ARCHIVED – Annual Report on the Operation of The Canadian Multiculturalism Act 2006–2007

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Part 1: The Multiculturalism Program

The Department of Canadian Heritage, through the Multiculturalism Program, plays the lead role in the implementation of the federal government’s multiculturalism policy. The Multiculturalism Program fosters awareness among federal institutions of their obligations under the Canadian Multiculturalism Act, and aims to support the removal of barriers related to race, ethnicity, cultural or religious background that would prevent full participation in Canadian society. The Multiculturalism Program consists of a diverse collection of policies, programs, research, and outreach and awareness strategies. Program initiatives are carried out through the following four activity areas:

• Support to civil society
• Research and policy development
• Support to public institutions (including federal institutions)
• Public education and promotion

The activities detailed herein illustrate the nature of the work supported by the Multiculturalism Program in the four activity areas.

Support to civil society

The Multiculturalism Program provides financial support (grants and contributions) through project funding to civil society to focus on issues affecting ethnocultural and racial communities, to enhance their participation in society and to address discrimination and racism. The following are a few examples of the initiatives funded by the Program in 2006–07.

Mosaic Anti–Racism Youth Project
(Centre for Northern Families, Yellowknife, NWT)

2001 Census data indicates that, of the 16,420 residents of Yellowknife, 22% identify as Aboriginal and 8% as visible minority. Indications are immigration is rising steadily in the territory and Citizenship and Immigration Canada reported that in 2006, 120 new Canadians took up residence in Yellowknife, due in large part to the vibrancy of the economy.

In 2006, the Centre for Northern Families, which supports women and their families in Yellowknife, adopted a New Canadian and Multicultural Program to provide employment, language training, and other services to new Canadians and multicultural communities. The Centre commissioned a “Needs Assessment of the Ethnocultural Community in Yellowknife,” which recommended, among other things, that more be done to help children and youth and to promote diversity and reduce racism. Based on these findings, the Centre developed the Mosaic Anti–Racism Youth Project.

Mosaic was a three–month community initiative to engage ethnocultural and Aboriginal youth in discussions on racism, discrimination, intolerance, and stereotyping. This project was designed to help participants develop leadership skills and learn how to address the racism they encounter in their daily lives.

Two youth, one each from the ethnocultural and Aboriginal communities, were hired to facilitate weekly workshops with activities and discussions about racism. Using a range of anti–racism and diversity resources from Canadian Heritage and elsewhere, the youth led activities and discussions on themes including: racism in words and pictures, what is power and who is powerful, and great leaders who stood up to racism. Activities culminated in a full–day event to coincide with the International Day for the Elimination of Racial Discrimination (March 21) and as part of the final workshop, all participants completed a survey entitled “What are you doing to stop racism?”

The youth participants were also asked what next steps could be taken to continue the action and dialogue in their community. Suggestions included: holding more presentations and workshops on cultural diversity, particularly in schools and places where young people gather; presenting workshops on building confidence and self–esteem; and playing music and films made in the North that talk about racism.

The Mosaic project engaged 32 young people from cultural communities and 12 from Aboriginal communities. Participants were involved in the planning, organization and facilitation of the project’s weekly activities. These young people became more aware of the prevalence of racism and the need to do something about it and learned positive ways to cope with racism, bullying, and stereotyping that racially visible youth may encounter within their schools or in the community. They became more confident and acquired the skills to positively interact with others from diverse backgrounds, and new connections were formed between ethnocultural and Aboriginal young people. The participants are now working with adult volunteers to prepare submissions for the March 21 video competition.

Youth leadership for inclusion
(Community Builders, Sudbury and Espanola, ON)

Studies from Sudbury and other Northeastern Ontario communities have demonstrated racism is a serious local issue and that those most often targeted by discriminatory and racist behaviours are Aboriginal peoples. Schools in Sudbury and Espanola/Manitoulin Island have the fourth largest population of Aboriginal students in Ontario.

