ARCHIVED – Annual Report to Parliament on Immigration, 2007

This Web page has been archived on the Web

Section 4
Maintaining Canada’s Humanitarian Tradition

There are millions of refugees worldwide, the majority of whom have been living in refugee camps for a very long time. According to statistics released by the United Nations High Commissioner for Refugees (UNHCR), the number of refugees around the world increased to almost 10 million by the end of 2006, reversing a declining trend which had seen the number of refugees reaching 8.4 million in 2005, the lowest level since 1980.

CIC plays a significant role in maintaining Canada’s humanitarian tradition by offering protection in Canada for refugees and persons in need of protection, and through active participation in multilateral and bilateral international fora on refugee protection. Each year, Canada protects many thousands of people through the in-Canada refugee protection system and the resettlement of refugees selected abroad.

Convention refugees are individuals who, because of a well-founded fear of persecution for reasons of race, religion, nationality, membership in a particular social group, or political opinion, are outside their country of nationality or habitual residence, and are unable or unwilling by reason of that fear to return to that country.

In conformity with the United Nations Convention Against Torture, protection may be granted to individuals who are already in Canada and whose removal to their country of nationality or former habitual residence would subject them to risk of torture, risk to life, or cruel and unusual treatment or punishment.

Refugees selected abroad fall into two categories: government-assisted and privately sponsored. In addition to Convention refugees, resettlement is extended to individuals who do not fully meet the definition of a Convention refugee but are seriously and personally affected by civil war, armed conflict or massive violations of human rights.

As part of the international community, Canada is engaged in helping to find comprehensive solutions for protracted refugee situations, and supporting efforts to help emerging democracies look for ways to solve many of the problems that create refugee populations in the first place.

Canada’s Role in International Protection

Canada’s international and domestic refugee protection agenda continues to be challenged by international events, the increased number of refugees and internally displaced persons worldwide, and the related security concerns and human rights issues. Canada participates in various international fora to influence discussions and the future directions of multilateral partnerships and strategies. CIC has remained an active participant in international discussions on protection through the Executive Committee of the UNHCR, the Inter-Governmental Consultations on Asylum, Refugees and Migration Policies, and the Trans-Atlantic Dialogue with the European Union (Canada-EU Partnership Agenda/Trans-Atlantic Dialogue). The United Nations High Commissioner for Refugees, António Guterres, visited Canada in November 2006, at which time Canada announced a $1-million contribution to the Mexico Plan of Action for initiatives to strengthen refugee resettlement capacity in the Latin American region.

Resettlement of Refugees from Abroad

Through the Refugee and Humanitarian Resettlement Program, Canada works closely with international partners, including the UNHCR, to select for resettlement in Canada refugees from abroad for whom there is no other durable solution available within a reasonable period of time. This group includes refugees found to be disproportionately more at risk than the general refugee population. With the Resettlement Assistance Program (RAP), CIC helps government-assisted refugees (GARs) settle in Canada. The Government’s efforts are supplemented by private sponsorships in accordance with the Private Sponsorship of Refugees (PSR) Program. Under this program, sponsorship organizations and groups of individuals also assist refugees and other people in similar circumstances in rebuilding their lives in Canada.

To be eligible under the GAR and PSR programs, individuals must be unable to return to their country of nationality or habitual residence, or to remain in the country that has granted them temporary protection — the first country of asylum. They must also undergo a medical examination, and security and criminality checks.

In 2006–2007, CIC continued to use the refugee resettlement program more strategically, in order to have a greater impact on international protection needs. This was achieved by working with other government departments, the international community and other resettlement countries to find more durable solutions for refugees.

In response to the UNHCR’s appeal to the international community to address the humanitarian crisis in Iraq, CIC agreed to accept an additional 500 referrals beyond the previous commitment to resettle 900 Iraqis in 2007, and is prepared to make a multi-year commitment for 2008 and beyond.

In 2006, as part of a multilateral effort to reduce the number of refugees in Thailand, CIC selected 810 Burmese Karen refugees from refugee camps in Thailand. The majority have since arrived in Canada. In early 2007, CIC interviewed and selected an additional 1,850 Karen refugees from two refugee camps in Thailand. The first groups arrived in Canada in June 2007.

In 2006, Canada strategically engaged in international fora to improve deplorable camp conditions and find durable solutions for 26,000 Burmese Rohingya refugees who are currently living in two refugee camps in a difficult and protracted situation in Bangladesh. To support these efforts, CIC selected 23 refugees for resettlement, the majority of whom have since arrived. In 2007, Canada will accept approximately 70 Rohingya refugees.

An estimated 108,000 Bhutanese refugees have resided in camps in southeastern Nepal since the early 1990s. During the past several years, Canada has been working with international partners and the UNHCR to achieve a comprehensive solution. In May 2007, Canada announced that it has agreed to resettle up to 5,000 Bhutanese refugees over the next three to five years.

The Resettlement Assistance Program

CIC offers financial support and immediate essential services to help GARs resettle in Canada and integrate into Canadian society. Through RAP, 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 (SPOs). This program also provides income support for up to one year in most cases, and up to two years for refugees with special needs, such as victims of trauma or torture. In addition, the IFHP provides emergency and essential health-care coverage until refugees are eligible for provincial health-care programs. It also provides access to supplementary health-care services such as eyewear, dental and pharmacare for 12 months from the day of landing. This program is available to all resettled refugees upon arrival in Canada.

