Evaluation of the Immigrant Settlement and Adaptation Program (ISAP)

5.0 Summary of Findings by Evaluation Issue

1. Program Rationale: To what extent does the program remain relevant to the priorities of the Government of Canada and to the needs of newcomers?

Key informants, including focus group participants, strongly indicated that there is a continuing need for ongoing federal involvement in providing settlement programming. Many interviewees noted that they considered immigration to be a federal government mandate. While some participants expressed the view that there was a role for the provinces, most agreed that the federal government must continue to play a lead role in order to ensure consistency of delivery and to ensure that the focus on services to newcomers was maintained. It was also mentioned that a federal government presence in delivering settlement programs could more readily deal with secondary migration. For example, immigrants who relocate to another part of the country would be assured of accessing the same kinds of services and material to a similar degree of quality.
Key informants, particularly focus group participants, strongly indicated that newcomers were unprepared for the settlement experience. Many newcomers expressed the view that they did not know where to locate in Canada, did not know how to find accommodation, and were unprepared for the difficulty of finding a job. Some of those entering in the professional, skilled worker class, who were unable to work in occupations related to their professions, feel misinformed and disillusioned. As a result, some settlement workers face angry immigrants, as well as those with an overall lack of awareness of settlement services available. This puts them in a situation where they must correct the misinformation passed along to newcomers.
Most key informants reported that, in light of limited budgets, current priorities and criteria are appropriate. A number of participants suggested that the program could be expanded to include in-Canada refugee claimants, as most pursue citizenship and it would be to their benefit to get started. Other key informants noted that settlement is an ongoing process and suggested that citizens be eligible for services.
It is evident from interviews that there are significant differences in priorities by region. For example, the Atlantic and PNT regions tend to focus on refugees, while Ontario does not place emphasis on any one particular group of newcomers.
There was general agreement that ISAP is considered highly complementary with other settlement and resettlement programs. There do not seem to be any particular areas of duplication between programs; in fact, ISAP, Host, LINC, and RAP are all considered to be different mechanisms to achieve the overall objective of integration into Canadian society. According to the survey, the majority of SPOs believe clients perceive seamless delivery (less than 20 percent of SPOs feel delivery is not seamless).

2. Program Delivery: Are the design and delivery of the program appropriate?

According to key informants from both SPOs and CIC, most service providers understand the program objectives and their roles, largely because they are well established at delivering program services. Survey results indicate that most SPOs have been delivering ISAP for many years (over 70 percent have been delivering services for more than 15 years).
However, there does seem to be some confusion regarding what is included as an ISAP service. CIC respondents in particular voiced concern that many SPOs are going beyond the services in their contribution agreements in the delivery of services to newcomers. For their part, SPOs indicated that newcomers have many needs and that they see their role as helping them to the best of their ability. Often, the additional services are funded by other sources (e.g., fundraising).
Some SPO key informants indicated that they perceive an inconsistent level of understanding of the program at CIC due to staff turnover and inconsistent contribution agreements (i.e., different SPOs have different contribution agreements), although survey respondents were generally quite positive about the knowledge of CIC officers.
An overall finding is that the most appropriate SPOs are selected and continue to provide ISAP services. There were very few instances of new SPOs having been accepted to provide services. In these cases, new SPOs are selected if there is new funding available, or if an existing SPO agreement is not renewed (a very rare occurrence). The steep learning curve for new SPOs encourages maintaining existing providers.
Promotion activities are occurring to some extent, but are generally considered insufficient. There is more emphasis on promotion in Ontario, where there is less focus on delivery to refugees (there has been some work in piloting innovative outreach strategies). Promotion in other regions is considered less important since many clients are government assisted refugees and are referred by RAP. The most commonly used mechanisms are word of mouth, brochures, targeted presentations, advertisements, and the Internet (including settlement.org). The survey indicated that word of mouth was the most effective mechanism.
Key informants reported that there were no waiting lists for ISAP, but 35 percent of survey respondents indicated they have waiting lists for some services. According to the survey, waiting lists were more common in Ontario and PNT regions. The top services with waiting lists are solution-focused counselling, employment-related services, and interpretation and translation services.
Key informant interviews indicated services are generally available in either official language, as appropriate. According to the survey, 98 percent of SPOs say services are available in English, while 55 percent of SPOs say services are available in French. Focus group participants reported that most newcomers are looking for service in their mother tongue.
CIC and SPO respondents reported that supports and tools are available from CIC (e.g., guidelines) but that some are out of date. The survey indicated that over half of responding SPOs (57 percent) are satisfied/very satisfied with the tools. Both CIC and SPO informants noted that guidance and support are provided by CIC; however, SPOs reported that this kind of support can be inconsistent, depending on the officer.
Overall, SPOs are considered to have sufficient capacity since most have been delivering ISAP services for years. However, turnover is an issue for some SPOs. Another issue affecting the capacity of the SPO is the ability to network and partner. Only about 36 percent of SPOs reported using partnerships to deliver ISAP services, with the Atlantic Region being less likely (17 percent) to develop partnerships. Sixty-nine percent of respondents reported having partnerships in place for referrals. Again, the Atlantic Region reported the least number of SPOs with these partnerships in place (33 percent).
Key informants indicated that, in some cases, some SPOs’ capacity is lacking where client needs are changing (e.g., special-needs clients or professionals requiring employment help). In some communities, this gap is partly due to a lack of services with which to partner.
Most key informants indicated that the program is adequately flexible and this flexibility is considered important. Qualitative data from interviews and focus groups indicate a lack of consistency in terms of levels and types of services (particularly noticeable by region and size of city). Some SPOs noted the need for standards, or a framework for baseline or core services.
It is generally believed that there are adequate controls for monitoring. All SPOs are expected to submit monthly or quarterly activity and financial reports to CIC (according to the survey, 95 percent of SPOs responded that preparation of regular financial audits was either effective or very effective). Some SPOs submit narrative reports as well. In addition, CIC and SPOs report ongoing communication by phone and e-mail. CIC and SPOs also share information and best practices through conferences and committees, and via the Internet (e.g., settlement.org, integration.net). Nonetheless, some CIC and SPO informants noted that communication and information sharing is not adequate.
According to the survey, 62 percent of SPOs reported that tools and support to do the reporting were adequate or better. However, key informants noted that iCAMS is currently causing duplication of effort.
The extent and awareness of Stream B projects varies significantly by region. Key informants in all regions indicated that Ontario spends more money in this area on research, tools, conferences and pilots. The Atlantic Region spends most Stream B funding on conferences and workshops while the PNT Region does various projects, but not on the same scale as Ontario. Stream B projects provide opportunities to share best practices and develop alternative ways to deliver services (e.g., by the Internet). There is a strong belief that Stream B projects positively influence program delivery.