Teachers, principals, and parent councils in Northern Ontario determined that students are often marginalized because of their race, ethnicity, class, language, and other factors which results in exclusion, bullying (both physical and emotional), and depression among young people. Since many incidents take place out of sight of adults, students need to be equipped with positive leadership skills so they can support their peers in these situations.

For change to occur in schools, children, like adults, need to understand the impact of racism. Community Builders developed a results–oriented, award–winning model of cross–generational leadership to address equity, inclusion, and compassion. Through this model, schools in Sudbury and Espanola/Manitoulin Island have become more caring and inclusive places where children from all backgrounds become more successful learners and more active participants in society.

Across 16 elementary schools in Sudbury and Espanola, 350 students from diverse ethnic, racial, linguistic, cultural, and religious backgrounds, including Aboriginal students, were selected to become Student Leaders. Over three years, the students, along with teachers and parents, attended three, four–day Leadership Institutes, where they learned how to build allies, resolve conflict, identify and interrupt acts of racism and oppression, and strengthen individual and group identity. Student Leaders received ongoing coaching and mentoring and served as facilitators in their own schools, giving community–building workshops, developing projects to address equity and inclusion needs, and acting as mediators when conflicts arose.

The program has seen many benefits. Some 10,000 elementary school children were reached through peer education with messages about valuing diversity, being allies to each other, and eliminating oppression. Students have taken on the responsibility of making their schools more caring and inclusive, and they are pleased with their leadership. Student Leaders are more likely to stand up for others and take positive action. School cultures have begun to change to incorporate values of inclusion and cultural pride. People in the school community are talking more openly about racism and other forms of oppression and non–violent conflict mediation is happening more in the classroom and in the school yard. Trainers and the Student Leaders were called on several times to facilitate healing circles around suicide and drug use among youth in the communities and racism and other oppression issues were always raised in these discussions.

In the broader community, Aboriginal adults, immigrant adults, and adults from different social classes spoke to the students on a peer level, and helped deepen everyone’s understanding of diversity issues. Aboriginal members of the community felt their heritage, culture, and languages are respected, their leadership valued, their experiences of racism acknowledged and the impact of those experiences understood. A strong relationship of mutual trust and respect has been built within the local First Nations communities.

Third international symposium on hate on the internet
(The League for Human Rights of B’nai Brith, Toronto, ON)

The Internet has become an attractive channel for hate because of its ability to transcend geographical boundaries, its speed, easy accessibility and anonymity. To address this issue, the League for Human Rights of B’nai Brith organized a two–day international symposium entitled “Hate on the Internet” that examined both the domestic and global dimensions of web–based hate, extremism and terrorism–related activities.

Held in September 2006 in Toronto, it brought together participants from law enforcement, government, legal and legislative, industry, education and community sectors to work towards global, multi–disciplinary solutions to the problem of web–based hate and extremism. The symposium facilitated ongoing national and international collaboration on this issue and encouraged a best practices approach by the Internet industry through voluntary regulation and codes of conduct. While consensus was not reached on voluntary codes due, in part, to the prevailing dictates of international protocols, the symposium did result in the development of new and improved methods to respond, control, and diminish, hate on the Internet.

Baraka 2007
(Black Islanders Cooperative Limited, Charlottetown, PEI)

People of African descent and ancestry have a long and rich history on Prince Edward Island and represent approximately 1% of the population. Their history and experiences however have been largely unknown. In order to educate the public about their history, the Black Islanders Cooperative Limited designed and developed a public event project entitled “Baraka”, Swahili for “blessings”.

Held in Charlottetown in February 2007 during Black History Month, the event celebrated the heritage and contribution of Islanders of African descent. The event included, among other things, workshops, African children’s games, a screening of “Journey to Justice” (a film about the history of Canada’s black civil rights movement), as well as a play performed by youth of African heritage, and a child’s soliloquy of her seven–generation family of black islanders.

The event was a significant learning opportunity and participants were exposed to the history of the African–Islander community, and they learned about the personal experiences, traditions and values, social justice realities, and the contributions of this little–known segment of the population in the history of PEI.

