Evaluation of the Immigrant Settlement and Adaptation Program (ISAP)

7.0  Recommendations and Management Response

The recommendations based on the findings of the national evaluation of ISAP are presented below.

1. Realign ISAP services to better meet the needs of different client groups. There is a divergent immigrant profile, with large numbers of well-educated immigrants, as well as other immigrants and refugees, entering Canada. The evaluation revealed that these groups have different settlement service needs. The matter of how to address the needs of all newcomers to Canada within the current funding envelope is a challenging one, especially in light of a real declining investment over time (i.e., each year, while expenses – salaries, utilities, rent – increase, the amount of money available stays the same). In particular, the evaluation found that the program is not currently meeting the needs of some special-needs refugees and some skilled immigrants. It is recommended that an ISAP committee be established to realign ISAP services to better meet the needs of the emerging profile of the newcomer population in Canada. The following four options are presented as a starting point for the working group:

1. Focus ISAP services on those newcomers that are most in need of basic services and assistance (i.e., refugees and family class immigrants). Services to skilled immigrants would be limited to referrals. To support this emphasis on referrals, more resources would be put into service bridging for the first two to three years. Training would also be required for service providers to handle clients with special needs.
2. Offer a smaller set of priority core services to all newcomers. Service providers would be required to scale back on the services they currently offer with ISAP dollars. CIC would have to be explicit in terms of which services would be dropped and clarify definitions for the services that would continue to be funded. CIC would assist SPOs to form partnerships with other organizations to assist in service delivery. As well, SPOs would be encouraged to seek out other sources of funding (e.g., fundraising, provincial programs).
3. Focus ISAP service on the skilled immigrants. This would include providing more advanced job-search and workforce information for skilled workers, partnering with HRSDC and provincial governments to develop innovative approaches to meet these needs, and training for settlement workers. Services (and the associated funding) for refugees would be transferred to the Resettlement Assistance Program.
4. Access additional funding and strengthen the service-bridging component to enable ISAP to meet the needs of special-needs refugees (through training, more time with each client, and improved referrals) and skilled immigrants (through advanced job-search programs, partnering programs, and improved referrals).

Management Response

The Department agrees with the principle of this recommendation and will continue to explore ways to better address the changing needs of newcomers to Canada.

To better meet the needs of different client groups under ISAP, the Department is committed to:

• the continuous support of flexible delivery through initiatives such as the Newcomer Information Centres and Settlement Workers in the Schools;
• multi-year funding agreements that may free up agency staff time (and hence funds to improve service delivery); and
• the implementation of better tools to monitor agency performance and mechanisms to shift funds according to changing client needs.

A National ISAP Working Group will assess the options suggested in this recommendation, as well as other initiatives, as appropriate.

It is important to note that an initial Needs Assessment in all cases remains an essential component of ISAP. To improve this process, the National ISAP Working Group will coordinate the development of a Needs Assessment tool for Service Provider Organizations (SPOs) that will provide a quick and accurate assessment of client needs. This will facilitate services and free up time for high-needs newcomers.

Context

CIC does not believe that services should be limited according to immigrant categories or any other condition. However, innovative funding arrangements can identify that some agencies provide only certain ISAP services, such as those targeting skilled workers and immigrant youth.

The flexibility of ISAP ensures that the program is responsive to regional needs, resources, and emerging issues and trends.

It is important that the Department address the funding gap by developing a business case for more funding. The decline in real dollars is being felt by SPOs that are experiencing increases in rent, insurance, etc. The Department should continue to develop partnerships with other federal departments and other levels of government for innovative, economical service delivery.

Time Frame

CIC regions will begin to negotiate multi-year funding agreements with some SPOs in the 2005–06 funding cycle.

Discussion on the development of the Needs Assessment tool will begin in winter 2005.

2. Streamline, reduce duplication in reporting requirements for service providers. Currently, service providers are required to enter data monthly into the Immigration Contribution Accountability Measurement System (iCAMS), as well as submit monthly or quarterly (depending on the contribution agreement) activity reports and claim forms. It is recommended that service providers only be required to enter data into iCAMS and that the written report requirement be dropped. This will only be feasible once reports are regularly being produced and made available to all levels of CIC (by individual SPO and in aggregate by city and region) and service provider (for the activities undertaken by their organization). It is further recommended that, where narrative reports are currently required, they continue to be submitted, but on a quarterly basis. These changes to the current reporting requirements would ease the funding pressures at SPOs and enable staff to spend more time delivering services to clients.

