ARCHIVED – Annual Report to Parliament on Immigration, 2011

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SECTION 4
Integration of Newcomers and Canadian Citizenship

The successful settlement and integration of new immigrants to Canada is an important objective of the Immigration and Refugee Protection Act. Immigration is fundamental to the development of Canada’s economy, society and culture, and Canada strives to be a world leader in maximizing its benefits. To create a stronger nation benefiting both newcomers and Canadians, Canada is one of the few countries with a managed immigration program directed toward newcomers ultimately becoming full citizens.

Settlement

Settlement refers to the short-term transitional issues faced by newcomers, while integration is an ongoing process of mutual accommodation between an individual and society. The key to maximizing the benefits of immigration is ensuring that newcomers have the information, tools and opportunities to realize their potential and become fully engaged in all aspects of Canadian society. Notwithstanding its tremendous benefits, immigration is also accompanied by significant challenges for both newcomers and the host society. The Settlement Program of Citizenship and Immigration Canada (CIC) assists immigrants and refugees with overcoming challenges specific to the newcomer experience (e.g., lack of official language skills and limited knowledge of Canada) so that they can participate in the social, cultural, civic and economic life of Canada. The program accomplishes this goal by providing language learning services for newcomers, community and employment bridging services, settlement information, and support services to facilitate access to CIC settlement programming.

Each year, eligible newcomers access settlement services delivered by service providers such as community-based organizations funded through formal contribution agreements with the Department. CIC directly funds settlement services in all jurisdictions except Quebec, Manitoba and British Columbia. These services include language instruction and skills development, information and orientation, and initiatives to support social engagement, community connections and labour market participation. In 2010–2011, the number of interventions for newcomers increased by more than eight percent in jurisdictions where CIC is responsible for the delivery of settlement services over the previous fiscal year. As a result, approximately 193,000 unique clients received a settlement service, 131,000 received an information/orientation service, 46,000 received a language assessment and 63,500 attended language training. In 2010-2011, use of language training services increased by more than six percent in comparison with 2009–2010.

Through federal–provincial agreements, British Columbia, Manitoba and Quebec have assumed responsibility for the design, administration and delivery of settlement services for newcomers who settle in these provinces, but are expected to achieve outcomes comparable to those of CIC programs.

As newcomers’ language abilities are vital to their successful integration, CIC has developed a standardized language test (the Milestones Test) based on a Canadian language benchmark. This test will contribute to the Department’s ability to assess overall program outcomes and impact, while also providing newcomers with a means to demonstrate their language proficiency.

The Department concluded its 2009–2010 Language Training Vouchers pilot project, which was intended to increase the participation rate of official languages training offered to newcomers. The results of this pilot showed that clients who received a voucher were 25 percent more likely to access a Language Instruction for Newcomers to Canada service than clients who did not receive a voucher.

In 2010-2011, the Department substantially revised and updated the settlement-related information it provides to newcomers on-line, in print and in person. In particular, CIC enhanced its suite of settlement information products and orientation services for newcomers. Comprehensive settlement information has been assembled on 16 practical topics such as housing, employment, education and health care. This information will be incorporated into the Welcome to Canada publication and the CIC website by early 2012.

In-person orientation sessions were also offered overseas to Canada-bound migrants, to complement the available on-line information products. In 2010–2011, nearly 16,000 immigrants to Canada (including over 6,400 refugees) received in-person orientation services before leaving their home country. These services were delivered by three service providers in more than 30 countries. An evaluation of these services will take place in 2011–2012 and a strategy to increase the coherence and efficiency of these services for selected clientele will also be developed.

Former settlement programs (Language Instruction for Newcomers to Canada, Immigration Settlement and Adaptation Program, and Host) were evaluated and their administration audited in 2010. Findings were generally positive, recognizing the value of the programs. Based on recommendations, CIC is improving the needs assessment and referral activity stream, the quality of the classroom experience for language services, and the use of informal learning opportunities. CIC also prepared the government response to the Report on Best Practices in Settlement Services, which included six recommendations and was tabled in the House of Commons. CIC continues to implement the commitments made in the government response.

