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Section II – Analysis of Program Activities by Strategic Outcome

The following section highlights the results achieved for each of CIC’s three strategic outcomes and seven program activities. It also shows the Department’s planned and actual spending for 2009–2010 by program activity. Activities that contributed to more than one outcome or that are Department-wide in nature are addressed in the subsection Other Items of Interest in Section III.

Strategic Outcome 1: Migration that significantly benefits Canada’s economic, social and cultural development, while protecting the health, safety and security of Canadians

Immigration is essential to Canada’s economic development and plays a significant role in shaping Canadian society. It is to Canada’s benefit to continue to promote Canada as a destination of choice for talent, innovation, investment and opportunity by welcoming hundreds of thousands of permanent residents, temporary foreign workers, international students and visitors to Canada each year. CIC’s challenge is to manage this movement of people while balancing goals of economic, social and cultural development and protecting the health, safety and security of Canadians. In the face of considerable volumes of applicants in both the temporary and permanent immigration streams, CIC continues to explore strategies to manage the multiple priorities and goals of the Immigration Program.

The Action Plan for Faster Immigration[note 10] was introduced in the fall of 2008 and has seen significant progress toward the achievement of the Government of Canada’s immigration goals. Skilled workers are selected based on their ability to work in Canada, because of arranged employment; prior experience in Canada as students or temporary foreign workers; or possession of skill and experience in one of the in-demand occupations. CIC has reduced the pre-February 27, 2008, backlog of Federal Skilled Worker (FSW) applications by over 40 percent and issued more than 27,000 visas for new applications received after that date. As of March 31, 2010, the overall FSW inventory, which includes those applications received both before and after February 27, 2008, has been reduced by 16 percent. However, shifts in labour market projections, rising intake of new FSW applications and a desire to respond to comments by the Auditor General prompted an exploration of options to update Ministerial Instructions to ensure sustained progress on the Action Plan for Faster Immigration.

CIC maintained its commitment to family reunification. Following the January 12, 2010, earthquake in Haiti, CIC introduced special immigration measures[note 11] for those directly and significantly affected. CIC reunited families affected by the earthquake through early admissions and priority processing measures, as well as successfully uniting more than 200 children in the adoption process with their adoptive parents in Canada within 6 weeks. These efforts to unite persons in situations of distress with their family members in Canada are part of the humanitarian tradition that CIC upholds.

CIC continued to consider requests for humanitarian and compassionate considerations. In addition, a public policy was developed to support special immigration measures to facilitate immigration to Canada for certain local staff supporting the Canadian military mission in Kandahar, Afghanistan.

Achievement of Immigration Levels for 2009

Each year, under section 94 of the Immigration and Refugee Protection Act, the Minister of Citizenship and Immigration Canada 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 projected admission range for 2009 was 240,000 to 265,000 and, at the end of that year, a total of 252,179 permanent residents had been admitted to Canada. This represents a 2–percent increase from 2008.

CIC maintained high immigration levels in 2009 in preparation for the forecast future declines in labour force growth. Immigration is projected to account for all net labour force growth in Canada within the next decade and all population growth within the next two decades. Economic immigration continued to account for roughly 60 percent of total admissions in 2009. The Department continued to balance economic, family reunification and humanitarian goals.

New Permanent Residents Admitted in 2009, by Immigration Category (Compared with the Immigration Plan)

Immigrant Category	2009 Ranges	Admitted
		Number	Percentage[note a]
Federal Skilled Workers	68,200–72,000	64,611	25.62
Quebec-selected Skilled Workers	28,100–29,100	31,351	12.43
Federal/Quebec Business	11,000–12,000	12,159	4.82
Live-in Caregivers	8,000–10,000	12,454	4.94
Provincial Nominees	20,000–26,000	30,378	12.05
Canadian Experience Class	5,000–7,500	2,545	1.01
Total Economic	140,300–156,600	153,498	60.87
Spouses, Partners and Children	50,000–52,000	48,021	19.04
Parents and Grandparents	18,000–19,000	17,179	6.81
Total Family	68,000–71,000	65,200	25.85
Government-assisted Refugees	7,300–7,500	7,425	2.94
Privately Sponsored Refugees	3,300–4,500	5,036	2.00
Protected Persons In-Canada[note b]	7,000–9,000	7,204	2.86
Dependants Abroad	6,000–6,200	3,181	1.26
Total Protected Persons	23,600–27,200	22,846	9.06
Humanitarian and Compassionate — Public Policy	8,000–10,000	10,522	4.17
Permit Holders	100–200	112[note c]	0.04
Total Other	8,100–10,200	10,634	4.22
TOTAL	240,000–265,000	252,179[note d]	100.00

Source: Citizenship and Immigration, Facts and Figures 2009.

a. Percentage based on the actual total.

b.“Protected Persons in Canada” refers to permanent residents in the refugee category who have had their refugee claims accepted and who subsequently applied for and were granted permanent resident status in Canada.

c. This number also includes individuals in the categories Deferred Removal Orders and Post-determination Refugee Claimants in Canada.

d. The total also includes category Not Stated.

Program Activity 1 — Immigration Program[note 12]

2009-2010 Financial Resources ($ Millions)			2009-2010 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
127.3	160.3	157.5	1,299	1,198	101

Explanation of change: Total authorities increased by $33.0 million over planned spending, primarily due to additional statutory requirements related to refunds of previous years’ revenues for the Right of Permanent Residence Fee. Total authorities also include additional funding for collective agreements and other salary-related costs.

Actual expenditures were lower than total authorities by $2.8 million, due to lower than planned spending on backlog reduction.

Expected Result
The arrival of permanent residents who contribute to Canada’s economic, social and cultural development; and the protection of the health, safety and security of Canadians

Performance Indicators	Targets	Performance Status	Performance Summary
Labour market participation—employment rates for very recent immigrants (individuals who have been immigrants to Canada for less than five years) compared with the Canadian average	Improvement in participation rate relative to Canadian average by 2012	Met all	The average labour market participation of very recent immigrants (individuals who have been immigrants to Canada for less than five years) increased slightly (from 58.4% to 58.6%) within the January 2009 to January 2010 period, whereas the average labour market participation of Canadian-born persons decreased within that same period (from 64.2% to 62.6%). [note 13]
Number of permanent resident arrivals by category according to Immigration Plan	Admission ranges are set in the 2009 Immigration Plan	Met all	CIC achieved the total admission range for 2009 based on the Immigration Plan. Of the 252,179 new permanent residents admitted, there is variance within the immigration categories. Economic immigration exceeded the admission range and accounted for the majority of admissions. Family Class and Protected Persons were slightly below the projected range. Humanitarian and Compassionate Grounds/Public Policy admissions exceeded the projected range. [note 14]
Number of inadmissibility reports resulting in removal orders against permanent residents	Anticipated: 300 orders (based on annual historical record)	Met all	There were 961 removal orders issued to permanent residents of Canada during 2009 as a result of an inadmissibility report prepared by the Department.

Performance Analysis

Work continued in 2009–2010 to modernize the Immigration Program within the context of broader service modernization at CIC. Detailed analysis on the effects of the November 2008 Ministerial Instructions gained momentum after the tabling of the Auditor General’s fall 2009 report [note 15], which raised concerns over the potential for the creation of new backlogs and lengthening processing times in the Federal Skilled Worker (FSW) Program. The analysis included consultations with provinces and territories, key stakeholders and the public in early 2010, as well as an options analysis that led to the publication of new Ministerial Instructions in the Canada Gazette on June 26, 2010. [note 16]

CIC continued to explore ways to improve the efficiency and effectiveness of business programs, in cooperation with the provinces and territories, particularly given the impacts of the inclusion of business streams under the Provincial Nominee Programs (PNPs). In Quebec, the Canada–Quebec Accord requires that certain elements of the business programs be harmonized.