Management Response

The Department agrees that efforts must be made to reduce duplication in reporting in the Department. The Department is aware that SPOs report not only to CIC but to other funders, in addition to the records they maintain for their own internal management.

The Department has already reduced one part of CIC duplicate data entry through a system interface for LINC services in Ontario, and special data entry arrangements in a small number of other situations.

In addition, the Department has recently started a report consolidation process. The Department is consulting internally on the type of reports that can be generated using the data from the performance measurement system (iCAMS) to meet the monitoring requirements of CIC local offices. These new reports would replace some of the existing monthly and quarterly written activity (statistical) reports submitted to local offices. They could not replace the qualitative and narrative data, nor data that is not currently collected through the system.

As iCAMS is quantitative in nature, the written narrative report requirement remains an important tool to determine SPOs’ activities and unique initiatives, and to identify trends and changes in immigration patterns from the perspective of the SPO. Decisions to proceed with quarterly written reports instead of monthly are made at the regional or local level in CIC. Integration Branch will recommend quarterly reporting requirements, while allowing regions the flexibility for alternate reporting time frames.

Context

CIC requires SPOs to input data into iCAMS, which is central to the settlement accountability framework and is also an evaluation criterion for SPOs seeking multi-year funding.

Currently, service providers are submitting monthly or quarterly reports to CIC local/regional offices, in addition to providing monthly iCAMS data entry. The monthly/quarterly reports contain statistical, financial and narrative data, which are used by local/regional offices to substantiate SPO payment claims.

The Department has frequently heard from service providers their frustration with the amount of duplicate data entry and reporting that is required to meet the needs of the CIC national performance measurement system, CIC local office monitoring of contribution agreements, other funders and the service providers’ own internal operational management. These concerns are being addressed by the report consolidation process. CIC is also monitoring research and development efforts in Ontario and Alberta, regarding the creation of a “single management information system.”

Narrative reports and statistical information continue to be an excellent source of information about trends and changes in immigrant settlement patterns.

Time Frame

Reports resulting from the consolidation exercise are expected in spring 2005.

3. Develop a national marketing working group to explore the promotion of ISAP. The evaluation found that promotion of ISAP has been irregular and mainly undertaken by service providers with little national or regional guidance. It is recommended that CIC NHQ establish a national marketing working group, consisting of representatives from the regions, as well as a number of service providers, to explore the need for, role of, resource requirements and suggested activities of a marketing strategy for ISAP. This working group will need to consult iCAMS data to better understand how many newcomers currently access services (and which ones), as well as the Longitudinal Survey of Immigrants to Canada data to better understand the needs of newcomers. Marketing activities would be aligned with the decisions taken regarding the realignment of ISAP (see recommendation #1).

Management Response

The Department agrees that ISAP and other settlement services can benefit from increased and more targeted promotions.

Citizenship and Immigration Canada, in collaboration with other federal departments, provinces and territories, and other key stakeholders, is currently looking at developing the Going to Canada Immigration Portal, an Internet tool to support the settlement of newcomers to Canada and to link to descriptions of settlement services such as ISAP. The Portal is designed to better inform prospective immigrants prior to their arrival to Canada, by increasing the awareness of opportunities and challenges awaiting them so they can better prepare for working and living in Canada.

The National ISAP Working Group will discuss best practices on using ethnic media and the family and friends of immigrants to assist in the dissemination of accurate settlement information. New initiatives to disseminate settlement information will be developed in consultation with the National Promotions Working Group and will take into account regional initiatives to ensure the best use of resources.

Context

Settlement programs descriptions are currently posted on www.settlement.org, www.integration-net.cic.gc.ca, the Going to Canada site, and the CIC website www.cic.gc.ca.

There are currently a variety of publications and brochures that describe CIC’s settlement programs. They include:

• You Asked About…Immigration and Citizenship
• Citizenship and Immigration Canada Integration Services
• Welcome to Canada – What you Should Know
• A Newcomer’s Introduction to Canada

Time Frame

The National ISAP Working Group will explore various promotional activities in winter 2005.

4. Re-establish ISAP funding at a level consistent with the real dollar amount in 1996. The program has experienced no funding increases for eight years, meaning that the overall real funding has been decreasing over time. The evaluation revealed that some SPOs report that they are currently using funding from other sources to “subsidize” the delivery of ISAP. This situation indicates that funding is inadequate and could jeopardize the long-term stability of the program. Once data is available from iCAMS, it will likely show the real declining investment in the program per newcomer and provide a solid business case for additional funds. Additional funding would ensure the long-term sustainability of the program.

