 2006, 85.1 percent of eligible foreign-born people acquired Canadian citizenship,[note 26] a slight increase from 83.9 percent in 2001. It is worth noting that Canada has one of the highest naturalization rates among the Organisation for Economic Co-operation and Development countries (United States: 40 percent,[note 27] Australia: 75 percent, UK: 56 percent).[note 28]

The naturalization rate is a strong but not sufficient indicator of attitudes towards Canadian citizenship. It may be complemented by other contextual information and data on civic participation and a sense of belonging to give a better picture of citizens’ participation in Canadian society. Surveys have shown that a large number of naturalized Canadians and their children who were born in Canada express a strong sense of belonging in Canada.[note 29]

The CIC’s annual tracking survey (2007)[note 30] reveals that 68 percent of Canadians believe that immigration has a positive impact on Canada. However, Canadians, as well as immigrants, continue to believe it is the responsibility of the individual and government to help immigrants integrate into Canadian society. An overwhelming majority of Canadians continue to say there should be responsibilities associated with being a Canadian citizen (92 percent).

Because it is challenging to link these high-level outcomes with specific programs and activities, CIC will continue to develop more meaningful indicators to measure the success of the Citizenship Program. CIC has successfully achieved many of the objectives under each of the themes listed in this section of the report, including making progress on strengthening and implementing the evidence-based policy framework; amending the Citizenship Act to address specific citizenship issues; processing citizenship applications in excess of reference levels; and improving its client service and delivery model.

Citizenship Policy and Program Development

The business of citizenship is changing in Canada and around the world. The creation of CIC’s Citizenship Branch in December 2006 shows the Department’s recognition of the evolution of citizenship issues, their interdependence with other sectors in CIC and in government, and the need to build capacity to better understand the drivers for change and translate them into concrete policy direction.

To strengthen the evidence base for addressing a broad range of citizenship-related issues, including rights, responsibilities, identity and values, CIC conducted public opinion research studies on civic practice and barriers to civic participation, and motivations for naturalization. The Department also undertook several knowledge transfer and development activities with Metropolis, a network for comparative research and public policy development on migration, diversity and immigrant integration in cities in Canada and around the world. The Institute of Canadian Citizenship (ICC), with support from CIC, undertook round tables with new and established Canadians in 2007-2008, to discuss the value of citizenship and active citizenship. CIC supported the ICC in securing the necessary approvals and initial funding. CIC will continue to foster an ongoing relationship with the ICC as a key partner in citizenship policy and program development.

During this reporting period, the Government tabled amendments to the Citizenship Act. An Act to Amend the Citizenship Act (adoption) minimizes the difference between children born to Canadians and those adopted by Canadians. It received Royal Assent in June 2007, and came into force on December 23, 2007, with supporting regulations, policies and procedures. In 2007-2008, 52 people obtained citizenship under this provision. A second Bill, C-37, An Act to Amend the Citizenship Act, was introduced to address the situation of people who lost or never had Canadian citizenship because of outdated provisions in existing and former legislation. It received Royal Assent in April 2008 and will come into effect by April 2009. Following the Minister’s announcement in January 2007 to address the legislative gaps filled by Bill C-37, and in anticipation of its passage, CIC implemented operational policy and procedures, and processed 93 applications for a discretionary grant of citizenship in 2007-2008 for individuals who had been residing most of their lives in Canada and had a reasonable but mistaken belief they were Canadian citizens.

Citizenship Processing and Program Delivery

CIC strives to improve the processing of citizenship grant and proof applications. However, the ability to process applications is linked to the amount of resources allocated to these activities. In 2007-2008, CIC continued to identify and implement sustainable solutions to improve service to citizenship clients as a means of addressing the ongoing high demand for citizenship services that exceeds the Department’s production capacity under current funding levels. Two-year funding received in 2005-2006 and 2006-2007 helped reduce processing times. However, with the expiry of the funding in March 2007, processing times and inventory levels have begun to rise.

As a result, CIC processed 22 percent fewer applications in 2007-2008 than in the previous year. In 2007-2008, Canada welcomed 183,464 new citizens. This is noticeably lower than the 2006-2007 figure of 244,108 new citizens. The same applies to the number of proofs that were issued. The number of proofs issued in 2007- 2008 was 43,849 in comparison to 69,976 for the previous year. Proof applications for the next three years are projected to be in the range of 60,000 to 65,000 per year, while processing capacity will remain at 38,000 per year. As the number of applications received will exceed the capacity, the inventory for proofs will also increase.

