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Section I — Overview

Message from the Minister

I am pleased to present the 2009–2010 Report on Plans and Priorities for Citizenship and Immigration Canada (CIC).

CIC supports the national economy through immigration, maintains Canada’s humanitarian obligations to protected persons and refugees, and reunites families. In just five years, Canada’s population grew by 1.6 million, according to the 2006 Census, with 1.1 million of this increase due to the arrival of immigrants. Each year, Canada admits approximately 250,000 new permanent residents, as well as over 200,000 temporary foreign workers and students.

As we maintain historically high levels of immigration and our population becomes increasingly diverse, we must act deliberately to foster strong social cohesion and a common sense of Canadian identity by adapting immigration, citizenship and multiculturalism policies to address today’s challenges. As we look to the future, it is important for both newcomers and Canadian society as a whole to emphasize long-term integration and improved intercultural understanding.

On October 30, 2008, the Government of Canada transferred the multiculturalism program to Citizenship and Immigration Canada. This Department’s new mandate is committed to promoting the integration of all communities and, by fostering a sense of shared Canadian citizenship, the Department ensures that everyone can identify with our country’s history, symbols and institutions.

In order to attract people to Canada, we are implementing the Action Plan for Faster Immigration. The Action Plan promotes Canada as a destination of choice, supports policies that encourage newcomers to stay, and encourages the selection of applicants who are likely to succeed early upon their arrival.

We will also implement important changes to the Citizenship Act, which will restore Canadian citizenship to many individuals who had lost it and give it to others who will now be recognized as citizens.

Through the Foreign Credentials Referral Office, internationally trained individuals are provided with information on foreign credentials and Canada’s labour market. These services are offered through its website (http://www.credentials.gc.ca/) and a dedicated toll-free telephone line, and in person through 330 Service Canada Centres and 216 Service Canada outreach offices. Since its launch in May 2007, the website has had more than 575,000 visits, most of them from overseas, an indication that individuals are preparing for life in Canada before their arrival here. The Office is also preparing to implement its overseas strategy, which will provide in-person orientation sessions in key source countries.

While the economic slowdown is expected to have an impact on unemployment, Canada’s economy will require temporary foreign workers to fill job openings when no qualified Canadians can be found. We will continue to make improvements to the Temporary Foreign Worker Program to make it easier, faster and less expensive for employers to access these workers, while ensuring that foreign workers receive the same legal protections as Canadian workers.

The Government of Canada recognizes the benefits that international students bring. The introduction of the off-campus work permit has made it easier for international students to work in Canada after graduation. Further service improvements will allow international students to confirm their eligibility and submit their applications online. As well, the Canadian Experience Class, introduced in 2008, makes it easier for temporary foreign workers and international students with Canadian credentials and work experience to apply for permanent residence.

CIC will continue to maintain Canada’s humanitarian tradition by offering protection in Canada to refugees and improving the efficiency of the system to allow for better management of the inventory of refugee applications. The Government of Canada is also acting to fill vacancies in the membership of the Immigration and Refugee Board.

To protect the safety and security of Canadians, CIC works closely with the Canada Border Services Agency (CBSA), the Royal Canadian Mounted Police (RCMP) and the Canadian Security Intelligence Service (CSIS). One area of ongoing collaboration involves the appropriate background screening of immigrants. CIC is also working with the CBSA and the RCMP to implement biometric technologies that will help screen out criminals and facilitate the processing of legitimate temporary workers, students and visitors.

It is incumbent upon us as a government to support community and employment networks involving newcomers and Canadians, and to promote shared Canadian values. We will continue to build and improve on current initiatives, including language training and other labour-market initiatives that allow for the successful settlement of newcomers.

The Government of Canada is proud of the contributions various communities have made to the social, cultural and economic fabric of this country, and of the efforts all Canadians have made to welcome newcomers and encourage their full participation in our society.

I want to thank the staff of CIC for their collective efforts to enhance Canada’s reputation as a destination of choice.