In 2006–2007, CIC continued to develop and promote effective relationships with SPOs responsible for the delivery of RAP. In February 2007, CIC held the National RAP Conference in Vancouver, B.C., which was attended by 240 delegates from SPOs, provinces, national and international NGOs, and CIC. The conference was an opportunity for SPOs to share experiences, develop skills, and provide recommendations to make settlement programming more focused on the needs of refugee clients. In addition, the joint CIC-SPO RAP Working Group held multiple consultative meetings throughout the year to develop strategies to improve outcomes for refugees.

In response to the 2004 RAP evaluation, CIC continued to enhance the program in order to meet the immediate and essential needs of GARs more effectively. Enhancements include increased support programming and income supports for GARs. Additional income support included an increase in RAP allowances to match increases in social assistance rates by the provinces, and the introduction of a new monthly school allowance for children. Programming enhancements in 2006 included a new life skills orientation program for resettled refugees who need basic life skills education, and an overall increase in the funded hours of RAP service support for each GAR. These refinements give service providers greater flexibility to respond to the particular needs of resettled refugees.

The Private Sponsorship of Refugees Program

In addition to government support, refugees receive assistance to resettle in Canada from private sponsorship organizations representing religious, ethnic and community groups, and from groups of five or more individuals. Through the PSR Program, these groups take on the responsibility of providing refugees with accommodation, resettlement assistance and emotional support for up to one year. In exceptional circumstances, this assistance can be extended for up to three years for refugees with special needs such as victims of trauma and torture, or women and children at risk.

Over the past year, both CIC and the private sponsorship community have acknowledged the need for continued efforts to strengthen their relationship and to maintain clearer lines of communication in order to address program challenges. In addition to ongoing engagement through the NGO-Government Committee on the PSR Program, CIC undertook a formal evaluation of the program in 2006. The results of the evaluation can be found at www.cic.gc.ca/english/resources/evaluation/psrp/psrp-summary.asp.

As a means to improve the program, and as a special effort to reduce the inventory, Sponsorship Agreement Holders voluntarily cut back on the number of applications they submitted in 2006 by over 30%, and CIC increased the number of PSR cases it processed. This resulted in the smallest annual increase in inventory size in over five years, and further impact on the inventory size is expected to be felt in 2007–2008. The upper end of the PSR target was raised to 4,500 for 2007 to provide greater flexibility in responding to emerging refugee populations and in addressing protracted refugee situations. In addition, CIC continued to fund a refugee eligibility training program to help private sponsors with refugee identification. Further steps to strengthen the program will be identified following a PSR Program conference that is expected to take place in the fall of 2007.

The Immigration Loans Program

In accordance with IRPA, CIC also manages the Immigration Loans Program. Geared primarily to refugees from abroad seeking permanent residence in Canada, these loans are intended to cover the pre-entry medical examination, transportation costs to Canada, and expenses associated with initial settlement in Canada.

The current limit on the loan fund is $110 million, of which outstanding loan accounts totalled $38.1 million as of March 31, 2007. Loan collection will continue to be managed with due diligence to maintain the strong recovery rate for repayment – currently at 91%.

In 2006–2007, CIC contributed $1.2 million from RAP towards alleviating the loans of some refugees with special needs (namely, seniors, refugees with health issues, single parents with large families). In addition, Parliament gave its approval to write off $978,102 in immigration loans in the 2006–2007 final supplementary estimates.

Protection for Individuals Who Make Refugee Protection Claims in Canada

In addition to refugees selected abroad for resettlement, protection can be extended to individuals who seek asylum upon or after their arrival in Canada. The IRB, an independent administrative tribunal, oversees a quasi-judicial process that determines claims for refugee protection made in Canada. For further information on the IRB, please see www.irb-cisr.gc.ca. This process is designed to ensure fair and consistent decision making in accordance with Canadian law and Canada’s international obligations and humanitarian traditions. The IRB hears refugee protection claims referred by CIC and the CBSA.

In 2006, a total of 22,944 individuals made a claim for refugee protection across Canada.

This represents an increase of 14% over the 2005 total of 19,761 (the 2004 total was 25,521). In 2006, the IRB approved 47% of all cases for which it rendered final decisions.

Persons whose claim for protection has been accepted may apply for permanent residence for themselves and dependants or close family members, whether in Canada or abroad. However, if the claim for protection is refused, the individual is informed of the reasons in writing and is required to leave the country. A person whose claim is refused and who must leave the country may apply to the Federal Court for a judicial review. A judge of that court decides whether leave will be granted. In most cases, a person has the right to remain in Canada pending the outcome of the judicial review. Refused claimants may also apply to CIC for a Pre-Removal Risk Assessment (PRRA) before removal from Canada. The PRRA process ensures that the risk to the individual is assessed before that person is removed from Canada, particularly in cases where there has been a change in situation in the country of nationality, or new evidence indicates that the person needs protection. Most successful PRRA applicants may apply for permanent residence in Canada under the Protected Persons category. The IFHP provides supplementary and basic health-care coverage for refugee claimants during the period in which they do not qualify for provincial medical insurance.

Statistical Overview of Protected Persons Admitted in 2006

With the admission of 7,316 GARs and 3,337 privately sponsored refugees in 2006, the planned targets for these two categories of resettlement of refugees overseas were met, as was the target for admissions of dependants abroad of protected persons in Canada. The number of protected persons in Canada admitted in 2006 was 15,892, which was short of the planned range. The number of inland protected persons admitted to Canada is largely dependent on the number of persons making asylum claims in Canada and the number of whom are found to be in need of Canada’s protection. It is not unusual for these numbers to vary significantly from one year to the next, reflecting changing conditions in source countries.

Table 10: Protected Persons Admitted in 2006
(Compared to the Immigration Plan)

<< Previous | Contents | Next >>