In 2009–2010, the first-ever Provincial Nominee Agreement with the Northwest Territories was signed. Canada has now signed PNP agreements with nine provinces and two territories, giving them the authority to nominate for permanent resident status foreign nationals who will help meet their specific economic needs. CIC co-chairs a federal–provincial–territorial working group on economic immigration that promotes the exchange of views and information on the PNP and other areas of mutual interest.

Work is continuing on an evaluation to assess the early outcomes of skilled worker immigrants selected under the new criteria introduced in the Immigration and Refugee Protection Act in June 2002, with results expected in fall 2010. This evaluation will provide the first comprehensive data on how the program is performing and point to priorities for change to ensure this program meets Canada’s economic needs.

CIC continued to propose regulatory changes to the Immigration and Refugee Protection Regulations that aim to improve the integrity of the Family Class program. CIC also developed legislative and regulatory proposals to address the alleged misconduct of immigration consultants.

CIC continued to work with the Canada Border Services Agency (CBSA), the Royal Canadian Mounted Police and the Canadian Security Intelligence Service (CSIS) to ensure appropriate background screening of immigrants for security and criminality. A particular focus has been on ensuring appropriate screening of applicants under the Afghanistan special measures public policy initiative. The relationship with CIC’s security partners focused on enhancements by tightening or loosening screening requirements based on the ongoing assessment of the security environment, and seeking ways to streamline screening. CIC has also been supporting CSIS through presentations to new CSIS recruits to ensure that they have a better understanding of the citizenship and immigration process.

The Permanent Resident Card is the official proof of permanent resident status and continues to be a key part of the Government of Canada’s commitment to border security. In practical terms, the card provides an effective and reliable verification of a traveller’s status. The new version of the Permanent Resident Card was first issued on August 24, 2009. The design has been refreshed incorporating state-of-the-art security features so that it continues to safeguard the integrity of Canada’s immigration programs and fully complies with International Civil Aviation Organization requirements.

Lessons Learned

Despite the continued economic downturn, interest continues to grow in the Immigrant Investor Program, resulting in growing inventories of applications. The approval rates for Business Class immigrants, however, remain low (approximately 50 percent). CIC will continue to propose regulatory changes to the Immigration and Refugee Protection Regulations that aim to improve the alignment of program outcomes with program objectives.

The increase in provincial nominees is an indication of the growing importance of the program in meeting the specific economic needs of the provinces and territories. The admission range for provincial nominees in the 2010 annual levels plan has been increased to accommodate further growth in this program. In fall 2010, CIC will begin a national evaluation of the PNP to determine if the program is meeting its objectives.

As noted above, an evaluation is currently under way on the Federal Skilled Worker Program, with a final report now expected in fall 2010. This will be the first formal evaluation of the points system since implementation of the Immigration and Refugee Protection Act in 2002.

Benefits for Canadians

Canada and the Canadian economy benefit from the Immigration Program when immigrants in the economic stream have skills that align with Canada’s labour market needs. New immigrants enter the Canadian labour market more quickly, benefiting employers by reducing waiting times for workers with skills that are in demand. Canadians and permanent residents benefit when they are able to reunite with close family through family sponsorship. Immigrants’ economic success can foster a sense of belonging in Canadian society, which results in more meaningful social and cultural contributions. Through family sponsorship, Canadians and permanent residents are able to reunite with family members.

Recent changes will strengthen Canada’s economy by more effectively targeting the skills needed by Canadian employers, decreasing the federal skilled worker backlog and admitting more quickly those individuals with needed skills.

Program Activity 2 — Temporary Resident Program[note 17]

2009-10 Financial Resources ($ Millions)			2009-10 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
77.1	80.7	65.9	700	571	129

Explanation of change: Total authorities increased by a net amount of $3.6 million over planned spending primarily due to funding for new visa requirements.

Actual spending was $14.8 million less than total authorities, primarily due to lower than planned spending on the new visa requirements for Mexico and delayed spending on the Temporary Resident Biometrics Project.

Expected Result
The arrival of temporary residents who contribute to Canada’s economic, social and cultural development; and the protection of the health, safety and security of Canadians

Performance Indicators	Targets	Performance Status	Performance Summary
Number of foreign workers by skill level (arrivals)	Anticipated demand: 125,000 to 150,000 persons	Exceeded	Anticipated demand was exceeded (178,478) due to higher than expected need for foreign workers by employers, including in managerial and highly skilled occupations, despite the recent economic slowdown. Further, there was increased participation by foreign youth in the International Exchange Canada cultural exchange program of the Department of Foreign Affairs and International Trade. [note 18]
Number of foreign students by level of education (arrivals)	Anticipated demand: 75,000 to 78,000 persons	Exceeded	In 2009, anticipated demand was exceeded, with the arrival of 85,140 international students in Canada. [note 19]
Number of visitor visas issued	Anticipated demand: 820,000 visas	Mostly met	In 2009, Canada issued visitor visas and extensions to approximately 790,000 persons. The number of visitor visas issued in 2009 as a proportion of temporary resident applications processed remains high and similar to the number issued in 2008.
Number of temporary resident applications processed by category	Anticipated demand: 380,000 temporary foreign worker applications; 160,000 foreign student applications; 1,025,000 visitor visa applications	Mostly met	In 2009, CIC processed to a decision almost 1.6 million applications (in persons) for temporary residence. This included 376,646 temporary foreign worker applications, 195,890 student applications and 1,021,111 visitor visa applications. [note 20]

Performance Analysis

In 2009, CIC processed to a decision (including positive, negative and withdrawn) almost 1.6 million applications (in persons) for temporary residence. It also issued more than 1,053,000 visas, permits and extensions to support the high numbers of temporary residents admitted. In 2009–2010, CIC expanded the range of temporary resident applications that could be submitted electronically. Applicants who submitted electronically exceeded initial projections and their numbers continue to grow.

It is important to highlight that entries under temporary resident streams (workers, international students and visitors) are driven by demand and fluctuate from year to year. In 2009, CIC received visitor visa applications from over one million people, temporary foreign worker applications from almost 377,000 people, and student applications from about 196,000 people. Applications in temporary streams are often time-sensitive, and there are no planned targets (e.g., minimum or maximum number of arrivals) nor is there a mechanism to limit the number of applications received. As a result, changes in volumes for temporary streams can affect CIC’s overall processing capacity, increase processing times and constrain the ability to deliver on permanent resident targets. To ensure CIC delivers on permanent resident targets, CIC assigns locally engaged staff and temporary duty resources to alleviate additional seasonal pressures in the temporary resident streams.

After CIC imposed a visa requirement on Mexico in July 2009, CIC opened three visa application centres (VACs) in Mexico to enhance client service. VACs, managed by specialized commercial or service provider organizations, make services more accessible to clients; VAC services complement the services offered at Canadian visa offices. A VAC was also opened in Colombo, Sri Lanka, in June 2009 to deal with visa applications in that country.