The Honourable Jason Kenney, PC, MP
Minister of Citizenship, Immigration and Multiculturalism

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Raison d’être

Citizenship and Immigration Canada (CIC) [note 1] selects and processes foreign nationals as both permanent and temporary residents, assists with immigrant settlement and integration, and offers Canada’s protection to refugees. CIC also grants Canadian citizenship and promotes the rights and responsibilities inherent in citizenship. The Department develops Canada’s admissibility policy, sets the conditions to enter and remain in Canada, and conducts screening of potential permanent and temporary residents to protect the health, safety and security of Canadians. In doing so, CIC, in collaboration with its partners, fulfils its role of identifying applicants who could pose risks to Canada for reasons including health, security, criminality, organized crime, and violation of human and international rights.

On October 30, 2008, the Department received responsibility for implementation of the Canadian Multiculturalism Act, and the Minister of Citizenship and Immigration Canada therefore became the Minister of Citizenship, Immigration and Multiculturalism. Under the Act, CIC promotes the full and equitable participation of individuals and communities of all origins in the continuing evolution and shaping of all aspects of Canadian society, and helps them eliminate any barrier to that participation.

Responsibilities

CIC was created through legislation in 1994 to link immigration services with citizenship registration. The Department helps build a stronger Canada by taking a broad and integrated approach to helping immigrants settle in Canada, and encouraging and facilitating their ultimate acquisition of Canadian citizenship. CIC’s broad mandate is derived from the Department of Citizenship and Immigration Act. More specifically, the Minister of Citizenship, Immigration and Multiculturalism is responsible for the Citizenship Act of 1977 and shares responsibility with the Minister of Public Safety Canada for the Immigration and Refugee Protection Act (IRPA), which was enacted following a major legislative reform in 2002. Immigration is also an area of shared jurisdiction with the provinces under section 95 of the Constitution Act, 1867.

CIC and the Canada Border Services Agency (CBSA) [note 2] support their respective ministers in the administration and enforcement of IRPA. The organizations work collaboratively to achieve and balance the facilitation and enforcement objectives of the immigration and refugee programs.

CIC has 46 in-Canada points of service and 90 points of service in 76 countries.

CIC’s Vision

An approach to immigration that:

• Responds to the needs of communities in all parts of the country by creating opportunities for individuals to come to Canada to make an economic, social, cultural and civic contribution while also realizing their full potential, with a view to becoming citizens; and
• Supports global humanitarian efforts to assist those in need of protection.

CIC’s Mission

CIC, with its partners, builds a stronger Canada by:

• Developing and implementing policies, programs and services that:
  • Facilitate the arrival of persons and their integration to Canada in a way that maximizes their contribution to the country and ensures effective screening of potential temporary and permanent residents to protect the health, safety and security of Canadians;
  • Maintain Canada’s humanitarian tradition by protecting refugees and persons in need of protection; and
  • Enhance the values and promote the rights and responsibilities of Canadian citizenship.
• Advancing global migration policies in a way that supports Canada’s immigration and humanitarian objectives;
• Improving admissibility tools and mechanisms to better identify applicants who could pose risks to Canada for reasons including health, security, criminality, organized crime, and violation of human and international rights.

Note: CIC’s vision and mission will be updated in 2009–2010 to reflect the objectives of multiculturalism.

Strategic Outcomes and Program Activity Architecture

CIC’s three strategic outcomes (SO) describe the long-term results that the Department’s programs are designed to achieve.

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

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

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

The Department’s Program Activity Architecture (PAA), seen below, is a reporting framework that provides an inventory of departmental programs and activities, and describes their linkages to the three strategic outcomes. The PAA also provides an enduring foundation for financial and performance reporting to Parliament. CIC will be adjusting its PAA in 2009–2010 to include multiculturalism, which was transferred from the Department of Canadian Heritage in October 2008. More details on the Multiculturalism – Engagement and Inclusion program activity and its sub-activities can be found in the “Other Items of Interest” section of this report.

