Report of findings: Online consultations with the public and stakeholders on ministerial instructions

Background

In November 2008, a first set of instructions for immigration officers was developed to identify which economic immigration applications are eligible for processing. The first set of instructions, an initiative under the Action Plan for Faster Immigration, was designed to keep the backlog of Foreign Skilled Worker (FSW) applications from growing, to reduce wait times for new FSW applications, and to better align new FSW applicants to Canada’s labour market needs. As such, a regular review and revision of these instructions is necessary to ensure they continue to reflect the current reality of Canada’s labour market.

To inform the development of updated ministerial instructions, Citizenship and Immigration Canada (CIC) considered a variety of factors and sought input from many sources to complement the information gathered from ongoing internal monitoring. One of the methods used to seek input from the general public and stakeholders was a consultation conducted via online questionnaires. These consultations looked at factors affecting an immigrant’s ability to succeed in Canada’s labour market; key labour shortages expected to face Canada in the coming years; and avenues for addressing labour shortages, including but not limited to immigration.

In addition to the online public and stakeholder questionnaires, CIC also held in-person multilateral discussions with provinces and territories throughout the winter and spring of 2010 to seek their perspectives on labour market pressures and occupations in demand in their respective regions. CIC also utilized input from the Canadian Occupational Projection System (COPS) — a system of economic models developed by Human Resources and Skills Development Canada (HRSDC) to forecast labour market conditions by occupation.

The content of this report of findings from the online consultations, supported by dialogue with partners and stakeholders, has been considered during development of the latest version of ministerial instructions (MI). The findings from the online consultations will also be considered in future policy development in related areas.

Methodology

On March 16, 2010, CIC launched two separate bilingual online consultation initiatives, one with the general public and one with stakeholders, to seek views on the factors that contribute to a skilled immigrant’s success in Canada and the anticipated direction of Canada’s labour market. The invitation and link to the questionnaire directed at the general public was prominently posted on the main page of the CIC website, promoted via a news release (see Annex A for the news release and Annex B for the backgrounder), and posted on the Consulting  with Canadians website.  An invitation and link to the stakeholder questionnaire was sent via e-mail to over 700 contacts, representing national and local organizations such as industry and professional associations, private sector employers, chambers of commerce, immigration lawyers/consultants, immigration-serving organizations and other non-governmental organizations, many of which have been engaged in previous consultation processes on immigration issues. During the consultation period (March 16 to April 16, 2010), the Department received 3,480 completed questionnaires from the public and 307 completed questionnaires from stakeholders.

The topics and questions for both consultations were virtually the same. The questionnaires sought feedback on three main topics:

• Factors that contribute to an immigrant’s success in Canada’s labour market;
• Relevance of the 2008 list of occupations experiencing labour shortages compared to Canada’s current labour pressures; and,
• Occupations where labour shortages are expected in the next five years.

Please refer to Annex D (Public Questionnaire) and Annex E (Stakeholder Questionnaire) for the full list of questions for both online consultations.

N.B. The findings summarized here reflect only the views of those who responded to the online consultation, and cannot be projected to the overall Canadian population or CIC stakeholder community.

Respondents

The consultation with the public was open to anyone in Canada as well as other countries. In fact, of the 3,480 responses received, just under half lived outside Canada. The majority were employed or self-employed, and considered themselves to be at least somewhat familiar with Canada’s immigration system. As one can expect from an online consultation, a strong majority of respondents were under the age of 54, with the greatest proportion between the ages of 25 and 44.

The invitation for the consultation with stakeholders was sent directly to over 700 stakeholders. The list of stakeholders, which included organizations CIC has consulted in the past, was provided to provinces and territories for their input. Responses received were primarily from immigration consultants or lawyers and immigrant-serving organizations that interact with applicants and newcomers to Canada. A strong majority considered themselves to be at least somewhat familiar with Canada’s immigration system.