Black Youth In Action: A black youth community leadership and anti–racism initiative
(Canadian Caribbean Association of Halton, Halton Region, ON)

The Black Youth in Action project advances the work of the research study that began in 2003 entitled Growing Up Black In Oakville. Results of the study indicated there is an absence of black youth participating in civic committees, boards and advisory councils and it was recommended that local organizations create opportunities for black youth to become more involved.

As well, in response to a 2005 study on youth–police relationships, the Halton Regional Police Service was seeking to establish better relationships with youth in the Halton Region.

In response, the Canadian Caribbean Association of Halton undertook an initiative to bring black youth, the Halton Regional Police, and representatives of the Town of Oakville together. They formed an advisory committee that has been working on the development, implementation and monitoring of the project. This two–year project is focussing on developing conflict resolution, anti–racism, and leadership skills of black youth; creating positive relations with police; and encouraging young people to be part of local decision–making.

Objectives are being achieved through implementation of workshops, training, and partnerships with institutions and community organizations that introduce youth to various committees, and seek placement in various committees and councils. The intent is also to train a number of youth as trainers for program sustainability. To date, 32 black youth have participated, attending workshops on leadership skills and self–esteem. A goal is to train a number of youth as trainers for program sustainability and so far four have become trainers enabling them to teach skills to their peers.

As a result of the program, more black youth are getting involved in the community and helping find their own solutions to problems. Of the program participants, 15 black youth now actively participate on the Canadian Caribbean Association of Halton’s Youth Council, and one black youth participates on the Town of Oakville’s Youth Council. Additionally, one participating youth secured a summer internship with the police and was invited to return the next summer, while another secured employment with a local business and was promoted to team leader in less than a month.

The program will continue to train more youth in 2007–08, and the Canadian Caribbean Association of Halton is considering sharing its success with academics and other organizations working with youth at risk.

Condition of the haitian community
(Conseil national des citoyens et citoyennes d’origine haïtienne/National Council of Citizens of Haitian Origin, Montreal, PQ)

The Haitian community in Canada, which includes approximately 82,400 members, encounters challenges that prevent their full participation in society. Between January 20 and March 31, 2007, the Conseil national des citoyens et citoyennes d’origine haïtienne (National Council of Citizens of Haitian Origin) held six forums in Montreal to discuss the issues and challenges the community faces. Approximately 1,300 people including business people, health professionals, social workers, representatives from community organizations, human rights activists, and youth participated in the consultations.

Through the forums, a list of principal actions undertaken by the community since the 1990s was created and a five–year strategic plan, including an action plan, was developed. Discussions included issues of underemployment and unemployment, racial discrimination, and organizational weaknesses. The action plan for 2007–08 identified four priority areas for intervention: economic integration of Haitian Canadians, the fight against racism and all forms of discrimination, support for youth, and strengthening community organizations.

The project mobilized leaders of the Haitian community to identify their needs and recommend ways to meet them. The initiative resulted in government organizations being better informed of the problems facing the Haitian community and public knowledge and awareness was increased as a result of broad media coverage.

Responding to the educational challenges of newcomer students and families
(Multicultural Women’s Organization of Newfoundland and Labrador, St. John’s, NL)

Information gathered by the Multicultural Women’s Organization of Newfoundland and Labrador (MWONL) indicated new Canadian families, especially those from South America and Africa, experience challenges that affect children’s education.

In response, the MWONL conducted an action/research project in 2006–07 to examine the familial challenges of new Canadians whose children experienced educational challenges. The MWONL conducted separate focus group sessions with students and parents from targeted communities and documented the following challenges: unfamiliarity with the educational system, and unfamiliarity with the roles and responsibilities of the family in children’s education. They further identified opportunities to improve familial support and student engagement.

The impact for participants in the workshops and focus groups was an increased understanding of familial roles and responsibilities in providing support to their school–aged children. Further results are expected through this two–year project and include increased participation of immigrant families in their children’s education and the educational system, and better informed educators about the specific challenges faced by new Canadian students along with increased ability to identify opportunities to improve educational outcomes and integration.