In March 2007, CIC conducted a review to improve the processing of citizenship applications and client service. Building on this initiative, a pilot project was started in January 2008, in which the testing and verification of client documents would occur simultaneously and early in the citizenship adult grant process to minimize incomplete applications and to advise applicants of their eligibility so that delays could be avoided later in the process. The pilot will be evaluated for potential efficiencies, improvements to client service and reduction of processing times.

Promotion of Citizenship

Citizenship promotion activities are an important instrument for the continued integration of newcomers and new citizens into Canadian society. Following the successful launch of the 60th anniversary of citizenship held at the Grand Hall of the Supreme Court of Canada on February 15, 2007, activities were undertaken throughout the fiscal year. Canada Day ceremonies across the country focused on the 60th anniversary theme, including a ceremony on the grounds of Rideau Hall on July 1 involving the Minister of Citizenship and Immigration and the Governor General as well as a Sunset Ceremony held in partnership with the RCMP. Canada’s Citizenship Week is an annual event held the third week of October to provide an opportunity for all Canadians to reflect on the value of citizenship, the meaning of being Canadian, and the rights, privileges and responsibilities of citizenship. During this time, at a CBC event in Toronto, approximately 400 new citizens took the oath of citizenship. Special ceremonies featuring the close of the 60th anniversary theme were held during Veteran’s Week in November 2007.

The 60th anniversary served as a means of engaging new partners in the Citizenship Program, including Parks Canada and the Canadian War Museum. Promotional products were developed for the year including lapel pins, pencils, banners, programs and videos. Much of the work done for the 60th anniversary celebrations will be used to advance the enhanced ceremonies initiative, especially as it relates to building partnerships, creating products and raising awareness of the program. A total of 2,897 citizenship ceremonies took place in 2007-2008, 24 percent of which were held in communities.

Other Programs and Services

Health Risk Mitigation

The ease of international travel and the volume of immigrants to this country have an impact on Canadians’ health and their health system. In 2007- 2008, CIC continued to focus on developing effective health risk mitigation strategies that take into consideration the risks associated with changing immigration patterns and the implications of emerging and re-emerging infectious diseases. The Department has developed and implemented immigration and public health policies and strategies, including a strategic multi-year action plan for tuberculosis risk mitigation. Also, to prevent an undue burden on Canadian health and social services, CIC has updated the cost threshold to determine excessive demand and developed operational directives on excessive demand on social services.

In January 2008, CIC implemented a new policy and guideline on active tuberculosis data gathering and reporting. Overall, this initiative is intended to improve the effectiveness of the immigration health program in protecting the public health of Canadians, and to strengthen future tuberculosis policies and maintain program integrity. Since the policy’s implementation, CIC’s capacity to monitor active tuberculosis cases found during the immigration medical examination has improved significantly, with about 80 such cases identified from January to April 30, 2008.

As part of overall refugee management in the Department, CIC developed a refugee health management program for the Karen refugee group that also focused on public health risks and increased linkage with provincial and territorial public health authorities. An evaluation was conducted of the effectiveness and validity of tuberculosis management for the first wave of Karen refugees who arrived in 2006 and early 2007. The evaluation confirmed the need for a risk-management approach for this population and has led to improvements in pre- and post-arrival tuberculosis management for subsequent waves of Karens. An overall refugee health risk mitigation policy is being developed for all refugee groups.

In 2007, CIC reviewed approximately 500,000 immigration medical examinations for applicants, including original medical exams and extensions. To ensure effective immigrant medical examination program management, CIC monitors this work with monthly operational reports.

A Designated Medical Practitioners Management Framework Roadmap was developed during 2007-2008, with the objective of creating standards and procedures to improve the integrity of the Designated Medical Practitioners Program. In addition, a Quality Assurance Committee has been established with intergovernmental partners to develop standards and procedures for the audit of shared designated medical practitioners, radiology centres and laboratories.

The Post-Arrival Management Unit has been engaged in multiple consultations with public health authorities and port-of-entry officials, and participated in expert committees to determine program improvement strategies for improving compliance with medical surveillance. Initiatives have been developed to streamline reporting processes and improve data management. Quality assurance strategies have been developed that include quarterly reviews of all non-compliant applicants and all applicants landing/arriving with conditions requiring medical surveillance. An evaluation of the Medical Surveillance Program was initiated in 2007-2008 and will be completed in 2008- 2009; it is expected to form the basis for further improvements.

CIC continued to strengthen public health linkages at the provincial and territorial level on such issues as refugee health management and medical surveillance, and federally with PHAC on immigration and public health. The Department also worked closely with international health partners via the Intergovernmental Immigration Health Working Group, which is composed of members from the United States, Australia, the United Kingdom and New Zealand.