Key findings

Responses from the public and stakeholders were comparable on many issues. Overall, the responses from the public did not vary greatly based on demographic differences, including those living in Canada and those abroad. The summary of findings below includes results from both the public and stakeholder online consultations, unless otherwise indicated. Any marked differences or commonalities are also noted.

Indicators of success in Canada’s labour market

Respondents were asked to rate the importance of different factors that could contribute to an immigrant’s potential for success in the Canadian labour market. A large majority of both stakeholder and public respondents indicated that strong skills in one of Canada’s official languages (oral/written/reading comprehension) was an important factor for an immigrant’s success in our labour market. A smaller proportion of public respondents agreed that prior work experience abroad and age were important factors. In addition, many stakeholders identified a job offer in Canada prior to arriving as important in this context, followed by having social networks in Canada.

Relevance of 38 occupations list (ministerial instructions) to meet Canada’s current labour pressures

The majority of the public and stakeholder respondents indicated that the current list of occupations is at least somewhat relevant to Canada’s current labour pressures.

Stakeholders were asked a follow-up question to get their views on which of the specific occupations from the 2008 list are, in their opinion, more relevant today. Stakeholders overwhelmingly indicated that health occupations, namely registered nurses, general practitioners/family physicians and licensed practical nurses were more relevant today. In contrast, financial managers, cooks as well as financial auditors and accountants were viewed as less relevant.

Expected labour shortages

A slight majority of stakeholders and, to a lesser degree, the public indicated that they thought there were occupations other than the current list of 38 that will experience significant labour shortages in the next five years. Of note, however, is that over one-third of respondents indicated that they ‘did not know.’ Among those who thought there would be labour shortages, there is a commonly held view that the Natural and Applied Sciences and Related Occupations category will experience significant labour shortages. Stakeholders indicated that occupations in the Trades, Transport and Equipment Operators and Related Occupations would also be experiencing significant shortages in the next five years.

Addressing labour market shortages

Stakeholders were asked an additional question about the most important ways to address labour shortages. Overwhelmingly, stakeholder respondents agreed that permanent immigration, including Provincial Nominee and Federal Skilled Worker programs, were an extremely important way of addressing labour market shortages in their regions. Partnerships with academic institutions (apprenticeships, post-secondary recruitment programs, etc.) were also regarded as another important solution.

Backlog of applications

When given the opportunity to provide general comments at the end of the questionnaire, many general public respondents, unprompted, indicated that they were favourable to reducing the backlog and limiting the intake of new applications using a first-in-first-out approach. While these comments came almost uniquely from applicants and potential applicants, it does show an appetite for solutions that go beyond the instructions themselves.

Conclusions

In sum, the consultations with the public and stakeholders yielded several key findings:

• Language skills are very important indicators of economic success.
• The current ministerial instructions list is seen as at least somewhat relevant; health occupations are most relevant today.
• Significant labour shortages are expected in Natural and Applied Sciences and Related Occupations.

The information gathered as part of these consultations is deemed to give a good indication of views on issues related to the updating of ministerial instructions, including factors for economic success in Canada, labour market pressures and possible ways to address labour shortages in the future. The findings will continue to inform policy development on labour-market-related areas.

Annex A: Information and invitation to the general public

Annex B: Backgrounder

Annex C: Invitation e-mail to stakeholders

SUBJECT: Invitation: Consultation on Ministerial Instructions / Consultation sur les instructions ministérielles

(le français suit)

Citizenship and Immigration Canada (CIC) would like your views on the next set of ministerial instructions to immigration officers on which economic immigration applications are eligible for processing.

As part of the Action Plan for Faster Immigration, the instructions were introduced in 2008 as a tool to keep the backlog of applications from growing, to reduce wait times for new applications and to better match new economic applicants to Canada’s labour market needs.

Since the first instructions were issued in November 2008, CIC has been closely monitoring their impact. While progress has been achieved, changes in the labour market, the still significant number of applicants in the backlog, and an excess of new applicants in some occupations, indicate the need for the instructions to change.