In response to labour market demand, and further to the Government of Canada’s commitment in Advantage Canada[note 21] to improve the Temporary Foreign Worker Program to respond to employer needs, Canada welcomed 178,478 temporary foreign workers in 2009. While this number exceeds projected demand for 2009 (125,000–150,000), it nonetheless represents a 7-percent decrease from the number of temporary foreign workers in 2008 (192,519). This is probably due to the economic downturn resulting in less employment demand.

CIC continued to work with a range of partners on key issues related to the Temporary Foreign Worker Program. CIC and Human Resources and Skills Development Canada (HRSDC), in consultation with CBSA, prepared a package of regulatory amendments to establish authorities to help improve worker protection and ensure employer compliance with program requirements. The proposed regulatory changes were prepublished in the Canada Gazette for public comment. The development of changes to the Live-in Caregiver Program [note 22] improved protections for these temporary foreign workers as well. Bilateral agreements to improve cooperation on issues related to the program have been signed with Ontario and Alberta, and negotiations are under way with other provinces and territories. The work of the Labour Mobility Working Group under the Canada–Mexico Partnership continued with the implementation of pilot projects to facilitate the movement of workers from Mexico in the tourism/hospitality and construction sectors.

CIC set up an array of services to facilitate the temporary resident application and entry process for those participating in and working at the 2010 Olympic and Paralympic Winter Games. Supported by a framework of amended legislation, policies and procedures, this included:

• the development of a unique identity card that could be used as a multiple-entry visa;
• prescreening and system identification of approved applicants for facilitating border services;
• a special process focused on volunteer/unpaid workers; and
• a streamlined interdepartmental process for labour market opinions.

The efficient processing of an estimated 5,680 applications of the primary work force for the Games contributed to the overall success of these events. The facilitated processing of large numbers of applications for this work force was required, before and during the Games, to organize and coordinate the Games. This event demanded unprecedented planning, preparation, outreach and operational restructuring. CIC, in collaboration with its partners, used its funding to maximize client service by modifying its approach for processing work permits and incorporating features that covered client needs that could arise after entry into Canada (e.g. Social Insurance Number issuance, taxes, varying work dates).

International students bring significant economic benefits to Canada. A 2009 study commissioned by the Department of Foreign Affairs and International Trade found that international students in Canada contribute more than $6.5 billion a year to the Canadian economy through living expenses, tuition fees and other education-related expenses. The number of international students seeking education in Canada continues to grow. In 2009, 85,131 new international students entered Canada, representing a 7-percent increase from the previous year’s total of 79,536. Students at the post-secondary level make up the majority of new student flows, representing over half of all international students in Canada in 2009.

International students also represent a significant pool of workers during their stay in Canada, through their participation in work permit programs for international students. These include the Off-Campus Work Permit Program, a national program that allows international students at public colleges and universities, and some private degree-granting schools, to seek work off-campus, and the Post-Graduation Work Permit Program, which allows graduates from participating post-secondary institutions to gain valuable Canadian experience for up to three years. By providing them with opportunities to obtain work, international students gain the experience needed to apply for permanent resident status through the Federal Skilled Worker or Canadian Experience Class programs.

In collaboration with partners, CIC continued to successfully deliver key initiatives to help Canada maintain its competitive edge in attracting and retaining international students. After some policy and operational changes in 2008, demand for work permits increased, with 17,192 off-campus work permits and 15,432 post-graduation work permits issued in 2009—a 60-percent increase over 2007. In addition, on-line applications were made available for study permit extensions in Canada, off-campus work permits, post-graduation work permits and work permits for spouses of international students.

Budget 2008[note 23] addressed Canadians’ concern for border integrity and security by providing funding to introduce the use of biometrics data to verify the identity and travel documents of foreign nationals in the visa-issuing process. In 2009–2010, the Temporary Resident Biometrics Project extended its planning stage by one year to further elaborate requirements, engage industry and identify the best service delivery model. It is expected that this delay will be recovered during the implementation phase of the project, delivering the project on schedule in late 2012–2013. As a Treasury Board requirement, the project received its Amended Preliminary Project Approval in 2009–2010.

Lessons Learned

CIC has taken steps in response to recommendations from the Office of the Auditor General to implement mechanisms that would better ensure the integrity of the Temporary Foreign Worker Program and the protection of workers. Regulatory changes proposed in 2009 included introducing enhanced monitoring of employers’ compliance with program requirements and allowing the refusal of service in instances where the requirements have not been met.

Through the facilitation of temporary work permits for the 2010 Olympic and Paralympic Winter Games, CIC learned how to analyze peripheral work groups associated with large events that may require attention apart from the primary work force of the organizing committee. Many of these lessons will be helpful in planning for future large international sporting events, such as the 2015 Pan American Games in Toronto.

Benefits for Canadians

Canada continues to benefit from the contributions of temporary foreign workers, international students and visitors to our economy, society and culture. The high number of temporary foreign workers admitted has helped to generate growth for a number of Canadian industries by meeting short-term and acute labour needs that could not easily be filled by the domestic labour force. International students contribute economically as consumers and help to enrich the fabric of Canadian society and culture through their diverse experiences and talents. Once experienced and trained in Canada, certain temporary workers and international students represent a key talent pool to be retained as permanent residents through programs like the Canadian Experience Class. Tourists create a demand for services in the hospitality sector, and Canadian businesses capitalize on the specialized expertise of business visitors.

By strengthening identity management, the Temporary Resident Biometrics Project will enhance the security of Canadians by ensuring that only legitimate applicants gain entry to Canada and identifying criminals applying to re-enter Canada; improve the integrity of the Temporary Resident Program’s through enhanced admissibility screening; and facilitate processing of legitimate clients through biometric identifiers.

Strategic Outcome 2: International recognition and acceptance of the principles of managed migration consistent with Canada’s broader foreign policy agenda, and protection of refugees in Canada

Canada has played a leading role in bringing international attention to and advancing the international discussion on protracted refugee situations. More and more of the world’s refugees are in situations of displacement for longer periods of time with no prospect of resolution. In 2009, Canada worked very closely with the United Nations High Commissioner for Refugees[note 24] (UNHCR) and other states, playing a leading role in international negotiations, to draft a UNHCR Executive Committee conclusion on protracted refugee situations. By adopting this conclusion, the international community has signalled that it recognizes the importance of taking action to address these situations. Canada continues to apply the conclusion in a concrete manner through its commitment to resettle 5,000 Bhutanese out of Nepal over a three-year period, the second largest commitment in the world (after the United States and equal to Australia’s commitment).

Canada continues to maintain one of the world’s largest refugee resettlement programs, second only to the United States. Out of more than 20 resettlement countries, Canada alone annually resettles 10,000 to 12,000—or one out of every 10—of the refugees resettled globally. In response to ongoing domestic and international appeals for additional resettlement support to Iraqi refugees, the Department committed to increasing the number of resettlement spaces made available for this vulnerable population. Additionally, CIC conducted its first-ever on-line public consultations in 2009 on the immigration levels and mix which included refugee stakeholders, leading to more informed planning for 2010 regarding specific refugee arrival objectives. Mission-specific targets were increased for African, Iraqi and Iranian refugees for 2010 while CIC maintained a global program as requested by stakeholders.

One area of concern for Canada’s resettlement program has been the health needs of refugees arriving from extended periods of exile or from particularly traumatizing refugee situations. In 2008, CIC piloted a new tool to assess and capture information about refugees’ health needs that could affect their settlement experience; the Department expanded this pilot in 2009 to refugees resettled out of Syria, Jordan and the Horn of Africa.

