ARCHIVED – Annual Report to Parliament on Immigration, 2008

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Section 4
Maintaining Canada’s Humanitarian Tradition

According to the United Nations High Commissioner for Refugees (UNHCR), there are over 11 million refugees in the world, the majority of whom have been living in refugee camps for a very long time.

By offering protection in Canada for refugees and persons in need of protection, and through active participation in international fora on refugee protection, CIC plays a significant role in upholding Canada’s humanitarian tradition towards refugees. 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. Persons in need of protection are persons whose removal to their country of nationality or former habitual residence would subject them to the danger of torture, risk to life, or cruel and unusual treatment or punishment.

Individuals in Canada who have made a refugee protection claim and have been determined to be Convention refugees or persons in need of protection are offered Canada’s protection. There are two categories of refugees selected abroad: government-assisted and privately sponsored refugees. 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.

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. In 2007–2008, CIC continued to influence international discussions on protection through the UNHCR’s Executive Committee, Standing Committee, and Working Group on Resettlement. CIC also participated in the Inter-Governmental Consultations on Migration, Asylum and Refugees.

Canada has devoted particular attention to finding solutions for protracted refugee situations in which refugees have spent many years in exile without durable solutions. CIC works with other government departments, civil society and other governments to put the resolution of protracted refugee situations at the top of the global protection agenda. These refugee situations are complex, requiring a coordinated approach among actors in such fields as immigration, development and diplomacy. With strong and sustained encouragement from Canada, the UNHCR adopted this issue as a key priority. In early 2008, the UNHCR also decided to devote his December 2008 Dialogue with member countries and other partners to finding comprehensive solutions for refugees in protracted situations.

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. CIC’s Resettlement Assistance Program (RAP) helps government-assisted refugees (GARs) resettle 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 help refugees and other people in similar circumstances to rebuild 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 2007–2008, CIC continued to use the refugee resettlement program more strategically in order to reduce the numbers of refugees in particular situations. This was achieved by working with other government departments, the international community and other resettlement countries to find more durable solutions for refugees.

Each year, refugees from about 70 different nationalities are given a new start in Canada. However, to enhance effectiveness, CIC’s resettlement program focuses on specific refugee populations. In addition to large-scale resettlement of Colombians and Afghans, CIC has been active in the resettlement of Iraqis in Syria and Jordan, Karens in Thailand, Rohingyas in Bangladesh, and Bhutanese in Nepal.

In response to the UNHCR’s appeal to the international community to address the humanitarian crisis in Iraq, CIC has increased resettlement places for Iraqi refugees. The total target for the Middle East in 2008 has been increased by about 60 percent to 3,300 persons, and CIC is prepared for a multi-year engagement. The majority of these persons will be Iraqis resettled from Syria and Jordan.

Since 2006, CIC has been selecting Burmese Karen refugees as part of a multilateral effort to reduce the population of Karen refugees in Thailand’s camps. To date, approximately 3,900 Karen refugees have been selected for resettlement to Canada. As of March 2008, approximately 2,000 Karen have already started a new life in Canada. The remainder are expected to arrive in 2008 and 2009.

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, Canada became the first country to resettle Rohingya refugees. In 2006 and 2007, approximately 100 were selected and, in 2008, Canada will accept approximately 200 more Rohingya refugees.

An estimated 107,000 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 had agreed to resettle up to 5,000 Bhutanese refugees over the next three to five years. Preparations for processing and settling this group are already well advanced. The first selection exercise is planned to occur in the fall of 2008, with the first group of refugees anticipated to arrive in early 2009.

The Resettlement Assistance Program

CIC offers financial support and immediate essential services to help GARs resettle in Canada and integrate into Canadian society. Through the Resettlement Assistance Program (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 12 months after arrival in most cases, and up to 24 months for refugees with special needs, such as victims of trauma or torture. The joint CIC-SPO RAP Working Group continued to meet throughout the year, including a meeting in St. John’s, to develop strategies for improving outcomes for refugees.

Since the implementation of IRPA in 2002, Canada has emphasized in its resettlement decisions the need for protection over the ability to settle immediately. As a result, refugees resettled in Canada today have higher and more varied needs than previous refugee populations. Available economic and social integration indicators suggest that refugees face more difficulty integrating than other immigrants. Key challenges include difficulty accessing adequate housing, limited or no labour market skills, limited official language skills, mental and physical health concerns, and developmental issues for children. In response to increasing funding pressures on resettlement activities addressing these issues, CIC allocated an additional $13.9 million over three years in temporary funding to RAP, starting in 2007–2008.

Furthermore, GARs take longer to become self-sufficient and active participants in their new communities. Income support provided under RAP is essential to providing basic life needs while GARs take their first steps towards integration. Therefore, RAP programming is being reviewed to ensure it meets the increasing needs of GARs. To support program development, CIC funded research on various elements of RAP to determine which areas require enhancement. To this end, a report entitled A National Approach to Meeting the Needs of GAR Children and Youth within the Resettlement Assistance Program[note 12] was completed in June 2007, and the Study of Income Support Benefits Offered to GARs Under RAP was completed in October 2007. Both reports continue to inform resettlement policy and program development. Another initiative was the national Infectious Disease Control Training for RAP service provider organizations and PSR sponsors. Also in 2007–2008, the Ontario Region expanded the Government- Assisted Refugee Case Management Pilot to the entire province. This model has one service provider who coordinates management of the client’s case throughout all points of service delivery.