Research and policy development

The Multiculturalism Program has a centrally–coordinated research and strategic policy function, which ensures consistent and comparable research and analysis to support an evidence–based approach to multiculturalism. The policy function is informed by government policy priorities and orientation, and consultation with stakeholders. It deals with a series of policy issues related to multiculturalism and coordinates policy discussions with other departments. It is also responsible for the production of this Annual Report on the Operation of the Canadian Multiculturalism Act, which is tabled each year in Parliament.

In 2006–07, the Program focussed research on five themes: social inclusion and exclusion; 2017 Canadian demographic projections; racism and racial discrimination; religion; and security in a pluralistic society. Research results inform ongoing policy work across federal institutions, ethnocultural and racial communities, civil society, and the research community across Canada. Results are publicly disseminated through seminars, fact sheets, short articles, publications (books and magazines), and on the Internet. The following are two examples of research projects conducted under these themes.

Visible minorities in urban centres

There is a concern, often raised in the media, that we are seeing the rise of ethnocultural “ghettos” in Canada’s largest cities: Montreal, Toronto, and Vancouver. To ascertain the validity of this concern, the Multiculturalism Program commissioned research by Daniel Hiebert and Nadine Schuurman of the University of British Columbia, and Heather Smith of the University of North Carolina to examine the social geography of immigrant and visible minority populations in these cities now and projected to 2017. The report is available on the Metropolis web site:

The content below is offered in PDF format. For more information or to download the appropriate viewer, check the Help page.

• Multiculturalism “on the ground”: The Social Geography of Immigrant and Visible Minority Populations in Montreal, Toronto, and Vancouver, Projected to 2017 [PDF format, 8.8 MB]

Demographic imbalance between city and country

Another issue that risks dividing Canadian society is the growing differentiation between the racial, ethnic, cultural, and religious makeup of large cities and the rest of Canada. On one side are growing cosmopolitan populations, characterized by great diversity; 73% of visible minorities live in Montreal, Toronto, and Vancouver. On the other hand, smaller cities, towns, and hinterland regions are characterized by ageing and homogenous populations; only 6% of new immigrants have settled in non–metropolitan areas. Census 2006 data showed mid–sized urban centres had a growth rate of more than 10%, about twice as high as the rate for Canada as a whole.

With these concerns in mind, international migration consultant Meyer Burstein was commissioned to examine the multicultural imbalance that may be increasing due to the concentration of visible minorities in metropolitan areas. Specifically, the report examines policies and practices that try to address this imbalance by attracting visible minorities to smaller cities and towns. A number of key lessons are described in the report, which recommends that the target communities for such policies should be those in predominantly urban areas, those in growing intermediate regions (e.g. Kitchener, ON and London, ON) and those communities neighbouring larger metropolitan areas.

Support to public institutions
(including federal institutions)

As part of its institutional change efforts, the Multiculturalism Program supports projects to help ensure public institutions are responsive to and representative of the increasingly diverse population of Canada. The Program is also responsible for encouraging and assisting in the implementation of multicultural initiatives within federal institutions (see Part II, Implementation of the Canadian Multiculturalism Act Across the Government of Canada). The following are some examples of institutional change projects supported by the Multiculturalism Program in 2006–07:

United Against Racism: Designing inclusive schools conference
(Ka Ni Kanichihk Inc., Winnipeg, MB)

Winnipeg’s Aboriginal and visible minority populations continue to grow and currently make up more than 20% of the city’s population. Many indications suggest these groups are not being adequately served and that visible minority and Aboriginal peoples continue to encounter racism, particularly in the educational and justice systems. In response to these realities, Ka Ni Kanichihk Inc., a non–profit, community–based Aboriginal human services organization governed by a council of First Nation and Métis peoples in Winnipeg, created a multi–year pilot initiative called United Against Racism.