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

2009-2010 Financial Resources ($ Millions)			2009-2010 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
4.0	3.0	2.3	18	7	11

Explanation of change: Total authorities were $1.0 million lower than planned spending, due to internal transfers to other program activities.

Actual spending was $0.7 million less than total authorities, primarily due to unspent funding for the International Organization for Migration contribution.

Expected Result
Canada influences the international policy debate as part of its responsibilities with respect to international migration and refugee protection

Performance Indicators	Targets	Performance Status	Performance Summary
Number and description of Canada’s participation in international meetings and events	CIC responds to ad hoc requests; not possible to forecast demand accurately	Met all	CIC’s Minister met with officials from 12 countries and with a number of international organizations (compared to five such meeting in previous years). The Minister also travelled to France and the United Kingdom to meet with counterparts. Subsequent meetings were held with France to discuss issues such as integration, selection, refugee reform and radicalization. Canada continued to play a leading role in the Global Forum on Migration and Development, a major global process that brings together more than 160 countries to discuss issues related to migration, development and human rights. In 2010 Canada worked closely with Mexico, which will host this year’s Forum. Canada continued to participate as an active member of the international resettlement community and hosted the 2009 Anti-Fraud Experts Group. Assistance and cooperation with community organizations and other states interested in expanding their own refugee protection capacity continued in 2009 in this regard; Japan and Brazil benefited from Canadian expertise in refugee resettlement. Canada participates in all UNHCR Standing Committee and Executive Committee meetings, sending mission and headquarters staff. Canada contributed to the High Commissioner’s Dialogue on International Protection, which focused on the subject of urban refugees in 2009. In June 2009 Canada hosted the meeting of the Five Country Conference in Ottawa. CIC plays a lead role in several multilateral fora. [note 25] Bilaterally, CIC continued to build relations and advance Canadian priorities through engagement with officials from eight countries. [note 26]
Number and description of new or renewed international agreements and/or other arrangements led, undertaken or established (multilateral, regional, bilateral, including international organizations)	CIC responds to ad hoc requests; not possible to forecast demand accurately	Met all	Canada and Mexico launched ongoing high-level dialogue through the CIC-SEGOB (Mexico Ministry of Interior). Canada accepted the role of co-chair on the Migration Committee at the Organization of American States. Canada agreed to provide technical assistance to Argentina and Costa Rica on immigration and refugee protection issues. In Europe, CIC revived the high-level Joint Consultations on Migration and Asylum. with the European Commission and widened the scope to include discussion of information sharing, future of migration and visas, as well as economic impacts of migration. CIC contributed extensively to Canada’s preparation and response to the United Nations (UN) Universal Periodic Review process. CIC contributed to Canada signing the UN Declaration on the Rights of Disabled Persons. At the 64th UN General Assembly CIC provided extensive input to develop Canada’s position on resolutions related to the Convention on the Elimination of All Forms of Discrimination against Women, counterterrorism, and the protection of migrants. In the World Health Organization, CIC contributed to Canada’s input into the code for ethical recruitment of health officials.

Performance Analysis

In 2009–2010, CIC advanced, led and coordinated Government of Canada positions and activities related to international migration policy. The Department also interacted with representatives of foreign governments and international stakeholders in presenting and promoting Canadian positions on migration issues. Annually, CIC continues to participate directly or by assisting other departments in roughly 80 international migration-related events, including summits, working group meetings, workshops and seminars. Through the Interdepartmental Migration Group and other consultation, CIC provided counsel on migration issues to a wide range of departments.[note 27] Finally, CIC continued to work closely with partner departments in managing Canada’s relationship with the UNHCR for all refugee-related issues.

The Migration Policy Development Program (MPDP) continued to provide funding to organizations active in the areas of migration policy development and research, promote research activity and public discussion on migration issues, encourage information exchange between states, and strengthen intergovernmental relationships and international networks.

CIC made significant progress with its strategy for international engagement, approved by senior management early in 2010. The strategy is a vehicle for overseeing organization and management of international activities, establishing guiding themes, setting priorities, and developing systems to share migration information and intelligence.

To meet the priorities identified in the strategy, CIC:

• cooperated with U.S. counterparts on developing a strategic approach to screening entry to North America;
• worked to maintain and strengthen a positive relationship with Europe in the face of challenges arising from visa requirements for the European union members;
• led interdepartmental efforts to advance cooperation between Canada and Mexico; and
• continued deliberate and assertive participation in selected international processes such as the Global Forum on Migration and Development, International Organization for Migration, Intergovernmental Consultations on Migration, Asylum and Refugees, United Nations General Assembly, the UNHCR, and Organisation for Economic Co-operation and Development to influence the agenda of these organizations consistent with Canada’s interests.

Canada continued to work through the Working Group on Resettlement to advance CIC’s interest in expanding resettlement space in other countries. Canada’s reputation for solid settlement support for resettled refugees was again demonstrated in 2009. CIC’s funding to a Canadian non-governmental organization (NGO) resulted in assistance to a Brazilian NGO engaged in supporting refugees arriving in that country. In 2009, CIC participated in exchanges with the Government of Japan as it undertook to establish a new resettlement program. Inaugurated in 2009, this is the first such program in the region that could lead to a future expansion of protection space through resettlement in Asia.

Lessons Learned

The international migration agenda has expanded considerably over the past few years. The Global Forum on Migration and Development brings with it, for the first time, a global discussion on migration issues. CIC was closely involved since the inception of the Forum to give practical, state-based direction to these discussions and to give voice to the full range of global migration issues, not just the restricted view of movement from developing to developed countries.

At the same time, CIC continues to participate actively in the more contentious discussions within the United Nations. Major factors like demographic change, emerging economies and new technologies are beginning to have a sizable impact on patterns of migration and on assumptions related to labour supply and demand. This in turn is fuelling an increase in international discussion of the nature of migration itself and the capacity of governments to manage migration. To respond to this increased complexity, CIC needs take a more strategic approach to overseeing its engagement in international discussions to ensure that its objectives are carefully formulated and advanced in international fora and, more basically, to manoeuvre its way through the glut of migration-related activities. With the explosion of information surrounding migration, there is also a need to develop better ways of managing and sharing this information with colleagues.

Canada’s ability to influence the international community to expand protection space through resettlement highlights the importance of developing a longer-term agenda and strategy focused on particular countries and in cooperation with the UNHCR. In 2010, Canada, with the UNHCR and others, will undertake a review of the structure and format of annual tripartite consultations on resettlement to ensure concrete bilateral relationships can continue to be developed that will lead to the expansion of protection space.

Benefits for Canadians

Through active and targeted engagement bilaterally, regionally, and in international fora, Canada can promote and protect its economic, social and cultural interests, as well as the capacity to travel and conduct trade internationally. Policies and programs that affect the international movement of people—across Canada’s borders and outside them—have a direct bearing on the safety and security of Canada and Canadians at large, whether they are at home or travelling abroad.

Canada, as a recognized international leader in migration management, has the opportunity and responsibility to play a strategic role in influencing the global dialogue on migration.

Canada demonstrates leadership in the areas of immigrant selection and integration, citizenship, refugee protection, human rights and the promotion of cultural diversity. Canada’s experience and commitment represent an extremely important contribution to a global discussion on migration, particularly in light of less experienced voices, many of which are impatient with migration’s binding system of rules, that have recently come to the table. At the same time, Canada’s participation in the international agenda on migration can contribute to future policy development at home. Through awareness of changes taking place in other countries, some of which are important as source countries for immigrants, through sharing views with officials in other countries who are also looking at innovative approaches to policy, CIC is able to keep its policy makers informed about important developments elsewhere. Finally, Canada needs to maintain close involvement with its key bilateral allies to ensure that its immigration policy continues to work toward its wider interests.