3. Effectiveness and Efficiency: To what extent does the program use the most appropriate, efficient and cost-effective methods to meet its objectives?

SPOs are considered to be the most cost-effective mechanism because they can use volunteers, develop community partnerships, have lower pay scales, and develop innovative delivery mechanisms. Also, many staff are immigrants themselves and are thus able to speak the clients’ language and establish immediate trust. Community-based service providers can be more flexible and adapt more quickly. Some smaller cities offer a one-stop-shop for all programs, and some SPOs have established partnerships and have co-located with other services (e.g., health unit, Human Resources and Skills Development Canada (HRSDC)).
Client needs are assessed through workshops, orientations, evaluation/feedback forms, and by informal telephone survey.
All lines of evidence found that funding is generally considered to be inadequate. No funding increases for eight years means the overall real funding amount has been decreasing over time. According to the survey, less than 25 percent of SPOs consider funding to be adequate to achieve expected outcomes. Some agencies report using funding from other sources to deliver ISAP services. In addition, it was reported that the annual funding cycle restricts long-term planning.

4. Success: To what extent has the program been successful in achieving its desired outcomes?

Overall, there is a belief that ISAP is meeting the needs of newcomers who access the services. However, SPOs indicated that many newcomers are not accessing services because they are not aware of the program. Some innovative approaches to service delivery have been introduced to better meet the needs of newcomers (e.g., job-search workshops, Newcomer Information Centres, School Support Program, settlement.org).
Focus group participants indicated that they are generally satisfied with services received. However, the most consistent complaint voiced by participants is the inability of ISAP to help clients find a suitable job.
According to the evaluation survey, 98 percent of SPOs indicated that client needs, as identified in assessments, are met to some extent or greater. Needs assessments are considered crucial to service delivery and appropriate referrals.
Information and orientation sessions have a big impact on immigrants’ ability to settle, as they help guide immigrants through the settlement process
Key informants and focus group participants indicated that translation and interpretation services have positive impacts by helping guide immigrants through the settlement process. These services are needed to help fill out forms, read letters from government, etc.
Key informants suggest referrals are critical. They increase the awareness of, and access to, other programs/centres/organizations that can assist with immigrants’ needs, including health care, legal issues, labour issues and social housing.
There was not a lot of evidence of discussion in the focus groups regarding solution-focused counselling. However, those who indicated they had received this service reported that it was valuable.
The extent to which service bridging is occurring varies by service provider (and region). Key informants in smaller centres indicated that there is no money to do this in an organized way. From the survey, however, 90 percent of SPOs reported that they participate in service bridging. Service bridging is mainly done by presentations, workshops and one-on-one meetings.
Findings related to outcomes for clients are presented below. However, due to the myriad of other variables affecting newcomers (e.g., family and friends, knowledge prior to coming to Canada), it is difficult to attribute these outcomes to ISAP services directly.
- Focus group participants indicated they have the increased ability to communicate. This finding is supported by survey results showing 87 percent of SPOs reporting that clients are able to identify and communicate their needs to a large or great extent.
- Focus group participants indicated they have an increased ability to independently access community resources/services, although the language barrier is an issue for some. According to the survey, 85 percent of SPOs indicated clients were confident undertaking day-to-day activities.
- Focus group participants indicated that they are working towards meeting personal goals by taking English classes or adult education. Some are working and have fulfilling social lives. For many, under-employment or unemployment is a major issue. Just over half (56 percent) of the SPO survey respondents indicated that clients could meet personal goals.
- Very few focus group participants indicated that they have satisfying paid work consistent with their skills. Many professionals feel misled about job opportunities in Canada. Only one-third of SPO survey respondents replied that clients could obtain suitable paid work.
- The majority of focus group participants indicated that they participate in cultural, social and civic life. Some are volunteers in their communities or at the SPO. More than 80 percent of SPOs surveyed indicated that clients participate in their communities to some extent or greater.
- Key informants and focus group participants report that ISAP employment services meet basic needs only, which may not be adequate for some clients, such as professionals. Employment referrals occur, but some HRSDC programs are not available to newcomers (e.g., those requiring Canadian experience).

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