Strategic Outcomes	Program Activities	Program Sub-activities
1. Migration that significantly benefits Canada’s economic, social and cultural development, while protecting the health, safety and security of Canadians	1. Immigration Program	1.1 Immigration policy and program development 1.2 Selection and processing 1.3 Processing of Permanent Resident Cards
	2. Temporary Resident Program	2.1 Temporary resident policy and program development 2.2 Selection and processing
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	3. Canada’s role in international migration and protection	3.1 International migration policy development 3.2 Contributions to international organizations
	4. Refugee Program	4.1 Refugee policy and program development 4.2 Selection and processing of resettled protected persons (government-assisted refugees and privately sponsored refugees) 4.3 Processing of asylum applicants 4.4 Pre-removal risk assessment 4.5 Interim Federal Health Program
3. Successful integration of newcomers into society and promotion of Canadian citizenship	5. Integration Program	5.1 Settlement/resettlement policy and program development 5.2 Foreign Credentials Referral Office 5.3 Settlement Program 5.4 Grant to Quebec for the Canada-Quebec Accord 5.5 Immigration Loan Program 5.6 Resettlement Assistance Program
	6. Citizenship Program	6.1 Citizenship policy and program development 6.2 Citizenship processing 6.3 Citizenship promotion

Planning Summary [note 3]

Financial Resources ($ millions)

2009–2010	2010–2011	2011–2012
1,392.8	1,521.4	1,495.8

Human Resources
Full-time equivalents (FTEs)

2009–2010	2010–2011	2011–2012
3,946	3,766	3,735

Explanation of change: Overall, planned program spending for the Department increases by $129 million in 2010–2011, compared to the previous year, primarily due to the deferral of settlement program funding from 2009–2010 to future years.

In 2011–2012 planned spending decreases by $26 million due to the sunsetting of reprofiled settlement program funding.

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

Performance Indicators	Targets
Income from all sources (investment, employment earnings, self-employment, and employment insurance) for skilled worker principal applicants after three years compared to Canadian benchmark	Principal applicant income is stabilized and/or improved relative to the Canadian benchmark by 2012

Program Activity	Expected Results	Forecast Spending ($ millions) 2008–2009	Planned Spending ($ millions)			Alignment to Government of Canada Outcomes
			2009–2010	2010–2011	2011–2012
1. Immigration Program	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	137.6	127.3	122.4	123.6	ECONOMIC Strong economic growth
2. Temporary Resident Program	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	69.8	77.1	63.1	68.3	ECONOMIC Strong economic growth
Total for SO 1		207.4	204.4	185.5	191.9

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

Performance Indicators	Targets
Number of protected persons and Convention refugees granted permanent residence	Target range for 2009 is 23,600 to 27,200 persons
Percentage of positions initiated or supported by Canada which are eventually reflected in international policy debate	CIC responds to ad hoc requests; not possible to forecast demand accurately

Program Activity	Expected Results	Forecast Spending ($ millions) 2008–2009	Planned Spending ($ millions)			Alignment to Government of Canada Outcomes
			2009–2010	2010–2011	2011–2012
3. Canada’s Role in International Migration and Protection	Canada influences the international policy debate as part of its responsibilities with respect to international migration and refugee protection	4.0	4.0	4.0	4.0	INTERNATIONAL A safe and secure world through international cooperation
4. Refugee Program	Persons in need of protection and Convention refugees are protected by Canada by upholding our international obligations and humanitarian traditions, while protecting the health, safety and security of Canadians	106.5	106.3	100.2	99.4	INTERNATIONAL A safe and secure world through international cooperation
Total for SO 2		110.5	110.3	104.2	103.4

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

Performance Indicators	Targets
Income from all sources (investment, employment earnings, self-employment, and employment insurance) for all immigration categories after five years and after 10 years, compared to Canadian benchmark	Improvement in immigrant incomes relative to Canadian average by 2012
Social participation measured by donor and volunteer rates	Maintain or improve on current levels of 80% giving and 20% volunteerism by immigrants
Increased participation of new and established Canadians in citizenship events	50 off-site citizenship events annually by 2011