Program Activity 4 — Refugee Program[note 28]

2009-2010 Financial Resources ($ Millions)			2009-2010 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
106.3	121.4	118.7	153	307	(154)

Explanation of change: Total authorities increased by $15.1 million over planned spending, primarily due to an internal transfer to support the Interim Federal Health Program and funding provided through Supplementary Estimates for Canada’s response to the Haiti earthquake.

Actual spending was $2.7 million less than total authorities, primarily due to lower than projected costs for the Interim Federal Health Program related to CIC’s response to the Haiti earthquake.

Expected Result
Persons in need of protection and Convention refugees[note 29] are protected by Canada by upholding our international obligations and humanitarian traditions, while protecting the health, safety and security of Canadians

Performance Indicators	Targets	Performance Status	Performance Summary
Number of protected persons and Convention refugees granted permanent residence by category	Target ranges for 2009: Government-assisted Refugees (GARs): 7,300–7,500 Privately Sponsored Refugees (PSRs): 3,300–4,500 Protected Persons in Canada: 7,000–9,000 Dependants Abroad: 6,000–6,200	Mostly met	In 2009, Canada exceeded the upper end of its total resettlement refugee targets, providing permanent residence to 7,425 GARs and 5,036 PSRs. In addition, 7,204 protected persons were offered protection in Canada. The number of dependants abroad fell short of target, with 3,181 persons granted residence, due to lower landings of protected persons in Canada. [note 30]

Performance Analysis

In 2009–2010, CIC continued to protect those in need, both in Canada and overseas, while protecting the health, safety and security of Canadians. As well, the Department continued to work with partners to ensure that its programs are being delivered efficiently and effectively while developing policy and program options to streamline the current in-Canada asylum system while effectively managing the resettlement program.

To deal with rising numbers of refugee protection claims over the past few years, CIC took significant measures: repealed one of the exceptions under the Canada–U.S. Safe Third Country Agreement,[note 31] imposed a visa requirement for nationals of Mexico, and reimposed a visa requirement for nationals of the Czech Republic. Canada’s refugee claim intake has declined since these measures were introduced in July 2009.

In total, Canada received 33,235 refugee protection claims across the country in 2009, a reduction of 10 percent over 2008. The top five source countries for refugee claims in Canada during 2009 were Mexico, Hungary, Colombia, Czech Republic and People’s Republic of China, accounting for 48 percent of all refugee claims in Canada. The July 2009 measures have reduced the number of asylum claims received and have eased pressure on the system. In addition, during the last year, CIC took significant steps to manage vacancies at the Immigration and Refugee Board (IRB) to improve productivity. Despite the changes, processing times at the IRB remain long. While effective in the short term, these measures do not provide a sustainable or appropriate solution to the current system’s challenges.

To advance asylum program effectiveness and the integrity of North American asylum systems, Bill C-11, the Balanced Refugee Reform Act, was introduced in Parliament on March 30, 2010, to reform Canada’s asylum system. The changes contained in Bill C-11 will result in faster protection decisions and quicker removals of failed refugee claimants. All eligible refugee claimants will continue to receive a full and fair hearing by the IRB based on their individual circumstances. [note 32]

With regard to the resettlement program, Canada continued to follow through on its multiyear commitment to resettle up to 5,000 Bhutanese refugees and 12,000 Iraqis as part of multilateral exercises.

Although CIC had planned to complete a program evaluation of the Government-assisted Refugees and the Resettlement Assistance Program, work did not begin in 2009–2010. The evaluation is planned for 2010, with results to be reported at the end of 2010–2011. CIC did extend the terms and conditions of the Resettlement Assistance Program to ensure continuity of services.

As part of ongoing work to improve resettled refugees’ outcomes, CIC consulted with refugee stakeholders, domestic service providing organizations, the International Organization for Migration and the UNHCR. This engagement will inform broader departmental efforts to develop pan-Canadian indicators to measure success in the future. It will also assist in developing client-centred Canadian Orientation Abroad materials, leading to improved understanding of Canadian values and culture, and settlement needs assessment tools. Settlement needs assessment tools capture information about health conditions that may affect the settlement experience; these tools are currently being piloted in two countries. The information gathered is shared with appropriate agencies on arrival of the refugees to improve settlement outcomes.

Finally, CIC engaged with Canadian academics and NGOs to discuss Canada’s approach to refugees in protracted situations. Increased understanding of these situations is now being used to inform CIC’s work in this area.

Lessons Learned

Negotiating exit permits for individuals out of Pakistan, Thailand and Turkey has proved time consuming and, in some cases, unsuccessful. Delays in departures of previously selected Karen refugees out of Thailand necessitated reallocation of refugee targets to other missions. To address this issue, clear guidelines have been issued to applicants about the requirements to be met in some of these regions, particularly Thailand.

With over 11 million refugees under direct UNHCR care and complex operating environments, choosing which refugees to focus CIC’s resettlement program on is challenging. CIC needs to ensure wait times do not lengthen and that Canada can maintain some flexibility to respond to emerging crises. To do so, the Department collaborates with the UNHCR to advise in advance how many new persons may be referred to meet objectives for the following year. Refugee stakeholders were included for the first time in public consultations on immigration levels and mix in June 2009 and helped inform the Department’s approach to target setting for resettled refugees for 2010. Continued engagement of refugee sponsors in Canada will be critical to ensuring Canada’s resettlement objectives can be met effectively in the future. Shrinking humanitarian space may also need to be considered when planning locations from which Canada is able to operate in safety.

Measuring success requires ongoing collaboration among various sectors. Discussions in 2009 with stakeholders revealed that many engaged in refugee settlement already conduct extensive performance measurement activities. Agreement on which indicators are the most efficient and effective measure of refugee outcomes, combined with coordinated data collection, will minimize the reporting burden on private citizens and service providers, as well as streamline the data collection process.

Benefits for Canadians

CIC’s involvement in international fora, such as the UNHCR Standing Committee and Executive Committee meetings, helps maintain its ability to share insights and experience on refugee issues, demonstrate leadership, and strengthen networks with other states and key stakeholders.

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

The successful settlement and integration of newcomers is an important objective of CIC. To maximize the economic, social and cultural benefits of immigration, newcomers must be able to participate fully in Canadian society and have access to the quality of life in Canada. As immigrants and refugees seek to overcome challenges specific to settling in a new country, settlement programming provides support to maximize newcomers’ potential and realize their aspirations, eventually leading to their full integration into Canadian society, including citizenship. CIC’s vision for effective integration involves a commitment, along with key partners, to deliver the highest-quality settlement, immigration, citizenship and multiculturalism programs that are efficient and responsive to community needs. Resettlement assistance provides additional supports in the early stages of resettled refugees’ introduction to life in Canada, further maximizing their longer-term integration into Canadian society. In Canada, welcoming newcomers and assisting with settlement and longer-term integration is a shared effort that demands partnerships among the federal government, provinces, territories, employers, service providers, community organizations and others.

CIC’s Multiculturalism Program aims to better support the integration of newcomers into Canadian society through three new objectives: building an integrated, socially cohesive society; improving the responsiveness of institutions to the needs of a diverse population; and actively engaging in discussion on multiculturalism and diversity at the international level.