In 2010, CIC successfully completed the national transition to the current modernized approach, which offers three key transformations to improve settlement outcomes: greater flexibility, results-oriented programming, and better planning and coordination. The modernized approach is a fundamental shift in how CIC and service provider organizations address the needs of newcomers, and how settlement initiatives are delivered and administered. Settlement programming has moved from separate programs (such as Language Instruction for Newcomers to Canada, Immigration Settlement and Adaptation Program, and Host) to one single Settlement Program. The approach is activity-based and outcome-based to make sure settlement programming is responsive and flexible to meet clients’ needs. Overall, this approach has generated an increase of eight percent in the usage of settlement services by newcomers and has increased efficiencies by reducing the number of contribution agreements by 17 percent.

CIC continues to work toward achieving comparable outcomes for newcomers across Canada by ensuring that the level of funding for federal settlement services in each jurisdiction is allocated in a fair and transparent manner. To this end, for all jurisdictions outside of Quebec, settlement funding is determined in a consistent manner using the federal settlement funding formula, which allows funding to flow to the provinces where immigrants settle.

In 2010–2011, CIC identified key outcomes and indicators of successful settlement and continued to advance the implementation of a performance measurement strategy. In addition, Federal–Provincial/Territorial ministers for immigration agreed to develop a pan-Canadian framework for settlement outcomes to help guide future settlement and integration policies across the country. As a result, CIC initiated work on a national survey to assess the settlement outcomes of newcomers, the findings of which will contribute to the development of the framework.

In consultation with the settlement sector, CIC also developed a refined list of performance indicators for its resettlement program, and developed a draft methodology for data collection that is scheduled to be implemented in 2011–2012.

CIC continues to offer financial support and immediate essential services to help government-assisted refugees resettle in Canada and integrate into Canadian society. Through the Resettlement Assistance Program, the government ensures the delivery of essential services (such as reception services at the port of entry, temporary accommodation, assistance in finding permanent accommodation and financial orientation) through contribution agreements with service provider organizations. This program also provides income support for up to 12 months after arrival in most cases, and up to 24 months for refugees with special needs, such as victims of trauma or torture.

CIC also continued to build on its collaboration with key stakeholders to promote the recruitment of French-speaking newcomers and foster their integration into Francophone minority communities. The CIC Francophone Minority Communities Steering Committee, in collaboration with its community partners, continued the implementation of the Strategic Plan to Foster Immigration to Francophone Minority Communities. To support the economic integration of French-speaking immigrants into Francophone minority communities, CIC continued its efforts to raise awareness among employers through the organization of job fairs for newcomers. The Destination Canada Job Fairs in Paris and Brussels in November 2010 involved 11 Canadian provinces and territories, 68 Canadian employers, and 2,600 participants.

In 2010–2011, with continued support from Canada’s Economic Action Plan, CIC’s Foreign Credentials Referral Office, in collaboration with Human Resources and Skills Development Canada, Health Canada, and provincial and territorial partners, successfully implemented the one-year commitment to timely service with the initial eight target occupations under the Pan-Canadian Framework for the Assessment and Recognition of Foreign Qualifications. CIC also assumed responsibility of the Canada Immigrant Integration Program from Human Resources and Skills Development Canada and supported the expansion of pre-arrival foreign credential recognition orientation services, which included opening a new London (U.K.) office and expanding eligibility to include federal skilled workers, provincial nominees and their working-age dependants. In 2010, CIC continued the development of the International Qualifications Network, a website to showcase foreign credential recognition best practices to leverage departmental efforts to facilitate labour market integration of internationally trained individuals.

Canadian Citizenship

The acquisition of citizenship is a significant step in the integration of newcomers. Granting citizenship to eligible applicants allows newcomers to acquire the full range of rights of citizenship and encourages them to fulfill the responsibilities of citizenship. The acquisition of citizenship also helps newcomers secure a stronger sense of belonging to Canada and share a common bond as part of the Canadian family. Supporting citizenship involves providing an environment where civic participation and the expression of identity are fostered through tools for promoting and celebrating citizenship, and through enhancing the meaning of Canadian citizenship. CIC will continue its efforts to promote Canadian citizenship, strengthen its value and ensure integrity in the process of acquiring it. Accordingly, some of the Department’s objectives are to increase civic literacy and a sense of belonging for both newcomers and established Canadians alike. To that effect, greater focus is being placed on building awareness of Canadian values and history, institutions that shape Canada, and the rights and responsibilities associated with Canadian citizenship.

