ARCHIVED – Annual Report to Parliament on Immigration, 2011

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SECTION 1
Making Immigration Work for Canada

Immigration has been a sustaining feature of Canada’s history. From Confederation to the global transformations of recent years, people have come to Canada from all over the world with their skills and entrepreneurial talents, to reunite with family members, or to seek security and stability. Canada has long been a destination of choice for immigrants, having one of the highest per capita rates of permanent immigration in the world—roughly 0.8 percent in recent years. Canada is also a leader in granting newcomers the full range of rights and responsibilities that come with citizenship. Around 85 percent of immigrants become Canadian citizens. Canada is among the world’s major immigrant-receiving countries, welcoming approximately 250,000 permanent residents and over 200,000 temporary foreign workers and international students each year. With its history and experience with immigration, Canada is known as an international leader in migration management and is respected for its long-standing commitment to protecting refugees and persons in need of humanitarian assistance.

The current immigration system must manage multiple objectives. The federal framework that guides immigration and refugee protection policy is the 2002 Immigration and Refugee Protection Act, which sets out objectives for Canada’s immigration program. The challenge for Citizenship and Immigration Canada (CIC) is to manage this temporary and permanent movement of people, while balancing economic with social and cultural development goals such as contributing to linguistic duality and the development of official language minority communities. It must also protect the health, safety and security of Canadians while facilitating the flow of people. CIC continues to modernize and explore strategies to manage the immigration system to ensure Canada remains a destination of choice for talent, innovation, investment and opportunity.

2010 Achievements

With total admissions of 280,681 permanent residents to Canada, 2010 was a groundbreaking year. This represents an 11.3 percent increase from 2009 and is the highest level in 50 years. The largest proportion came as economic immigrants (nearly 67 percent of total admissions), bringing in skills and talents that Canada needs. These high admission levels also supported family reunification and upheld Canada’s humanitarian tradition.

Modernizing Canada’s Immigration System

The reduction of the federal skilled worker (FSW) backlog by 50 percent in 2011, two years ahead of schedule, marks a significant milestone in the ambitious agenda CIC launched in 2008 to modernize Canada’s immigration system.

CIC is committed to move toward more efficient and effective processing, stronger program integrity and improved client service. The ultimate goal is to deliver a more timely, flexible and responsive immigration system with no significant backlogs, and with reasonable service standards and processing times across all business lines. This goal of a modernized immigration system is within reach over the coming years.

The magnitude of these successes becomes clear in the context of the situation CIC faced prior to the 2008 introduction of the Action Plan for Faster Immigration: growing backlogs, increasing wait times and few instruments available to prioritize economic immigration to respond to emerging priorities. Of particular concern was the FSW backlog, which in 2008 was poised to grow to over 800,000 people by 2011, with wait times exceeding seven years (see Chart 1).

Chart 1: Federal Skilled Worker Backlog (Actuals and Projections)

Text version: Chart 1: Federal Skilled Worker Backlog (Actuals and Projections)

The turning point was the introduction of amendments to the Immigration and Refugee Protection Act in Budget 2008, which removed the obligation to process most categories of applications and requests and allowed for the issuance of Ministerial Instructions establishing the circumstances under which applications are to be processed. This created the conditions to begin to address these challenges effectively.

To date, three sets of Ministerial Instructions have been introduced (2008, 2010 and 2011) that have helped reduce the pre-2008 FSW backlog by 50 percent, from over 640,000 persons to approximately 314,000 persons by June 2011. This reduction has contributed to the achievement of related Government of Canada economic immigration goals: reduced wait times for applicants and increased labour market responsiveness. New FSW application wait times, for example, have been reduced from years to months (six to 12 months for those who have applied since June 2010). While wait times have and will continue to rise for applicants under the first set of Ministerial Instructions of November 2008, this temporary situation will subside as the inventory of some 136,000 people under this stream is processed over the next two years. Labour market responsiveness has also improved, with over 77,000 visas issued under Ministerial Instructions as of June 30, 2011, and over 65,000 people admitted with in-demand skills and experience since 2008.