The following questionnaire is an opportunity for you to identify key labour market needs, how immigration can best respond to them, and factors affecting an immigrant’s ability to succeed in Canada’s workforce. Your input will help us decide who will be eligible for processing as an economic immigrant.

In addition to engaging with stakeholders, CIC will be consulting with provinces and territories and the public. Once we have gathered everyone’s input, we will provide a summary of the responses we received. The next set of ministerial instructions will be published in the Canada Gazette and posted on the CIC website.

Attached is a news release for additional context on the consultation. The questionnaire will be available until April 16, 2010. We appreciate your input.

Annex D: Consultation with the general public
Online consultation with the public on labour market priorities for Canada’s immigration system

Citizenship and Immigration Canada (CIC) would like your views on the Action Plan for Faster Immigration’s next set of ministerial instructions. This will help us decide who will be eligible for processing as an economic immigrant.

We are also consulting with provinces and territories, and business, immigration and academic stakeholders. Once we have gathered everyone’s input, we’ll provide a summary of the responses we received. The next set of ministerial instructions will be published in the Canada Gazette and posted on this website.

Privacy statement

The following consultation will take about 15 minutes to complete. Your participation is voluntary and your answers will remain confidential; CIC will only keep track of totals. We appreciate your time and input.

1. Which best describes you?

• Employed
• Self-employed
• Unemployed
• Student
• Retired
• Prefer not to respond
• Other, please specify:

2. Do you live in Canada?

• Yes
• No

2.1 In which province or territory do you live?

• Yukon
• Northwest Territories
• Nunavut
• British Columbia
• Alberta
• Saskatchewan
• Manitoba
• Ontario
• Quebec
• Newfoundland and Labrador
• Prince Edward Island
• Nova Scotia
• New Brunswick

3. Are you a:

• Canadian citizen?
• Permanent resident?
• Temporary resident?
• Other, please specify:

4. Your age group is:

• 18-24
• 25-34
• 35-44
• 45-54
• 55-64
• 65+
• Prefer not to respond

5. Are you a:

• Male?
• Female?
• Prefer not to respond

6. How familiar are you with Canada’s immigration system?

• Not at all familiar
• Somewhat familiar
• Very familiar

7. Research shows that factors like an immigrant’s language skills, age and education account for up to 60 percent of their economic success. Rate the importance of each factor below for an immigrant to succeed in Canada’s labour market.

• Strong skills in one of Canada’s official languages (oral/written/reading/comprehension)
• Social networks (e.g., friends or relatives already established in Canada)
• Degree or diploma from a Canadian post-secondary institution
• Degree or diploma from a non-Canadian post-secondary institution
• Prior work experience in Canada
• Prior experience abroad
• A job offer in Canada before they arrive
• Age
• Other (please specify in the box below)

8. In November 2008, CIC published a list of 38 occupations (listed below) that had significant labour shortages. As part of the Action Plan for Faster Immigration, applicants in the Federal Skilled Worker category with experience in one of these occupations qualify for priority immigration processing.

CIC would like to determine how immigration can best respond to Canada’s new and emerging labour market needs. How relevant do you think this list is to Canada’s current labour pressures?

• Not at all relevant
• Somewhat relevant
• Very relevant
• Don’t know/Not applicable