Management Response

New approaches to funding will be considered in connection with the development of Canada’s Immigration Framework. Consultations will be held with provinces and territories, cities and communities, including Francophone minority communities, employers and others.

CIC is also committed to working with service providing organizations to explore new ways of delivering ISAP services and to encourage regions to share best practices with each other. Identifying best practices is a priority of the National ISAP Working Group.

It should be noted that the 2003 and 2004 federal budgets provided specific additional funding through the new Enhanced Language Training (ELT) initiative. In 2003–04, Citizenship and Immigration Canada launched the ELT ISAP initiative to work with partners, outside of Quebec, to develop and deliver labour-market levels of language training. The 2003 federal budget allocated $5 million per year for this initiative. An additional $15 million per year was allocated in the 2004 budget for a total of $20 million. Over the next five years, the program will expand to reach approximately 20,000 immigrants annually. Cost-sharing partnerships with provinces, territories, employers and non-government organizations are essential components of the initiative.

Context

Recommendation #5 of the 2003 Report of the Standing Committee on Citizenship and Immigration: Settlement and Integration: A Sense of Belonging, “Feeling at Home,” states:

Overall funding for settlement programs should be augmented to reflect the increase in immigrant arrivals with a benchmark of $3,000 per newcomer being dedicated to settlement services.

CIC uses the Settlement Allocation Model (SAM) to ensure the fair distribution of Settlement funds to all regions, excluding Quebec. Funding under the model is responsive to immigrant flows, as well as to refugee needs, and it protects smaller jurisdictions by supporting minimum infrastructure and reasonably comparable services for immigrants across Canada.

Because ELT targets Canadian Language Benchmarks levels 7 to 10, or those with high-intermediate language levels, those accessing ELT services are not necessarily the group creating a heavy demand on the ISAP Program. Therefore, there is still a need to address the service requirements of newcomers who are in need of initial, basic settlement services.

Time Frame

The National ISAP Working Group is committed to sharing best practices with each other for dissemination to local CIC offices and SPOs. This is an ongoing activity.

5. More clarity, targeted communications to SPOs. More clarity is required for service providers to better understand their roles and responsibilities and why certain activities cannot be funded under ISAP (e.g., lack of funding, overlap with other programs). Moreover, CIC NHQ and regions should reinforce the advantages of taking a flexible approach and explain why certain service providers have different contribution agreements or reporting requirements than others. These kinds of clarifications should address the apparent confusion between flexibility and consistency. Also, more information should be available regarding definitions of core services. Regarding communications to SPOs, information should be more carefully targeted to ensure that SPOs make cost-effective use of their time reviewing pertinent information that will ultimately improve service delivery to clients.

Management Response

The Department agrees to take action on this recommendation.

This recommendation identifies several issues which can be addressed by improving communication with SPOs.

As part of these improvements, CIC has been refining the definitions for iCAMS data elements and the ISAP logic model in order to more clearly portray roles and responsibilities in ISAP delivery. The Department is committed to reviewing and updating existing publications such as the ISAP Handbook for Service Provider Organizations and the ISAP Guide for Applicants.

In addition, the Department will develop CIC settlement officer training based on the new settlement manual so that definitions are consistently communicated to SPOs nationally.

Consultations with SPOs at the local level will continue to be encouraged to ensure that service providing organizations have the opportunity to discuss roles and responsibilities with CIC.

The Department will ensure that SPOs are notified when updated information is available or posted on various websites such as www.settlement.org and www.integration-net.cic.gc.ca.

In addition, the Department will develop existing communications products to enhance communications capacity with external stakeholders.

Context

The Department recognizes that communication is key to the success of its programs.

It is of concern that some SPOs do not understand the funding criteria or their roles and responsibilities very well, even after they have signed their contribution agreements.

The Department will use appropriate communications tools to better inform SPOs of their roles and responsibilities.

CIC regularly identifies to SPOs the importance of understanding the contribution agreement. CIC settlement officers are readily available to respond to any questions SPOs may have.

A new settlement manual for CIC officers, with revised definitions of roles and responsibilities, is being developed and will be released shortly.

Time Frame

Indicated activities will be undertaken during the next year-and-a-half, led by NHQ, working with the National ISAP Working Group.

With regard to the review and update of existing publications, a critical path will be developed once the Working Group has defined the scope of such a review and update exercise.