This success is attributable to the effectiveness of the Ministerial Instructions as an intake management tool and the operational efforts in processing applicants so as to maximize backlog reduction. CIC will build on this momentum to continue reducing the backlog through the third set of Ministerial Instructions (PDF format, 1 MB), issued June 25, 2011, with a view to eliminating the pre-2008 FSW backlog as soon as possible.

Technology, of course has played a key role in modernizing the immigration system. An example is the Global Case Management System, which is a secure, reliable and efficient case management tool that integrates citizenship and immigration data worldwide and is a fundamental component of CIC’s service innovation agenda. The Global Case Management System was successfully deployed to 97 overseas visa offices by March 2011. With international roll-out now complete, more than 5,000 users will process citizenship and overseas immigration applications using one integrated system.

Experience has shown that the key to achieving a “real time” immigration system that can respond to new and emerging priorities is ensuring that the volume of applications at the front end is matched to the capacity and resources needed to meet the level and mix of immigrants to support the government’s objectives for immigration.

Strengthening the Integrity of the Immigration System

CIC undertook significant work in 2010 to strengthen the integrity of the immigration system. Upholding system integrity is important to maintain timeliness and fairness, ensure that the health, safety and security of Canadians are safeguarded, and ensure that fraud and abuse of the immigration system are not tolerated.

CIC is improving public confidence in the regulation of third-party intermediaries through measures included in the amendments to the Immigration and Refugee Protection Act, coming into force on June 30, 2011. The amendments strengthen the rules governing those who provide immigration advice or representation for a fee or other consideration at any stage of an application or proceeding. This includes the period before a proceeding begins or an application is submitted. The Act now gives the Minister the authority to designate a body to govern immigration consultants. As such, the Immigration Consultants of Canada Regulatory Council was designated as the regulatory body of immigration consultants on June 30, 2011. In addition, the legislation authorizes the Governor in Council to make regulations to enhance the government’s oversight of the designated body and for the disclosure of information on the ethical or professional conduct of an immigration representative to those responsible for governing or investigating that conduct.

CIC also worked on several family immigration-related initiatives to protect the integrity of the immigration system. Regulatory changes to strengthen CIC’s capacity to refuse cases of suspected marriage fraud were brought into force on September 30, 2010. The Minister held town hall meetings in the fall of 2010 to gauge the seriousness of the marriage fraud challenge. CIC also conducted on-line consultations on marriages of convenience in the fall of 2010 to gather public and stakeholder views on this issue. As noted in the Speech from the Throne, additional regulatory measures to deter marriages of convenience are being developed. Regulatory changes to strengthen the family violence sponsorship bar are also being pursued.

Working with Others to Respond to Immigration Challenges

International engagement helps advance a modern and managed migration system. Canada maintains a high level of recognition and respect globally, and continues to work with other countries to foster cooperation and development of effective migration management policies. During 2010-2011, CIC played a leading role in advancing the Government of Canada’s position in relation to global discussions on international migration. This involved participation in, or support for, approximately 80 international migration-related events, such as the Global Forum on Migration and Development. This informal, non-binding, government-led process was launched in 2007 to address international migration issues in order to build a forum for global dialogue focusing on key issues related to migration and development.

CIC also works with representatives of foreign governments in promoting Canadian interests on migration. Multilaterally, CIC in conjunction with the Canada Border Services Agency actively participates in the Five Country Conference (FCC), which is a partnership between Canada, Australia, New Zealand, the United Kingdom and the United States. The FCC provides a valuable forum to collaborate on migration and border management issues with the aim of improving the security and integrity of immigration systems, improving client service, and identifying ways to achieve operational efficiencies. CIC also plays a leading role in the Regional Conference on Migration, an effective forum in the Americas that advances cooperation and development on migration-related areas, such as border management, international protection, integration, human trafficking, human rights and consular protection. Bilaterally, CIC maintains a Canada-Mexico high-level migration dialogue, enhanced, at Mexico’s request, since the lifting of the visa exemption in 2009. CIC also contributes to the enhancement of Canada’s border management system with the United States, in particular, by focusing on both security and economic objectives as laid out in the Canada-U.S. Declaration on a Shared Vision for Perimeter Security and Economic Competitiveness.