The Private Sponsorship of Refugees Program

Through the PSR Program, groups of five or more individuals, and private sponsorship organizations representing religious, ethnic and community groups can sponsor refugees for resettlement to Canada. 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.

An evaluation of the PSR Program was completed in 2007–2008 and identified a number of challenges, such as low approval rates and long processing times. Extensive consultations to analyse the challenges and find solutions were undertaken with sponsoring groups and key stakeholders, including a major national conference on this program. Findings from these consultations led to increased training for sponsorship agreement holders and the development of a Quality Assurance Framework for this program, which will be piloted in 2008–2009. Following the conference, committees were established, which include CIC officials and private sponsors, in order to jointly identify administrative and policy options to improve the PSR program. While it is still early to see these efforts reflected in improved processing times and approval rates, preliminary indications are positive.

In light of the implementation of the Federal Accountability Act in December 2006, as well as recommendations from the 2004 RAP evaluation and the 2007 PSR evaluation, CIC began development of a monitoring and evaluation framework for Canada’s resettlement program. The framework will provide an effective and sustainable strategy for monitoring resettled refugees’ outcomes. Work to develop the framework began in 2007–2008.

Interim Federal Health Program

The Interim Federal Health Program (IFH) provides temporary health-care services for refugees, refugee claimants, those clients issued a TRP on the basis of being a victim of human trafficking, and those detained under IRPA who are not eligible for provincial health insurance and who have no means of obtaining health services.

In 2007–2008, CIC engaged many of its stakeholders in modernizing the IFH delivery mechanisms and processes. Several concurrent initiatives were undertaken during the year to enhance the program’s accountability framework, improve its analytical capacity and increase stakeholder outreach. These initiatives represent the foundation of a larger effort that will integrate program functions and strengthen its governance structure.

Given specific health concerns and in an effort to improve overall refugee health management, CIC developed an enhanced refugee health management program for the Karen refugee group, and focused on public health risks and closer ties with provincial/territorial public health authorities. An overall refugee health risk mitigation policy is being developed for all refugee groups (currently in the stakeholder consultation phase).

CIC is working closely with Australia and the United States to share information for pre-departure interventions. On the national side, CIC is also working with provincial and territorial health authorities to facilitate refugees’ access to health care and to improve information sharing.

In 2007–2008, 101,791 clients had valid IFH certificates, and 78,154 clients accessed the program through a network of 17,974 health-care providers across Canada, generating over 523,000 medical claims.

The Immigration Loans Program

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

The limit on the loan fund is $110 million. Outstanding loans totalled $34.4 million as of March 31, 2008. Loan collection continued to be managed with due diligence to maintain the strong recovery rate for repayment, currently at 91 percent.

In 2007–2008, CIC contributed over $734,000 from RAP towards the medical examination and transportation costs of some refugees with special needs (namely, seniors, refugees with health issues, single parents with large families) who could not reasonably be expected to repay an immigration loan.

Protection for Individuals Who Make Refugee Protection Claims in Canada

Canada’s humanitarian tradition of offering protection to the persecuted and displaced through resettlement is complemented by our acceptance of the international legal obligation, as a signatory to the 1951 Convention Relating to the Status of Refugees, to extend refugee protection to individuals who seek asylum upon or after their arrival in Canada. The Immigration and Refugee Board, an independent administrative tribunal, oversees a quasi-judicial process that determines claims for refugee protection made in Canada. 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 2007, a total of 28,523 individuals made a claim for refugee protection across Canada. This total represents an increase of 24 percent over the 2006 total of 22,944 (the 2005 total was 19,761). In 2007, the IRB approved 42.5 percent 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, whether the dependants are 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. All persons in Canada under removal order, including refused claimants, are eligible to 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 IFH Program 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 2007

In 2007, CIC exceeded the planning range of 7,300 to 7,500 for government-assisted refugees, offering protection to 7,574 new permanent residents. CIC met the target for privately sponsored refugees, which was 3,000 to 4,500, by uniting 3,588 refugees with their sponsors in Canada.

Canada granted permanent residence to 11,700 in-Canada protected persons as well as 5,094 dependants of refugees abroad. Both of these totals were also within the planned ranges for 2007. Normally, the number of protected persons who are granted permanent residence in Canada is dependent on the number of individuals who are determined to be in need of refugee protection in Canada. It is not unusual for these numbers to vary significantly from one year to the next, reflecting changing conditions in source countries and the number of refugee protection claims adjudicated in Canada.

Table 10: Protected Persons Admitted in 2007 (Compared to the Immigration Plan)

Source: Citizenship and Immigration Canada, Facts & Figures 2007

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12  The report is available at http://atwork.settlement.org/sys/atwork_library_detail.asp?passed_lang=EN&doc_id=1004346.

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