The acquisition of citizenship is a significant step in the integration process of newcomers. Granting citizenship to eligible applicants provides established newcomers with the full range of rights of Canadian citizenship, and encourages them to fulfill the responsibilities of citizenship. Citizenship acquisition also fosters a greater sense of belonging to Canada for newcomers, and allows them to share a broader sense of citizenship with all Canadians. CIC continuously strives to enhance the meaning of Canadian citizenship, protect its value, promote civic participation and encourage the expression of Canadian citizenship. Through its Citizenship Action Plan, CIC is seeking to further promote citizenship and strengthen the value and meaning of citizenship. As part of the Action Plan, CIC released a revised citizenship study guide: Discover Canada: The Rights and Responsibilities of Citizenship in 2009.[note 33] This guide provides newcomers and all Canadians with fundamental information about Canada and Canadian citizenship. The Action Plan also aims to enhance the integrity of the citizenship program by ensuring that citizenship applicants meet legislative and regulatory requirements before being granted citizenship.

Program Activity 5 — Integration Program[note 34]

2009-2010 Financial Resources ($ Millions)			2009-2010 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
921.5	975.6	965.7	400	343	57

Explanation of change: Total authorities increased by a net amount of $54.1 million over planned spending, primarily due to additional funding through Supplementary Estimates for the Settlement Program.

Actual spending was $9.9 million less than total authorities, primarily due to lower than planned Settlement Program operating costs.

Expected Result
Newcomers contribute to the economic, social and cultural development needs of Canada

Performance Indicators	Targets	Performance Status	Performance Summary
Labour market participation—Employment rate compared to Canadian average after five years and after 10 years	Improvement in participation rate relative to Canadian average by 2012	Somewhat met	Labour Force Survey data show that the employment rate of recent and established immigrants declined relative to Canadian-born individuals. This observation is in the context of Canada’s 2009 economic downturn, which affected employment rates of all Canadians and recent immigrants (those in Canada for 5–10 years). For the latter, the employment rate declined by 2.2 percentage points from 64.2 to 62.0 between January 2009 and January 2010. Established immigrants (those in Canada for 10 years or more) saw only a slight decrease in employment rates over the same period, dropping by 0.7 percentage points from 54.9 to 54.2. For Canadian-born individuals, the employment rate fell from 64.2 to 62.6. [note 35]
Increased participation in federally funded settlement and integration programming	Maintenance or improvement in settlement programming participation rates compared to 2008–2009	Met all	In 2009–2010, the number of interventions for newcomers increased more than 10% over the number of interventions in 2008–2009. Through the Settlement Program: 56,823 newcomers received language training (an increase of 792); 155,019 services of translation or interpretation were delivered (an increase of 21,960); 133,397 newcomers accessed general settlement services [note a] (an increase of 14,404); 33,257 newcomers accessed services directly related to labour market access [note b] (an increase of 3,978); and 8,292 newcomers participated in activities to be better connected to their communities (an increase of 2,568). This does not include settlement interventions in provinces where CIC is not responsible for providing settlement services (Quebec, Manitoba and British Columbia).

a. Examples of general settlement services include port of entry reception, initial assessment of needs, information and orientation, referrals to community resources, and solution-focused counselling.

b. Examples of services directly related to labour market access include help with networking, résumé writing, interview skills, enhanced occupation-specific language training, and other forms of employment assistance.

Performance Analysis

CIC’s responsibilities in relation to settlement, integration, citizenship and multiculturalism require sustained attention to settlement programming policy, delivery and governance to support newcomers’ longer-term economic, social, cultural and civic integration, and encourage optimal intergovernmental cooperation. In 2009–2010, CIC worked with key partners to support an integrated and socially cohesive society.

To facilitate newcomers landing in Canada, CIC funded in-person predeparture orientation sessions. Third parties delivered these sessions to 14,843 individuals in 2009–2010 (13,800 through Canadian Orientation Abroad, and 1,043 through the Active Engagement Integration Project). CIC is also establishing an overseas settlement strategy to frame immigrants’ orientation needs and CIC’s programming priorities regarding pre-arrival services offered to immigrants.

In 2009–2010, the Department initiated an exercise to substantially revise and update the settlement-related information CIC provides to newcomers on-line, in print and in person. This exercise is based on evidence from research and surveys relating to newcomers’ information needs, and on consultations with government departments and agencies, and experts such as academics and senior representatives from immigrant-serving organizations.

In 2009–2010, an increasing number of newcomers received language training classes delivered by service provider organizations.[note 36] In addition, to develop new tools and services that improve participant involvement, a pilot project to test language training vouchers for newcomers was established in October 2009 as an alternative delivery method for improving newcomer participation in CIC-funded language training and other settlement services. The pilot will continue until January 2011.

The Department began enhancing language assessment within the Settlement Program by developing a standardized test based on the Canadian Language Benchmarks.[note 37] In collaboration with the Ontario government to establish a single coordinated language assessment and referral system for all newcomers to Ontario, CIC designed a field test to investigate the use of new methods of measuring student progress within Language Instruction for Newcomers to Canada (LINC).

Additional support was provided to teachers within the Settlement Program through expanded professional development opportunities, the creation of new learning objects for on-line teaching, and the dissemination of teaching materials and classroom activities for all LINC levels. CIC also strengthened its French language programming by introducing a comprehensive placement tool, the “Batterie de tests de classement,” and by piloting classes on-line for “Cours de langue pour les immigrants au Canada.”

Funding for the Welcoming Communities Initiative (WCI) continues under the terms and conditions of the modernized Settlement Program, following the sunset of Canada’s Action Plan Against Racism in March 2010.

This year CIC undertook summative evaluations of the LINC program, the WCI, the Immigrant Settlement and Adaptation Program, the Host Program, and the Going to Canada Immigration Portal. Results of these summative evaluations will be available over the course of 2010–2011. The LINC program evaluation was completed in 2009; the other evaluations are still under way. An internal audit of the administration of Settlement programming was undertaken in 2009. The audit included three lines of enquiry: governance framework, performance measurement framework and internal controls. The report and management response were approved in spring 2010.

In 2009–2010, the Department continued the development of a performance measurement strategy for settlement programming. CIC worked with provinces and territories to develop a common set of performance measures that supports the comparable assessment and public reporting of program and newcomer results.

National consultations were held with the Settlement Program sector to support a more focused, outcomes-based approach to settlement and longer-term integration, and to ensure a smooth transition to the new programming approach. As well, CIC consulted with provinces on joint delivery of labour market services to newcomers.

On February 18, 2010, the expansion of overseas services for the Foreign Credentials Referral Office was announced. As a result, beginning in fall 2010, the in-person orientation services will provide comprehensive foreign credential recognition and labour market information, as well as referrals to settlement services, to prospective immigrants in the Federal Skilled Worker and Provincial Nominee Program categories and their spouses and working-age dependants.