The Global Case Management System

The Global Case Management System (GCMS) is a critical component of the infrastructure that will help CIC accomplish its strategic outcomes and priorities. The GCMS is a secure, reliable and efficient case management tool that will integrate citizenship, immigration and enforcement data worldwide.

The GCMS will significantly change the way CIC and the CBSA do business. A unique client identifier will link all clients’ interactions with both organizations from their first contact with a mission right through to an application for citizenship or a final removal from Canada. Ultimately, it will help streamline operations, standardize business practices and improve client service across both organizations.

Since the GCMS project was launched in June 2000, CIC has faced a number of challenges affecting its development. Following recommendations from various independent reviews, CIC proceeded in 2007-2008 with a rigorous assessment of the project to confirm its status and the quality of deliverables, and to investigate alternate options for completion.

The options analysis concluded that the GCMS project should be completed with a reduced scope and that it should focus on systems used by visa offices overseas, provide considerable business value, capture most of the departmental case management work flow, and deliver the bulk of functional capacity required for all application types that can be used for inland processes. The Department continues to work with other government agencies and partners to ensure the project is completed successfully. Supplementary information on the GCMS can be found at www.tbs-sct.gc.ca/dpr-rmr/st-ts-eng.asp.

Research

Objective and timely research is a condition for making informed decisions on policy action and program development. CIC’s research activities focus on three key areas: ongoing investment in data sources; research and analysis that support evidence-based policy and program development at federal, provincial and territorial levels; and knowledge transfer. In April 2007, the Department implemented a broader mandate to disseminate research products, strengthen partnerships, respond to departmental research and information needs, and build capacity.

In 2007-2008, CIC continued to invest resources in major data sets, including the Longitudinal Immigration Database (IMDB), the Citizenship Language Survey, the World Values Survey and the Census. In addition, the Department continued to work closely with Statistics Canada to explore the feasibility of using existing databases to study return and onward migration. Labour Force Survey data were released, fostering a better understanding and monitoring of immigrant participation in the labour market.

CIC continued to monitor the economic outcomes of immigrants. It completed a study of the economic and social integration of immigrants and refugees in Canada as well as a report highlighting health-care utilization among sponsored parent and grandparent immigrants to Canada. CIC’s Citizenship Language Survey was also completed, and analysis of the results is under way. The redevelopment of the IMDB was advanced to enhance its accessibility, and temporary resident reporting methods were updated for more effective monitoring of the transitions to permanent residencies.

Research activities based on the 2006 Census have also been initiated to improve our understanding of immigrant-related issues, including immigrant settlement patterns, labour force participation, immigrant incomes and earnings, education and housing.

CIC continued to expand the range of information available to the public through the annual publication of Facts and Figures; Immigration Overview: Permanent and Temporary Residents 2006.[note 31] Two regional profiles for Atlantic Canada and Ontario were also completed.

Metropolis

Following the renewal of the Metropolis Project[note 32] in 2006-2007 for a third five-year phase (2007-2012), a new governance structure was implemented which involved establishing new national committees and recruiting six policy priority leaders. In addition, a new research program with a stronger focus on knowledge transfer was required. The Project Secretariat consequently designed and launched the first national Metropolis research competition which focused on the question, “How do the major challenges faced by immigrants, as they settle in Canada, change over time?”

For the first time the Metropolis Project Secretariat participated–in cooperation with the Australian Multicultural Foundation, Monash University and the Monash Institute for the Study of Global Movements–in the organization of an international Metropolis conference in the southern hemisphere: the 12th International Metropolis Conference held in Melbourne, Australia, from October 8 to 12, 2007. The conference theme was “Migration, Economic Growth and Social Cohesion.” There were 700 delegates from Australia and around the world, including more than 100 from Canada (www.metropolis2007.org).

Metropolis produced an edition of its newsletter, the Metropolis World Bulletin, on the topic of social cohesion, and three special magazine issues of Our Diverse Cities. One issue was entitled “Cities and Immigrant Integration: The Future of Tier Two and Three Centres.” The others concerned Ontario and the Atlantic region respectively, and are the first two parts of a series with a regional focus.

Metropolis organized a session entitled “Divided Loyalties? Transnationalism and the Meaning of Citizenship in the 21st Century” as part of its Metropolis Presents series, a policy-research symposium on “Policing, Justice and Security in a Diverse Canada: Building an Empirical Evidence Base” and another symposium on temporary migration, “Should I Stay or Should I Go?” Metropolis also held brown bag sessions on “Return on Investment or Return Migration: New perspectives on migration from Hong Kong to Canada (and back again)”; “Perspectives on Protection: Reflections on the Canadian Refugee System”; and a series of six sessions on citizenship policy research. More information on Metropolis’ public events is available at canada.metropolis.net/events/index_e.html.