Program Activity	Expected Results	Forecast Spending ($ millions) 2008–2009	Planned Spending ($ millions)			Alignment to Government of Canada Outcomes
			2009–2010	2010–2011	2011–2012
5. Integration Program	Newcomers contribute to the economic, social and cultural development needs of Canada	927.3	921.5	1,076.6	1,046.6	SOCIAL Diverse society that promotes linguistic duality and social inclusion
6. Citizenship Program	Citizens’ full participation in Canadian society	30.6	27.3	26.7	26.6	SOCIAL Diverse society that promotes linguistic duality and social inclusion
Total for SO 3		957.9	948.8	1,103.3	1,073.2
7. Internal Services		137.8	129.3	128.4	127.3
All Program Activities Total Planned Spending		1,413.6	1,392.8	1,521.4	1,495.8

Contribution of CIC Departmental Priorities to Strategic Outcomes

The following priorities continue to be the primary focus of the Department’s management agenda for 2009–2010. These priorities support the achievement of all six of CIC’s program activities as demonstrated in more detail below.

Operational Priorities	Type	Links to Strategic Outcomes	Description
Integrating Policy across Departmental Program Activities	Ongoing	SO 1, 2, 3	CIC will continue to coordinate policy across departmental program activities in order to: Address changing demographics and labour market needs; Maximize the contribution of immigration across Canada; Address the settlement needs of immigrants in areas such as language acquisition and credential recognition; Maintain the health and security of Canadians while facilitating the entry of immigrants and temporary residents who have the potential to contribute to Canada; Process all applications in a timely fashion to address client and labour market needs. To help meet Canada’s labour market needs and the successful integration of newcomers, CIC will continue to work with its partners to build on programs such as the Provincial Nominee Program, [note 4] the Canadian Experience Class [note 5]and the Foreign Credentials Referral Office. [note 6] Implementation of the Action Plan for Faster Immigration [note 7] will also support a flexible approach to selecting those persons who best meet Canada’s labour market needs. In collaboration with its partners, CIC will continue to enhance program integrity through such initiatives as the development of biometrics, which will enable CIC officers to better confirm identity and detect fraud. As part of its new multiculturalism mandate, CIC will support the promotion of cross-cultural understanding among all Canadians, including newcomers, consistent with its mandate to address short- and long-term integration issues in a manner that supports its economic, social, security and humanitarian objectives.
Improving Client Service	Ongoing	SO 1, 2, 3	As part of its ongoing efforts to improve client service, CIC adopted a comprehensive framework in 2008–2009 for client service modernization aimed at improving immigration and citizenship service delivery. A client service strategy was developed based on that framework, including a commitment to client service, service standards and a service charter. Three phases for the service standards strategy were developed with the aim of proceeding with phase one by the end of fiscal year 2008–2009. The following are examples of client service improvements planned for 2009–2010. Implement action plan for service modernization In 2009–2010, CIC will implement the first phase of the action plan to modernize its service delivery network so that services and programs are integrated, responsive and accessible around the world. CIC will also continue to set service standards, and develop and strengthen partnerships with other government departments and agencies, and with service providers to enhance client access to CIC services and improve application processing. Continue to develop E-services CIC launched its e-channel [note 8] in June 2008. In the e-channel’s initial phase, electronic services are offered to both CIC’s applicants and partners involved in the Off-Campus Work Permit Program. The e-channel supports applicants who apply for immigration and citizenship services, from their initial contact with CIC to the final disposition of their case. The e-channel will be extended progressively, one business line at a time. In 2009–2010, work permit applications for residents of Canada, the extension of visitor records and postgraduate work permits will be introduced. Deliver key standardization and simplification service modernization projects CIC will develop and coordinate projects to improve operational efficiency, including: implementation of a Web-based scheduling tool to allow applicants to schedule their own appointments for immigration and citizenship purposes; and streamlining of the citizenship application process. CIC will also be conducting research to capitalize on advancements in technology and increased partnerships with other government departments and agencies such as Service Canada and the Royal Canadian Mounted Police (RCMP). Develop framework and network for Visa Application Centres The Government of Canada uses Visa Application Centres (VACs) to provide improved visa services to applicants abroad. VACs are managed by specialized commercial or service provider organizations. The establishment of 34 VACs in 17 countries will provide additional points of service in regions where there are few or no visa offices in close proximity to applicants. This will result in applicants no longer having to spend time and money travelling to a visa office if they choose to use a centre closer to home. CIC is currently developing a comprehensive VAC strategy in order to extend the level of service provided through these centres on a global basis to as many applicants as possible, including the capture of biometrics in the Temporary Resident Program. The services offered by VACs are complementary to the services offered at Canadian visa offices.