In 2009–2010, CIC continued the implementation of the 2006 Strategic Plan to Foster Immigration to Francophone Minority Communities[note 38] by building partnerships with its federal, provincial, territorial and community partners through the CIC–Francophone Minority Communities Steering Committee and other means. Settlement services were reinforced by funding more than a hundred contribution agreements, an additional 24 compared to last year. CIC collaborated with the Réseau de développement économique et d’employabilité to pilot creation of a multiple-occupation job bank and to study enterprises’ capacities and needs with regard to the hiring of immigrants. CIC further contributed to the implementation and consolidation of Francophone immigration networks in most provinces and territories, providing for better coordination on immigrant integration and retention issues. Program visibility was enhanced by updating the CIC website on Francophone immigration outside Quebec. [note 39] Finally, CIC continued to invest in research with the Statistical Portrait of the French-Speaking Immigrant Population Outside Quebec (1991–2006)[note 40] report commissioned to Statistics Canada, and with its contribution to the National Metropolis pre-congress on Francophone immigration.

In line with the Federal Policy on Transfer Payments and with commitments made in previous evaluations of the Resettlement Assistance Program and the Private Sponsorship of Refugees Program, consultations were undertaken with refugee stakeholders and service-providing organizations. This engagement will inform broader departmental efforts to develop pan-Canadian indicators to measure success in the future.

The Canada–B.C. agreement was renewed for five years, with an improved accountability framework added to the agreement. The Canada–Ontario Immigration Agreement [note 41] (COIA) was extended until March 2011; the theme of labour market access was added to the mandate of the COIA Settlement and Language Training steering committee.

Lessons Learned

There continue to be challenges in transitioning settlement programming to a modernized, outcomes-based approach. Corrective action in the form of regional consultations with the Settlement Program sector and the development of an advisory committee with sector participation were put in place to address these challenges.

A formal evaluation of the LINC program underlined the need for CIC to have a tool designed to precisely measure language achievement. In 2010–2011 the Department will undertake the development of new assessment tools to measure and report on language learning progress and client outcomes.

Benefits for Canadians

Immigration remains fundamental to Canada’s ongoing growth and prosperity. CIC’s Integration Program is an integral part of Canada’s immigration system and contributes to creating an integrated society. In fulfilling its mandate to address newcomers’ needs, CIC’s Integration Program helps them to realize their goals and make enduring contributions to their new communities and to Canadian life. The successful settlement of newcomers influences their long-term success in Canada and, ultimately, has an impact on all Canadians. Newcomers’ participation and contributions help enrich Canada’s society, economy and communities, to the benefit of the country’s prosperity.

Canada’s Economic Action Plan [note 42]

CIC’s Foreign Credentials Referral Office [note 43] (FCRO) received $7.3 million, of which $3 million was dedicated to grants and contributions in 2009–2010, under Canada’s Economic Action Plan (CEAP). Investments in three areas all involved promoting labour market integration of newcomers to Canada, a key objective of the program.

Pan-Canadian Framework for the Assessment and Recognition of Foreign Qualifications

CEAP included a commitment to support CIC and HRSDC’s Foreign Credential Recognition Program by developing a framework in collaboration with the provinces and territories. The Framework provides a common approach for timely, consistent, transparent and fair assessment and recognition processes of foreign credentials, as well as clear pathways for target occupations, beginning overseas where feasible. It is part of the process to improve foreign credential recognition (FCR) in Canada so that internationally trained individuals can more quickly and effectively integrate into the Canadian labour market, at levels commensurate with their skills and experience. The governments announced the Framework on November 30, 2009, and phased implementation began with 10 target regulated occupations. [note 44] All governments will monitor and report on the Framework’s implementation.

FCRO Overseas Strategy

As part of the Framework implementation, CIC is the federal lead on FCR initiatives overseas that provide pre-arrival support to prospective immigrants. On February 18, 2010, the Minister announced the expansion of these overseas services to address the needs of a broader group of prospective immigrants[note 45], including those in the Provincial Nominee Program category, as well as the spouses and working-age dependants of both federal skilled workers and provincial nominees.

Pan-Canadian Information Centre

This web-based platform will support the needs of partners and stakeholders by showcasing successful practices on FCR for both regulated and non-regulated occupations. This one-stop information site for FCR initiatives will give Canadian organizations the opportunity to leverage and capitalize on promising practices across Canada to help strengthen their FCR knowledge base.

Various stakeholders were consulted in the development and enhancement of the prototype. The first phase is expected to be launched in December 2010, followed by the second phase in 2011–2012.

Program Activity 6 — Citizenship Program[note 46]

2009-2010 Financial Resources ($ Millions)			2009-2010 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
27.3	78.4	62.1	285	696	(411)

Explanation of change: Total authorities were $51.1 million higher than planned spending, primarily due to funding transferred through Supplementary Estimates for the Multiculturalism Program and temporary resources provided to address citizenship backlog pressures.

Actual expenditures were lower than total authorities by $16.3 million, due to lower than planned expenditures in the Multiculturalism Program and Community Historical Recognition Program grant and contributions programs.

Expected Result
Citizens’ full participation in Canadian society

Performance Indicators	Targets	Performance Status	Performance Summary
Number and percentage of people who take up citizenship from permanent residence	Maintain or improve on current rate of 85% of permanent residents who become naturalized citizens	Met all	Canada continues to maintain a high level of naturalization among eligible newcomers. According to the most recent Census data (2006), 85% of eligible newcomers became Canadian citizens.
Number of citizenship grant and proof applications processed—positive and negative decisions	Minimum of 170,000 grants and 38,000 proofs	Mostly met	In 2009, approximately 164,750 applications for grant of citizenship[note a] and over 75,450 applications for citizenship certificates (proof of citizenship)[note b] were finalized. The number of grants finalized include over 156,250 individuals who became Canadian citizens.

a. These include grant applications that were approved, refused and closed for other reasons (e.g., withdrawal, abandonment).

b. The number of proof applications that were refused or closed for other reasons was not available at the time of this report.

Performance Analysis

Throughout 2009–2010, CIC implemented its Citizenship Action Plan, a set of integrated initiatives that aim to improve the integrity of the Citizenship Program and strengthen the value and meaning of Canadian citizenship by increasing civic memory, civic participation and sense of belonging to Canada.

CIC introduced a new citizenship study guide Discover Canada: The Rights and Responsibilities of Citizenship and associated knowledge test that have greater focus on Canadian history, institutions and values, as well as the rights and responsibilities of citizenship. Discover Canada has been well received across the country. [note 47]

Amendments to the Citizenship Act [note 48]that received royal assent in 2008 were implemented in April 2009. To support effective implementation and client service, CIC developed supporting regulations, information system changes, application kits and forms, training materials, communication products, and policy and program manual updates. CIC undertook proactive, web-based outreach to connect with stakeholders and members of the groups affected by the new law. CIC also reached out to those affected who may not have had Internet access, through partner department channels.

As citizenship legislation is complex, an on-line self-assessment tool was implemented early in 2009–2010 to coincide with implementation of the legislative amendments to assist with client service.

The Citizenship Program continued to develop a stronger evidence base to measure various dimensions of program performance. To that end, CIC completed a public opinion research study containing various citizenship-related questions, and is also working toward modernizing its performance reporting by next fiscal year, which includes a set of new performance indicators.

In January 2010, a decision was taken to address fraud in the Citizenship Program and make this a high priority. A citizenship fraud action plan was drafted in February 2010 and progress has been made on a number of elements identified in this plan.

The 2009 target for processing grants was not met, and is lower than the number of applications processed in 2008 and 2007. Various factors have led to the decrease in processing of grants from prospective new citizens in 2009. Referrals from the case processing Centre in Sydney to the local offices decreased in 2009. In preparation for a new citizenship test, near the end of the year, some local offices focused on reducing their testing inventory, which may have reduced the number of ceremonies. There were also facility challenges in 2009 that have been resolved but which played a factor.