List of Occupations

• 0111: Financial Managers
• 0213: Computer and Information Systems Managers
• 0311: Managers in Health Care
• 0631: Restaurant and Food Service Managers
• 0632: Accommodation Service Managers
• 0711: Construction Managers
• 1111: Financial Auditors and Accountants
• 2113: Geologists, Geochemists and Geophysicists
• 2143: Mining Engineers
• 2144: Geological Engineers
• 2145: Petroleum Engineers
• 3111: Specialist Physicians
• 3112: General Practitioners and Family Physicians
• 3141: Audiologists and Speech Language Pathologists
• 3142: Physiotherapists
• 3143: Occupational Therapists
• 3151: Head Nurses and Supervisors
• 3152: Registered Nurses
• 3215: Medical Radiation Technologists
• 3233: Licensed Practical Nurses
• 4121: University Professors
• 4131: College and Other Vocational Instructors
• 6241: Chefs
• 6242: Cooks
• 7213: Contractors and Supervisors, Pipe Fitting Trades
• 7215: Contractors and Supervisors, Carpentry Trades
• 7217: Contractors and Supervisors, Heavy Construction Equipment Crews
• 7241: Electricians (Except Industrial and Power System)
• 7242: Industrial Electricians
• 7251: Plumbers
• 7252: Steam Fitters, Pipe Fitters and Sprinkler System Installers
• 7265: Welders and Related Machine Operators
• 7312: Heavy-Duty Equipment Mechanics
• 7371: Crane Operators
• 7372: Drillers and Blasters – Surface Mining, Quarrying and Construction
• 8221: Supervisors, Mining and Quarrying
• 8222: Supervisors, Oil and Gas Drilling and Service
• 9212: Supervisors, Petroleum, Gas and Chemical Processing and Utilities

NOTE: The occupations above are all managerial occupations, professional occupations, technical occupations or skilled trades.

9. CIC’s list of occupations that have labour shortages can be adjusted as conditions or priorities change. Think about the next five years in the labour market. Are there other occupations (not limited to those listed in the occupational list) that you expect will experience significant labour shortages?

• Yes
• No
• Don’t know

If you answered “yes” to the prior question, please name these occupations in the box below.

10. Do you have anything else to add on this topic?

Annex E: Consultation with stakeholders
Online consultation with stakeholders on labour market priorities for Canada’s immigration system

Canada’s economic immigration program

Economic immigrants are selected to come to Canada largely based on how well they can contribute to the Canadian economy. Some economic immigrants come here to start businesses and create jobs for themselves and for Canadians. Others come to help fill labour shortages when Canadian job seekers don’t have the skills employers need, so that Canada may have a strong work force.

Like other countries with ageing populations, Canada risks not having enough people of working age to keep our economy strong. Immigration plays an important role in building our work force.

Economic immigration planning takes into account our economic outlook over the short, medium and long term, and our national and regional labour needs. We want our immigration program to respond to these economic and labour market needs.

At the same time, we have to make sure we can process the applications we receive as quickly and efficiently as possible. We want Canada to stand out as countries around the world compete to attract the most skilled and talented immigrant workers, investors and entrepreneurs.

Finally, we must consider the needs of immigrants themselves, including how likely they are to find work in their field when they arrive. We want immigrants to stay and succeed in Canada. This is where our selection system comes in.

Selecting economic immigrants

Research shows that factors like an immigrant’s language skills, age and education account for up to 60 percent of their economic success. The other 40 percent depends on factors outside an immigrant’s control, such as our country’s economic conditions.

In 2008, we introduced changes to how we select economic immigrants as part of the Action Plan for Faster Immigration. The changes authorized the Minister to issue instructions to immigration officers on which applications are eligible for processing, based on the Government of Canada’s immigration goals.

The ministerial instructions are an important part of the selection of economic immigrants. They help us select people who can fill projected work force needs. Because these needs change, the instructions must change too.

We’d like your views

Citizenship and Immigration Canada (CIC) would like your views on the next set of ministerial instructions. This will help us decide who will be eligible for processing as an economic immigrant. We are also consulting with provinces, territories and the general public. Once we have gathered everyone’s input, we’ll provide a summary of the responses we received. The next set of ministerial instructions will be published in the Canada Gazette and posted on CIC’s website at www.cic.gc.ca.

Privacy statement

The following consultation will take about 15 minutes to complete. Your participation is voluntary and your answers will remain confidential; CIC will only keep track of totals. We appreciate your time and input.