6. CIC should continue/open new dialogues with others. There is a role for CIC NHQ and regional offices to facilitate the settlement of newcomers by continuing existing dialogues and opening new ones with federal, provincial, territorial, municipal, not-for-profit and private sector organizations. These discussions should be aimed at making services more accessible to newcomers and, more generally, raising awareness of the benefits of immigration. Assistance with partnerships would also address the problems in some small communities where some special-needs clients are not able to get the community services they require (such as trauma counselling), because they do not exist.

Management Response

The Department agrees with the importance of developing and maintaining partnerships for discussion and open dialogue. In fact, the Department is constantly addressing it through its participation on intergovernmental committees and initiatives such as:

Federal-Provincial-Territorial Working Group on Settlement and Integration, which provides a forum for sharing information and for identifying and discussing issues of a multilateral nature with respect to settlement and integration. Members include representatives from provinces and territories and departmental officials.

The objective of the Enhanced Language Training (ELT) initiative is to develop partnerships to provide the labour-market levels of language training that immigrants require to find and retain jobs commensurate with their skills and qualifications. ELT couples job-specific language training (workplace literacy) with bridge-to-work programs that provide an orientation to the Canadian workplace, job-search assistance, cultural orientation, preparation for licensure examinations, work placement/internships in the person’s field of expertise, and mentoring.

Since 2003–04, CIC has partnered with Industry Canada, Human Resources and Skills Development Canada and Health Canada in a horizontal effort to enhance the existing Going to Canada (GTC) website (www.directioncanada.gc.ca). The objective of the GTC portal is to provide a seamless window of targeted information and services to assist potential immigrants in making informed decisions about immigrating to Canada, thus facilitating early economic and social integration.

The Settlement and Integration Joint Planning and Policy Council acts as a bridge to the future collaboration between the government and the settlement sector. It provides the partners with a consultative and planning mechanism that will maintain the follow-up work of the Voluntary Sector Initiative. Members include settlement sector representatives (from various umbrella organizations representing service providing organizations nationally), CIC (NHQ and regions), other government departments and provincial governments.

The Interdepartmental Partnership with the Official-Language Communities is a Department of Canadian Heritage initiative launched in June 2000, to create and strengthen lasting cooperative relationships between official language minority communities and federal institutions. Its objective is to ensure that the programs, policies and services of those institutions take into account the needs and realities of the official language communities, and thus support their development.

CIC maintains and encourages bilateral relations with stakeholders, including other federal departments, other levels of government, other funders, not-for-profit and private sector organizations. CIC will demonstrate leadership to determine jurisdictional responsibility and foster effective partnerships to create opportunities for meaningful employment for immigrants, and appropriate health, education and social services.

Context

Developing partnerships with key stakeholders is integral to the settlement business. CIC regularly communicates with partners on the international, national, regional and local levels to discuss settlement policy development and program improvement.

The development of partnerships could ensure the best use of available resources for settlement services and eliminate duplication.

Time Frame

Ongoing

7. Need for more and improved information on clients. There is a critical need for information on clients. This information could contribute to the allocation of resources, targeting of promotional activities, and even the redesign of the core set of services, based on who is accessing which services and how often. Not only is there a need for activity-related information, but also for outcome-related information.

Management Response

The Department agrees, in principle, with this recommendation.

The Department will have access to information on the demographic composition of client groups and service usage through the performance measurement system (iCAMS). This data will inform analyses for program improvements.

The Department plans to make some of these reports available to service providers. Where reports include client demographics, these will be displayed on an aggregate basis (no individuals are identifiable) and will enable service providers to view reports concerning only their clients.

The Department will need to secure ongoing funding for the regular maintenance of accountability activities. The maintenance of iCAMS would update the system and produce relevant reports.

The Department will explore the possibility of developing and piloting a national survey for immigrants to complete during their citizenship process. This survey would capture which settlement services immigrants accessed and which were found to be the most beneficial in the settlement process.

Context

iCAMS was designed primarily for performance measurement, evaluation, policy development, research and monitoring.

In order to maximize the benefits of the system data, it has been the Department’s intent to enable service providers access to some of the data for their own program improvement purposes.

The main approach for sharing information based on iCAMS data is the creation and distribution of iCAMS reports. A considerable amount of effort and resources have been invested in iCAMS report production.

Reports can only be shared under the strict parameters set by the federal Privacy Act and additional access restrictions.

Currently, activities are funded using settlement contribution dollars. Proposals are currently being developed for ongoing funding for iCAMS. In the absence of other ongoing funding, existing settlement funds will continue to be used.

Time Frame

iCAMS will be able to generate ISAP reports by summer 2005. CIC is developing a distribution strategy for these reports.

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