Processing capacity for grant applications remains at 170,000 while annual application intake averaged almost 232,000 between 2007 and 2009. In the 12-month period ending December 31, 2009, 80 percent of grant applications were being processed within 14 to 19 months.

CIC was able to exceed targets for proof processing (issuance of citizenship certificates to existing citizens) in 2009 due to $3.5 million in additional funding received through the 2009–2010 Supplementary Estimates.[note 49] In the 12-month period ending December 31, 2009, 80 % of proof applications were being processed within 10 months for applications from within Canada and 14 months for applications from outside Canada. Pressures on citizenship certificate processing remain, as annual application intake averaged over 57,250 between 2007 and 2009, and, without additional funding, annual capacity for processing certificates would return to 38,000 applications. However, with the remaining additional funding as well as a departmental funding reallocation, the 2009 processing capacity will be maintained in 2010.

CIC will continue to explore measures to address capacity issues as a result of the growing inventory of applications for citizenship and citizenship certificates, including measures to streamline processing using web-based tools.

Other pressures on grant processing are a result of initiatives to ensure better program integrity and to protect the value of Canadian citizenship, including:

• a new citizenship test based on the new citizenship study guide Discover Canada: The Rights and Responsibilities of Citizenship; [note 50]
• initiatives to standardize language assessment and to provide judges and officers with related tools; and
• measures to combat residency fraud.

In 2009–2010, three new objectives were approved for CIC’s Multiculturalism Program. In support of these objectives, the program provides financial support (through grants and contributions) to projects and initiatives that help to build an integrated society by promoting intercultural understanding; fostering citizenship, civic memory and respect for core democratic values; and promoting equal opportunity for individuals of all origins.

CIC contributed to an international policy dialogue on issues related to multiculturalism and diversity, which includes working with international institutions. In 2009–2010, Canada became the 27th member of the Task Force for International Cooperation on Holocaust Education, Remembrance, and Research. CIC also supported a number of other international fora that combat Anti-Semitism and promote resolution of issues related to the Holocaust, such as seized assets and education.

In 2009–2010, 19 community-based commemorative and educational projects were funded under the Community Historical Recognition Program (CHRP), for a total of $1.9 million. The CHRP’s third and last request for proposals closed April 1, 2010, with 45 eligible proposals received.

In 2009–2010, the Minister, on behalf of the Government of Canada, designated 2010 as the Year of the British Home Child in Canada. In doing so, the Government of Canada made a powerful statement about the importance of these children’s personal and collective experiences, and their place in Canada’s history. It also reinforced the government’s efforts to recognize historical policies that are inconsistent with the values of Canadians today.

Canada’s Action Plan Against Racism completed its first five years of operation on March 31, 2010, and a horizontal evaluation was initiated. In 2009–2010, hate crime statistics for 2008 were released. Progress on results achieved will continue to be reported in the Annual Report on the Operation of the Canadian Multiculturalism Act. [note 51]

Lessons Learned

For the Citizenship Program, the Department reviewed [note 52] the tools it uses to enforce the regulatory requirement associated with language proficiency of adult applicants and identified the need for standardized assessment tools. As a result, the Department plans to use standardized language assessment tools in 2010–2011.

Lessons learned through Canada’s Action Plan Against Racism include a need for more comprehensive information on individual initiatives undertaken by government departments. To move toward this, questions were added to the Multiculturalism Annual Report to capture a snapshot of current Government of Canada activities.

Unanticipated lengthy time frames for the approval process for the Multiculturalism Program grants and contributions, particularly concerning financial assessments, resulted in delays for approval, late start dates for projects, withdrawals by applicants and delayed payments. Corrective actions already in place include engaging dedicated financial staff, establishing priorities and protocol for program/finance interface, tighter control of time lines, closer monitoring of files, and managing of expectations of applicants and recipients.

Benefits for Canadians

The acquisition of citizenship is an important step in the integration process of newcomers. Granting citizenship provides newcomers with the full range of rights as Canadian citizens thus allowing for fuller participation in Canadian society. Canada has one of the highest naturalization rates in the world, which is a strong indicator of the recognition of the value of citizenship. According to the 2006 Census, [note 53] the majority of foreign-born people who were living in Canada and were eligible for Canadian citizenship chose to become Canadians. In 2006, 85.1 percent of eligible immigrants had acquired Canadian citizenship.

Program Activity 7 — Internal Services

2009-2010 Financial Resources ($ Millions)			2009-2010 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
129.3	204.7	204.7	1,091	1,329	(238)

Explanation of change: Total authorities were $75.4 million higher than planned spending, due to funding provided through Supplementary Estimates for information technology (IT) infrastructure, collective agreements and other salary-related costs, and due to transfers from other program activities. Included in Internal Services is spending for IT projects, such as the Global Case Management System, which relate to other program activities, but are reported under Internal Services.

Performance Analysis

In 2009–2010, CIC undertook work to improve management practices and capacity in several areas:

• CIC implemented a new approach toward planning and performance measurement to strengthen management oversight. CIC undertook a comprehensive redesign of its Program Activity Architecture (PAA) and Performance Measurement Framework,[note 54] which has positioned the Department to entrench an outcomes-based approach to departmental activities such as planning, policy development, evaluation, reporting and research. While the revamped framework will come into effect in 2011–2012, the recent departmental 2010–2013 Integrated Corporate Plan is based on the new PAA. Management oversight was also strengthened this past year through newly instituted quarterly reviews of performance against business commitments.

• CIC initiated an Internal Service Quality Program. CIC’s internal service providers developed service standards for an initial set of high-volume services to tell staff what they can expect in a framework of accountability and transparency. Performance against these standards will be reported quarterly. Work is under way to look at the full suite of internal services and determine what other service standards should be implemented. CIC also laid the groundwork for conducting client satisfaction surveys on internal services to determine where improvements are needed. Based on this performance information, CIC will be developing service improvement plans for internal services to better enable CIC staff to deliver quality external services.

• As part of the commitment to institute a systematic approach to project management, the Department created an Enterprise Project Management Office to promote the use of an enterprise approach and project governance structure. All CIC projects now adhere to a common enterprise Project Management Framework and follow project management best practices. This Framework provides a standardized stage gate process that requires the achievement of key deliverables before a project proceeds to the next stage. Adherence will be supported through enterprise-wide mechanisms and tools such as: a Project Management Handbook, a Process Guide, standardized project documentation templates, a monthly project status reporting process, an enterprise project management tool, and a highly successful Department-wide learning program. Recently the Department was recognized for significant improvements in project management by Treasury Board Secretariat.

• A Procurement Planning and Contract Review Committee (PPCRC) was established in February 2010 to ensure that procurement aligns with plans, investments and priorities of the Department. The PPCRC reviews, monitors and approves procurement strategies for all requirements that have potential inherent risks associated with Treasury Board regulations, policies and legislation.

Lessons Learned

Recognizing opportunities to strengthen accountability, CIC established a functional authorities action plan in 2009–2010 to formalize its approach to ensuring quality internal services. Those in CIC who are responsible for implementing Treasury Board management policies, such as human resources, finance, evaluation and information management, have implemented several initiatives to clarify the role of functional authorities at CIC. The aim is to strengthen overall accountability; to update, consolidate and simplify internal rules where possible; and to deliver high-quality internal services to employees. Progress on the action plan is tracked and reported regularly to the Department’s Management Accountability Committee.

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