1. Which best describes your organization?

• Immigrant-serving organization
• Academic/Educational institution
• Public policy institution
• Public interest or lobby group
• Labour/Union group
• Industry association
• Professional association
• Private employer
• Community organization
• Immigration consultant/Lawyer
• Municipal government
• Provincial/Territorial government
• Federal government
• Other, please specify:

2. Which region does your organization represent?

Select all that apply

• National
• Yukon
• Northwest Territories
• Nunavut
• British Columbia
• Alberta
• Saskatchewan
• Manitoba
• Ontario
• Quebec
• Newfoundland and Labrador
• Prince Edward Island
• Nova Scotia
• New Brunswick

3. How familiar is your organization with Canada’s immigration system?

• Not at all familiar
• Somewhat familiar
• Very familiar

4. What key information and data sources does your organization consult when assessing and planning a response to labour imbalances?

Select all that apply

• Input from your organization (e.g., clients, members, stakeholders)
• National level information and data sources (e.g., Canadian Occupational Projection System [COPS], National Job Futures)
• Regional level information and data sources (e.g., Provincial Job Futures, Regional Employment Forecasts)
• Don’t know/Not applicable
• Other, please specify:

5. There are several ways to address labour shortages, including immigration. How important do you think each of the following is in addressing labour shortages in your region?

6. Research shows that factors like an immigrant’s language skills, age and education account for up to 60 percent of their economic success. Rate the importance of each factor below for an immigrant to succeed in Canada’s labour market.

• Strong skills in one of Canada’s official languages (oral/written/reading/comprehension)
• Social networks (e.g., friends or relatives already established in Canada)
• Degree or diploma from a Canadian post-secondary institution
• Degree or diploma from a non-Canadian post-secondary institution
• Prior work experience in Canada
• Prior work experience abroad
• A job offer in Canada before they arrive
• Age
• Other (please specify in the box below)

7. In November 2008, CIC published a list of 38 occupations (listed below) that had significant labour shortages. Applicants in the Federal Skilled Worker category with experience in one of these occupations qualify for priority immigration processing.

CIC would like to determine how immigration can best respond to Canada’s new and emerging labour market needs. How relevant do you think this list is to Canada’s current labour pressures?

• Not at all relevant
• Somewhat relevant
• Very relevant
• Don’t know/Not applicable

List of Occupations

• 0111: Financial Managers
• 0213: Computer and Information Systems Managers
• 0311: Managers in Health Care
• 0631: Restaurant and Food Service Managers
• 0632: Accommodation Service Managers
• 0711: Construction Managers
• 1111: Financial Auditors and Accountants
• 2113: Geologists, Geochemists and Geophysicists
• 2143: Mining Engineers
• 2144: Geological Engineers
• 2145: Petroleum Engineers
• 3111: Specialist Physicians
• 3112: General Practitioners and Family Physicians
• 3141: Audiologists and Speech Language Pathologists
• 3142: Physiotherapists
• 3143: Occupational Therapists
• 3151: Head Nurses and Supervisors
• 3152: Registered Nurses
• 3215: Medical Radiation Technologists
• 3233: Licensed Practical Nurses
• 4121: University Professors
• 4131: College and Other Vocational Instructors
• 6241: Chefs
• 6242: Cooks
• 7213: Contractors and Supervisors, Pipe Fitting Trades
• 7215: Contractors and Supervisors, Carpentry Trades
• 7217: Contractors and Supervisors, Heavy Construction Equipment Crews
• 7241: Electricians (Except Industrial and Power System)
• 7242: Industrial Electricians
• 7251: Plumbers
• 7252: Steam Fitters, Pipe Fitters and Sprinkler System Installers
• 7265: Welders and Related Machine Operators
• 7312: Heavy-Duty Equipment Mechanics
• 7371: Crane Operators
• 7372: Drillers and Blasters – Surface Mining, Quarrying and Construction
• 8221: Supervisors, Mining and Quarrying
• 8222: Supervisors, Oil and Gas Drilling and Service
• 9212: Supervisors, Petroleum, Gas and Chemical Processing and Utilities

NOTE: The occupations above are all Skill Type 0 (managerial occupations) or Skill Level A (professional occupations) or B (technical occupations and skilled trades) on the Canadian National Occupational Classification list.

8a. After reviewing the occupational list, please indicate any occupation that you think is more relevant today.