CIC has strong working relationships with the provinces and territories. To strengthen immigration planning, in 2010 CIC worked with the provinces and territories to develop options for improving planning for immigration levels through a process that is more consistent and predictable, while maintaining necessary flexibility. The goal is to launch a multi-year levels planning approach in 2012 for 2013 and beyond. Multi-year levels planning supports CIC’s overall goal of modernizing the immigration system so that it is better placed to respond to immigration needs through a more effective use of resources. In June 2011, officials from CIC and the provinces and territories endorsed the principles and approach to multi-year levels planning that support the Joint Federal–Provincial/Territorial Vision for Immigration. CIC looks forward to building on its productive working relationship with the provinces and territories for this transformative agenda.

The Department continued to work with a range of partners on key issues related to temporary residents, particularly temporary foreign workers and international students. A number of changes have been implemented since 2010 to improve protections for temporary workers and reinforce employer compliance with program requirements. Regulatory and administrative changes to the Live-in Caregiver Program were implemented by CIC in April 2010 that increase protections and program flexibility (e.g., more comprehensive employment contracts, emergency processing for urgent cases).

Further, in collaboration with Human Resources and Skills Development Canada and the Canada Border Services Agency, CIC implemented regulatory changes in April 2011 to the broader Temporary Foreign Worker Program that, among other provisions, could deny access to the program to employers who do not abide by the terms of their job offers. These changes also introduce limits to the amount of time temporary foreign workers may stay in Canada—reinforcing the temporary nature of work under the program and aiming to encourage workers and employers to use appropriate pathways to permanent residence when applicable. Transitions from temporary to permanent resident status are, and continue to be, facilitated through avenues including the Canadian Experience Class, the Federal Skilled Worker Program and the Provincial Nominee Program. Such linkages between immigration streams are an example of how CIC balances the multiple priorities of its programming and strives to ensure that Canada responds to regional and short-term labour market needs as well as longer-term national immigration needs.

CIC has also advanced work on the international student program. In June 2010, Federal–Provincial/Territorial (FPT) ministers of immigration committed to “work together to ensure that Canada continues to improve its standing as a destination of choice for international students seeking a quality education.” Since then, an FPT working group has been established to discuss proposed regulatory changes to enhance the integrity of the international student program that will ensure that students study after arrival in Canada and that will provide a formal role for provinces and territories in determining which institutions should host international students. The changes being explored will require that FPT governments work together more closely on international education initiatives. Collaboration between governments will be key to successfully achieving the shared goal of making Canada a destination of choice for international students.

Protecting the Health, Safety and Security of Canadians

In modernizing and ensuring the effectiveness of the immigration system, CIC also contributes to protecting the health, safety and security of Canadians by establishing admissibility policies and screening foreign nationals for permanent and temporary residence.

CIC is modernizing its Immigration Medical Assessment Program through the implementation of e-medical, an automated system that will streamline the processing and assessment of immigration medical examinations. CIC also entered into a new claims administration contract that will introduce electronic adjudication of medical claims for the Interim Federal Health Program. Furthermore, CIC initiated a thorough review of its Interim Federal Health Program to explore strategies for containing the cost of services and targeting the services to those most in need.

Addressing concerns for border integrity and security, CIC’s Temporary Resident Biometrics Project will strengthen identity management by making relevant and reliable identity information available to CIC visa officers. Beginning in 2013, some foreign nationals will be required to provide their biometrics at the time of application for a visa, study permit or work permit, to allow for the verification of that identity when the individual seeks entry at the border. As a result, the Government of Canada will better ensure the safety and security of Canadian society and reduce abuse of the immigration system by limiting opportunities for persons with Canadian criminal or deportation histories to use alternate identities to return to Canada, as well as facilitate legitimate travel.

In 2010, the Department, in collaboration with the Canada Border Services Agency and the Royal Canadian Mounted Police, effectively continued work on the High-Value-Data Sharing Protocol to share biometric information on high-value cases with Canada’s international partners of the FCC [Note 6]. Under the Protocol framework, Canada is sharing 3,000 fingerprints each year with each partner. This exchange has proven extremely valuable for detecting false claimants and preventing their entry into Canada. Moreover, Canada and the United States have committed to working together to prevent threats early by increasing the level of information sharing between them.