In partnership with the Canada School of Public Service, Metropolis also launched the first of a series of armchair discussions that are webcast to public servants and other audiences. The first involved a discussion of immigration and mental health, and included online participants from the United States and Portugal.

There were three meetings each of the National Metropolis Committee and the Interdepartmental Committee. The Joint Committee and the International Steering Committee each met twice. There were also six policy priority domain meetings that involved the priority leader, the related domain leaders from the centres, and officials from the funding departments with a specific interest in the policy area. The five Metropolis Centres of Excellence continue to develop research, contributing to the growing number of articles, books and academic conference presentations generated within the Metropolis Project.

Gender-Based Analysis at CIC

Under IRPA, CIC is accountable to Parliament for conducting gender-based analysis (GBA) of the impact of the Act and its regulations. The Department developed a Strategic Framework for Gender-Based Analysis at CIC for 2005-2010. The objective of the framework is to integrate GBA into CIC’s work so that the Department can meet its reporting requirement through branch GBA plans and achieve its broader policy and program objectives and commitments regarding GBA. GBA training continued to be offered regularly, and 211 employees have taken this training since its inception in October 2002.

The third stage of the 2006 New Brunswick project on Francophone minority communities consisted of analysing the status and situation of immigrant women. The results were used as an awareness tool and to create a promotional document and resource directory, currently under review. A final report for the 2007 project activities is being prepared.

Gender was included as a criterion in the 2004 Results-Based Management and Accountability Framework for the Federal Skilled Worker Program. Initial results will be available in late 2008-2009. As well, the 2005 National Round Table recommended a gender-based analysis of the Live-in Caregiver Program (LCP). CIC has implemented this recommendation and continues to incorporate gender considerations into the ongoing review. Gender-based data will be included in the LCP data collection tools for reviewing the potential impacts of occupation-specific employment authorizations when live-in caregivers change employers in Canada.

In 2007, CIC conducted a GBA of orientation and Canadian life skills training services for resettled refugees available through RAP. The analysis identified gender-sensitive orientation services and gaps in current programming, and recommended improvements to orientation programs. An inventory was taken of existing gender-sensitive orientation services provided by service provider organizations, along with an analysis of available data. A GBA of the Pre-Removal Risk Assesment Program (PRRA) was also undertaken in 2007. The preliminary study found that PRRA has no significant differential impact on women and minors applying for protection through the program. Instead, it showed that clients have less and less limitation on their access to the PRRA Program. The full analysis will be completed in 2008.

As for the Safe Third Country Agreement, the proportion of female claimants at the border has been comparable to that of the total claimant population over the past six years. The increase in the percentage of minors among total claimants and border claimants can be explained by an increase in the number of families making a refugee claim at the border, where U.S.-born children accompany their parents who are third country nationals. This analysis continues to suggest that women and minors want to make asylum claims in Canada and were eligible to do so under the terms of the Agreement. Claims for refugee protection from persons who arrive at a Canadian land border port of entry from the United States are ineligible unless they fall within an exception. Forty-eight percent of border claimants who were not U.S. citizens and who were granted an exemption were female. This figure is very close to the percentage of females among total border claimants, which stands at 46 percent. The total number of unaccompanied minor refugee claimants rose to 58 persons in 2007, an increase of 18 percent compared to 2006, while the proportion of females among unaccompanied minor claimants decreased to 33 percent from 35 percent. This category will continue to be monitored closely.

In 2007-2008, analytical research and consultation helped to frame the modernized approach to settlement programming. The resulting framework has a single program authority with six settlement themes (needs assessment, support services, information and orientation, language and skills development, labour market participation, and community connections). Service provider organizations will be able to combine activities from more than one theme to better address the needs of various newcomer groups and support improved newcomer settlement outcomes.

During a field trial in 2007, biometric information was collected from about 18,000 persons, with a proportion of about 45 percent male to 55 percent female. A GBA of the image quality for both fingerprints and facial recognition indicated that the collection of biometric information from men and women generated about the same level of image quality, with slightly superior results for men due to the larger finger size. As the difference between men and women did not have an impact on the ability to use biometrics to match individuals, CIC does not plan on changing the way in which biometrics is captured based on gender.

For more information on GBA activities, please consult Section 6 of the 2007 Annual Report on Immigration.[note 33]

• Previous Page
• Table of Contents
• Next Page