Management Priorities	Type	Links to Strategic Outcomes	Description
Public Service Renewal	Previously committed to	SO 1, 2, 3 (enabling)	In 2005, “Building the workforce of the future” was introduced as one of CIC’s three strategic priorities and, recognizing that the Clerk of the Privy Council has made Public Service renewal a priority for federal organizations, this continues to be a key departmental priority. In April 2007, A Human Resources Strategy 2007–2010 was finalized, which identifies the two goals of CIC’s roadmap for renewal: building and sustaining a highly competent and innovative workforce; and sustaining an inclusive workplace and a productive organization. Key departmental priorities to support the Public Service renewal agenda have also been identified in CIC’s Integrated Corporate Plan for 2008–2011. They address all four elements of the Clerk’s renewal agenda: human resources and succession planning; recruitment and retention; employee learning and development; and enabling infrastructure.
Global Case Management System (GCMS)	Previously committed to	SO 1, 2, 3 (enabling)	The GCMS [note 9] 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 first deployment of the GCMS was in 2004 for the citizenship program. Due to several challenges and complexities, strategies for completing the project were re-evaluated and a revised go-forward plan was prepared that reduces risk and delivers considerable business value. The revised plan was approved, and the GCMS is currently in the development phase for the second release, which will focus on the immigration program. Deployment to the first international mission is scheduled for June 2010.
Web of Rules	Previously committed to	SO 1, 2, 3 (enabling)	CIC is reducing and streamlining internal rules and processes to strengthen accountability and increase its efficiency and responsiveness. In addition to the client service initiatives discussed above, CIC is also reducing and streamlining external rules and processes by: Working with the provinces, territories and other stakeholders through the Foreign Credentials Referral Office to strengthen foreign credential recognition processes, and by improving the offering of foreign credential recognition and labour market information to facilitate the integration of internationally trained individuals into the Canadian labour market; and Contributing to the Government of Canada Action Plan to reform the administration of grants and contributions programs. CIC revised the terms and conditions and the delivery model for settlement programming, using this opportunity to align the changes with the recommendations of the Blue Ribbon Panel, particularly those concerning flexibility and simplification for service provider organizations. The Department’s actions also include strengthening its management control framework and accountability regime for contribution agreements, as well as various measures to improve consistency, fairness, transparency, value for money, coordination and responsiveness.

Risk Analysis

Canada has one of most mature immigration programs in the world. Approximately 250,000 new permanent residents are admitted to Canada each year, as well as some 240,000 temporary foreign workers and students. In achieving these results, CIC manages many external and internal challenges.