Also in 2010, CIC developed a plan as part of its modernization agenda to implement an expanded global service delivery network of visa application centres. Visa application centres are operated by third-party service providers and enhance service delivery by providing visa applicants easier access to services closer to home, including biometrics enrolment. Visa application centres currently operate in 54 locations in 35 countries from Asia, Africa Eastern Europe and Latin America. Safeguards governing the protection of personal information will continue to be part of the terms of agreement with each service provider.

Building on these successes, the Department approved a Program Integrity Framework and Action Plan in March 2011 and began implementation in April 2011. The purpose of the Framework is to fully integrate risk management, quality assurance, and fraud deterrence and detection into CIC’s day-to-day operations. These elements are already in place within CIC, but a modernized work environment offers the opportunity to implement them in a more systematic and consistent manner. The overall goal of the Framework is to ensure that CIC delivers the right service to the right person for the right reason. A number of activities are planned in 2011–2012 to build capacity across the Department.

Upholding Canada’s Long-standing Humanitarian Tradition

CIC continued to consider requests for humanitarian and compassionate considerations. In 2010, through a public policy, CIC announced plans to facilitate permanent residence for up to 1,000 Tibetans from Arunachal Pradesh, India, over a five-year period. Special immigration measures will be developed in a way to maximize community involvement for this group, by focusing on individuals who secured support from the Tibetan community or other interested supporters in Canada. In addition, October 2010 saw the arrival of the first Afghans assessed under special immigration measures program for those who supported the Canadian mission to Kandahar and faced extraordinary and individualized risk as a result of that work. Under this initiative, which was announced in the fall of 2009, it is expected that over 550 Afghan nationals, including dependants, will be resettled by the spring of 2012. These efforts are part of the humanitarian tradition that Canada upholds.

Canada also maintains one of the world’s largest refugee resettlement programs, reflecting Canadians’ long-standing tradition of offering protection to the displaced and persecuted. The government enacted long-awaited reforms to Canada’s asylum system in 2010. Bill C-11, the Balanced Refugee Reform Act, was passed with all-party support by Parliament and received Royal Assent on June 29, 2010. The changes brought about by the legislation will continue to support the underlying principles of Canada’s asylum system: ensuring fairness, protecting genuine refugees and upholding Canada’s humanitarian tradition. The new asylum system will continue to exceed Canada’s international and domestic legal obligations to asylum seekers. All eligible refugee claimants will continue to receive a fair hearing based on their personal situation and will have avenues for appeal. Among other changes, the legislation provides for the establishment of regulated processing timelines to make the system more efficient, as well as the creation of the Refugee Appeal Division at the Immigration and Refugee Board. Work continues to ensure that the new asylum system is implemented as early as possible. The new system will come into effect on June 29, 2012.

As part of the Balanced Refugee Reform Act, the government also announced a 20 percent increase in the number of resettled refugees that Canada will receive each year, to approximately 14,500 persons by 2013. This increase means that, by 2013, Canada will welcome 11 percent of all refugees resettled from around the world. The first stage of increases is reflected in the 2011 levels plan.

In 2010, CIC also initiated steps to help reduce backlogs in the resettlement programs. These measures will help to ensure that CIC’s resettlement programs regain flexibility to respond in a timely manner to urgent and unmet protection needs.

Canada’s Immigration Plan for 2012

The 2012 levels plan reflects the Government of Canada’s efforts to address economic, social and humanitarian objectives. The admission range of 240,000 to 265,000 is maintained for the sixth consecutive year, reaffirming the commitment to sustained immigration levels to continue to fulfil the Department’s objectives. The range is based on consultations with provinces and territories, stakeholders, Action Plan for Faster Immigration objectives and operational capacities.

The admission ranges for 2012 will also support CIC’s progress to modernize the immigration system, with more efficient and effective processing, strengthened program integrity, and improved client service. Momentum to meet Action Plan objectives has been building since 2008, and the 2012 immigration levels plan will sustain progress and position CIC for achieving its goal of a modernized immigration system in the coming years.

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