The Citizenship Program continued administering various promotional activities such as Canada’s Citizenship Award, Celebrate Citizenship Week, and Canada’s citizenship and reaffirmation ceremonies in communities. In 2010, the Department held 1,723 citizenship ceremonies, of which 425 (25 percent) were enhanced ceremonies, which are often held off-site in the community with partner organizations.

In 2010, CIC processed 153,644 applications for citizenship, resulting in 143,329 individuals becoming Canadian citizens. Program funding for citizenship grants based on an assumption of 170,000 applications processed per year. However, application intake continues to exceed this number with an average annual intake of 228,000 between 2008 and 2010. In 2010, the Citizenship Program underwent several operational changes that increased the time needed to review grant applications or that increased the time needed for applicants to move forward in the application process. Because of these changes, the 2010 target for grants processing was not met. Key initiatives that had an impact on processing include the implementation of program integrity measures, as well as the introduction of a standardized language assessment tool (which required training all citizenship officers and judges). Processing was also affected by a temporary policy to allow applicants to rewrite the citizenship test if they failed on their first attempt. This temporary policy expired in February 2011.

In 2010, CIC issued 69,766 applications for citizenship certificates (proofs of citizenship) to existing citizens, exceeding its established target of 38,000. Furthermore, inventories were reduced from 43,362 applications in 2009 to 24,475 in 2010. CIC continues to explore measures to determine where modernization efforts should be focused in support of greater operational efficiency and effectiveness in the Citizenship Program.

CIC continued to implement its Citizenship Action Plan, which consists of a coordinated set of initiatives that aim to improve the integrity of the Citizenship Program and strengthen the value and meaning of Canadian citizenship by promoting increased civic knowledge, civic participation and sense of belonging to Canada. Specifically, CIC revised the citizenship test study guide Discover Canada: The Rights and Responsibilities of Citizenship, which was originally introduced in November 2009. The updated version of Discover Canada further strengthens its content on common Canadian values such as freedom, democracy, human rights, the rule of law, and the equality of men and women, and was released in March 2011. In the first six months of its release, the publication received over 670,000 on-line views and over 89,000 downloads.

A new citizenship knowledge test that aligns with the study guide was introduced in 2010. The Department also amended its regulations pertaining to knowledge requirements in October 2010. In particular, the Citizenship Regulations were amended respecting citizenship knowledge requirements to provide greater flexibility in the ability to test applicants consistently on a range of knowledge of the characteristics of Canada, and of the responsibilities and privileges of citizenship. The knowledge test continues to be the primary tool for assessing language proficiency for citizenship. However, applicants’ interaction with CIC staff (and in cases where an interview with a citizenship judge is necessary) is also used to assess their ability to communicate in either English or French. To this end, language assessment tools for CIC officials and citizenship judges were revised and standardized in 2010 to ensure a consistent approach for determining language proficiency.

The Multiculturalism Program supports the government’s effort to enhance the value of Canadian citizenship. Its objectives emphasize fostering intercultural understanding, citizenship, civic memory and pride, respect for core democratic values grounded in history, and equal opportunity for all Canadians. Inter-Action, the new multiculturalism grants and contributions program, was launched in June 2010. Inter-Action has two streams: projects and events. The projects stream focuses on long-term, multi-year projects that support integration while the events stream provides grants to small community-based events that promote intercultural understanding between various communities. Departmental progress on results achieved on multiculturalism will also be reported in the Annual Report on the Operation of the Canadian Multiculturalism Act.

CIC made progress on the Citizenship Fraud Action Plan by reinforcing the roles and responsibilities of citizenship officers in maintaining program integrity and implementing mandatory system checks at strategic points in the citizenship grant application process to identify applicants who may not meet the residency obligation.

The National Citizenship Fraud Conference capped the year’s activities, bringing together approximately 50 citizenship officials from across Canada, along with participants from the Canada Border Services Agency, the Royal Canadian Mounted Police and Passport Canada. A number of anti-fraud tools developed to assist citizenship officials in the detection of fraud and newly implemented procedures were presented and discussed.

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