Domestic and international challenges affect how CIC carries out its mandate:

• There is increasing competition for skilled immigrants throughout the world, brought about by the continued aging of populations in industrialized countries, as well as rapid economic development in many industrializing countries. This means that we must work with partners to consistently promote Canada as a destination of choice, adopt policies that encourage retention of newcomers such as students and temporary foreign workers, and select applicants who have greater potential to succeed early upon their arrival in Canada. Recent initiatives such as the Action Plan for Faster Immigration and the introduction of the Canadian Experience Class will improve Canada’s ability to compete for skilled labour.
• The global economic downturn in recent months has left several major economies around the world already in or on the brink of a recession. In Canada, the downturn in the economy can be expected to increase unemployment in the short term, which may reduce demand for temporary foreign workers and may also act as a deterrent to prospective economic immigrants. The challenge for Canada’s immigration program is to be able to respond to short-term labour market needs while also ensuring that longer-term needs will be met.
• Large urban areas, particularly Montréal, Toronto and Vancouver, attract the majority of new immigrants. This trend exerts pressure on the capacity of these cities to support newcomer economic and social integration. In contrast, other regions often do not receive enough immigrants to meet local labour market needs. The Government is working to ensure that the benefits of immigration are realized across the country. For example, Canada recently developed the Canadian Experience Class to facilitate the qualification of certain temporary foreign workers and international students as permanent residents, since these persons are more geographically dispersed than immigrants entering under the Federal Skilled Worker Program. Canada also cooperates with provinces and territories to help them realize their specific economic immigration objectives through the Provincial Nominee Program.
• Growing international migration has increased the possibility of Canadians being exposed to disease outbreaks, infectious diseases, acts of terrorism and transnational organized crime. A range of mitigating strategies has been adopted across government and with international partners to reduce the possibility of these risks impacting the Canadian population.
• Promoting full participation of all newcomers to Canada, and of longer-term residents and citizens is likely to reduce any potential risk of social instability.

CIC faces internal pressures as well. More than 952,000 applicants are waiting for a decision on their case, resulting in lengthy waiting times for prospective immigrants, particularly among federal skilled worker applicants, parents and grandparents, humanitarian and compassionate grounds applicants, and pre-removal risk assessment applicants. In addition, there is a growing volume of applications from visitors, students and temporary workers that need to be screened and processed in a timely manner. The Department faces challenges in meeting these demands, particularly in terms of managing processing capacity and ensuring effective linkages with key delivery partners.

As discussed above, many reforms to CIC’s programs have been introduced in recent years to make them more flexible and responsive to the needs of the labour market, and to enhance operational integrity and efficiency. These changes are complex to implement, particularly in a climate of fiscal constraint. The Department continues to focus on ensuring that the appropriate human resources, training and risk mitigation strategies are in place to support the successful implementation of program reforms.

Expenditure Profile

For the 2009–2010 fiscal year, CIC plans to spend $1,392.8 million to meet the expected results of its program activities. The table below illustrates CIC’s spending trend from 2005–2006 to 2011–2012:

Departmental Spending Trend

Grants and Contributions

Overall grants and contributions funding increased twofold between 2005–2006 and 2008–2009. This is primarily due to additional contribution funding under the Canada-Ontario Immigration Agreement (COIA), and additional obligations under the grant for the Canada-Quebec Accord on Immigration. This trend continues into 2010–2011 and stabilizes in future years.

Operating Expenditures

Overall operating funding will remain relatively constant in the coming years despite increased funding for certain initiatives. Although additional operating resources have been provided for the GCMS, these resources are temporary and will sunset by the end of 2011–2012. Additional operating funding has been provided for the Interim Federal Health (IFH) Program and the Temporary Foreign Worker Program; however, these increases have been largely offset by the effects of government-wide reductions, transfers to other departments, and reductions due to foregone revenue.

Voted and Statutory Items
($ millions)

Vote # or Statutory Item (S)	2009–2010 Current Main Estimates	2008–2009 Previous Main Estimates
1 Operating expenditures (Note 1)	447.4	396.1
5 Grants and contributions (Note 2)	866.9	884.7
(S) Minister of Citizenship and Immigration – Salary and motor car allowance	0.1	0.1
(S) Contributions to employee benefit plans	43.9	38.6
Loans to immigrants and refugees to facilitate the arrival of newcomers pursuant to section 88 of the Immigration and Refugee Protection Act (Non-Budgetary)	–	–
Total Department	1,358.3	1,319.5

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