• 0111: Financial Managers
• 0213: Computer and Information Systems Managers
• 0311: Managers in Health Care
• 0631: Restaurant and Food Service Managers
• 0632: Accommodation Service Managers
• 0711: Construction Managers
• 1111: Financial Auditors and Accountants
• 2113: Geologists, Geochemists and Geophysicists
• 2143: Mining Engineers
• 2144: Geological Engineers
• 2145: Petroleum Engineers
• 3111: Specialist Physicians
• 3112: General Practitioners and Family Physicians
• 3141: Audiologists and Speech Language Pathologists
• 3142: Physiotherapists
• 3143: Occupational Therapists
• 3151: Head Nurses and Supervisors
• 3152: Registered Nurses
• 3215: Medical Radiation Technologists
• 3233: Licensed Practical Nurses
• 4121: University Professors
• 4131: College and Other Vocational Instructors
• 6241: Chefs
• 6242: Cooks
• 7213: Contractors and Supervisors, Pipe Fitting Trades
• 7215: Contractors and Supervisors, Carpentry Trades
• 7217: Contractors and Supervisors, Heavy Construction Equipment Crews
• 7241: Electricians (Except Industrial and Power System)
• 7242: Industrial Electricians
• 7251: Plumbers
• 7252: Steam Fitters, Pipe Fitters and Sprinkler System Installers
• 7265: Welders and Related Machine Operators
• 7312: Heavy-Duty Equipment Mechanics
• 7371: Crane Operators
• 7372: Drillers and Blasters – Surface Mining, Quarrying and Construction
• 8221: Supervisors, Mining and Quarrying
• 8222: Supervisors, Oil and Gas Drilling and Service
• 9212: Supervisors, Petroleum, Gas and Chemical Processing and Utilities
• None of the above

8b. After reviewing the occupational list, please indicate any occupation that you think is less relevant today.

• 0111: Financial Managers
• 0213: Computer and Information Systems Managers
• 0311: Managers in Health Care
• 0631: Restaurant and Food Service Managers
• 0632: Accommodation Service Managers
• 0711: Construction Managers
• 1111: Financial Auditors and Accountants
• 2113: Geologists, Geochemists and Geophysicists
• 2143: Mining Engineers
• 2144: Geological Engineers
• 2145: Petroleum Engineers
• 3111: Specialist Physicians
• 3112: General Practitioners and Family Physicians
• 3141: Audiologists and Speech Language Pathologists
• 3142: Physiotherapists
• 3143: Occupational Therapists
• 3151: Head Nurses and Supervisors
• 3152: Registered Nurses
• 3215: Medical Radiation Technologists
• 3233: Licensed Practical Nurses
• 4121: University Professors
• 4131: College and Other Vocational Instructors
• 6241: Chefs
• 6242: Cooks
• 7213: Contractors and Supervisors, Pipe Fitting Trades
• 7215: Contractors and Supervisors, Carpentry Trades
• 7217: Contractors and Supervisors, Heavy Construction Equipment Crews
• 7241: Electricians (Except Industrial and Power System)
• 7242: Industrial Electricians
• 7251: Plumbers
• 7252: Steam Fitters, Pipe Fitters and Sprinkler System Installers
• 7265: Welders and Related Machine Operators
• 7312: Heavy-Duty Equipment Mechanics
• 7371: Crane Operators
• 7372: Drillers and Blasters – Surface Mining, Quarrying and Construction
• 8221: Supervisors, Mining and Quarrying
• 8222: Supervisors, Oil and Gas Drilling and Service
• 9212: Supervisors, Petroleum, Gas and Chemical Processing and Utilities
• None of the above

9. CIC’s list of occupations that have labour shortages can be adjusted as conditions or priorities change. Think about the next five years in the labour market. Are there other occupations (not limited to those listed in the occupational list) that you expect will experience significant labour shortages?

• Yes
• No
• Don’t know

If you answered “yes” to the prior question, please name these occupations in the box below. 

10. Do you have anything else to add on this topic?