The aim of this community–driven anti–racism project was institutional and systemic change in the education and justice systems in Winnipeg. Project activities had a number of objectives including: empowering victims, deepening the understanding of the causes and manifestations of racism, providing concrete skills and techniques for dealing with racist incidents, and improving the understanding of how policy is created and how the process can be influenced. United Against Racism sought to develop a model for sustainable community capacity to address racism in the educational and justice systems, hoping it would lay the groundwork for an anti–racism resource centre to continue the work and apply this model in other areas of society.

The three year project concluded in 2006–07 with a national education conference called Designing Inclusive Schools, which used the learning and resources that had been generated in the first two phases of the project.

The conference, delivered in conjunction with the Aboriginal Youth Circle, gave participants insights into how to address issues of systemic racism and how these issues affect schools, colleges, universities, and the broader community. The conference objectives included building an alliance of schools, community groups, and individuals committed to eliminating racism through anti–racism education and action; improving the quality of education; increasing general public awareness of equity and racism; promoting Aboriginal cultural awareness to new Canadians; and building the ability of Aboriginal and non–Aboriginal youth to deliver anti–racism education.

The conference attracted over 500 educators, policy–makers, students, administrators, anti–racism practitioners, and activists. Conference delegates overwhelmingly supported a resolution to continue the work of United Against Racism and to work toward eliminating racism and all forms of oppression through anti–racism education and action. Participants left the conference equipped with resources and toolkits to start addressing racism within their own sphere of influence. Administrators, policy–makers and frontline workers in the education and justice systems improved their understanding of racism and their ability to deliver appropriate services to Aboriginal and visible minority peoples. As well, through the alliance of stakeholders, the capacity of the community in Winnipeg to address racism was enhanced.

National Transcultural Health Conference
(Montreal Children’s Hospital, McGill University Health Centre, Montreal, PQ)

In May 2007, the first National Transcultural Health Conference on the advancement of knowledge, strategies, and connectedness in health care, was held in Montreal. Organized by the Montreal Children’s Hospital, the congress brought together 300 participants, including health care and social services experts, educators, and community group representatives from Canada and Europe, to highlight best practices in cross–cultural health care, and establish future national priorities.

Participants studied the effects of different approaches to cross–cultural health care, and promoted networks of expertise and intercultural collaboration across Canada. They gained a better understanding of the issues and disparities facing health care access by some families. The conference received wide media coverage, exposing the issues of culturally sensitive health care to the general public.

A second conference is planned for 2009 in Ottawa and will be organized by the Children’s Hospital of Eastern Ontario in Ottawa.

Health guide for new arrivals and health care workers in the region of greater Moncton
(Comité directeur du projet santé–immigration de la Région du Grand Moncton, Moncton, NB)

Moncton is a small but growing community. In 2001, there were approximately 60,080 people living in Moncton, of which 2% of the population were visible minority, 0.8% Aboriginal, and 3% foreign born.

The goal of this project was to provide more equitable access to health care in the Greater Moncton Region that respects the dignity and needs of members of ethnocultural communities. By publishing a health guide for new Canadians and health care workers in the region, the project responded to a real and immediate need to improve the capacity of public institutions—in this case, the health care system—to adapt to the diverse ethnic, religious, and cultural backgrounds of the people they serve. The guide also helps identify and eliminate barriers in the existing system.

The project had several positive outcomes, including providing new arrivals with a better understanding of the health care system and providing health care workers with a better understanding of cultural diversity.

Public education and promotion

The outreach and promotion activities of the Multiculturalism Program encompass initiatives that raise awareness and understanding and inform public dialogue about multiculturalism. In collaboration with public and private partners in the educational sector as well as community groups, this activity area produces and disseminates educational materials and organizes events and activities geared toward combating racism and strengthening cross–cultural understanding. It reaches out to youth through activities such as the March 21 Racism. Stop it! National Video Campaign, the Mathieu Da Costa Challenge, and to the general public through culturally diverse initiatives such as Black History Month and Asian Heritage Month. The following section highlights some of the activities carried out in
2006–07:

	Black History Month, which is recognized every February, is an opportunity to celebrate and learn about the many achievements and contributions black Canadians have made to Canada’s culture and diversity as well as to the development and building of Canada. 2007 marked the 200th anniversary of the abolition of the slave trade in the British Empire. Many initiatives were developed across the country to commemorate this occasion, including the launch of the Book of Negroes by author Lawrence Hill, a reception at the House of Commons, film screenings for youth, and the travelling exhibit Black Ink–Encre Noire.
	“Students and teachers should tackle the serious issue of racism as it is a constant presence in life, school and especially the classroom.” A montreal high school teacher whose students participated in the 2007 Racism. Stop It! National Video Competition The annual March 21 Racism. Stop It! National Video Competition encourages youth aged 12 to 18 to create a video expressing their thoughts on eliminating racism and racial discrimination. In 2007, a record 319 video entries were submitted, including the participation of 1,183 youth from across Canada.
	Asian Heritage Month, which is recognized every May, is an opportunity to acknowledge the diversity and the long and rich history of Asian Canadians. It provides an opportunity for Canadians to reflect on and celebrate the contributions of Asian Canadians to the growth and prosperity of Canada. The Multiculturalism Program developed a series of activities such as the launch of Asian Heritage Month in Ottawa on Parliament Hill and film screenings for youth.

The 11th Annual Mathieu Da Costa Challenge

The Mathieu da Costa Challenge was launched in 1996 to commemorate Mathieu Da Costa, the first recorded black person to set foot in Canada. As a navigator, explorer and interpreter, he played a significant role in bridging the cultural and linguistic gap between the early French explorers and the Mi’kmaq people. The Mathieu da Costa Challenge encourages youth between the ages of 9 and 18 to submit an original piece of writing or artwork that celebrates the contributions made by Canadians of Aboriginal, African, and other ethnocultural backgrounds throughout Canada’s history.

This year, the Department reached beyond libraries, schools, and school boards, and encouraged multicultural and mainstream organizations to promote the Challenge to youth, which resulted in 1,075 entries being submitted by students across Canada.

Every year, jury members are amazed by the quality of the texts and drawings young Canadians submit. In very creative ways these young minds show their respect and admiration for members of Aboriginal, African, and other ethnocultural backgrounds who helped shape our country.

In 2007, the winners of the Mathieu Da Costa Challenge submitted poems, tales, novels and drawings honouring Canadian personalities including, Michèle Rouleau, who defended the rights of Aboriginal women, and The Right Honourable Michaëlle Jean, Governor General of Canada. All the winning entries can be seen on the department’s website.

This past year, in keeping with celebrating the 400^th anniversary of Mathieu Da Costa setting foot in Nova Scotia, the winners’ trip and awards ceremony were held in Halifax, marking the first time both events were organized outside the National Capital Region. In 2008, the ceremony will be held in Quebec City as part of the Quebec 400 Celebrations to mark the 400^th anniversary of the founding of Quebec City.

Task Force for International Cooperation on Holocaust Education, Remembrance, and Research (ITF)

The Government of Canada has taken the first step in moving Canada toward full membership in the Task Force for International Cooperation on Holocaust Education, Remembrance and Research (ITF), a body of government and non–government representatives. Its purpose is to place political and social leaders’ support behind the need for Holocaust education, remembrance, and research both nationally and internationally.

The initial move toward this goal was taken in december 2006, when Canada’s Ambassador to Hungary attended the plenary session of the ITF as a special guest. In June 2007, the Secretary of State (Multiculturalism and Canadian Identity), the Honourable Jason Kenney, led the Canadian delegation to the ITF Plenary Session in Prague, where Canada sought and achieved the first level of ITF membership, which is Observer status. The delegation included representatives from B’nai Brith Canada and the Canadian Jewish Congress, as well as the Council of Ministers of Education, Canada, and the federal government.

Canada’s full engagement in the ITF will be an important way to enhance Canadians’ understanding of the Holocaust and to complement efforts to combat racism and discrimination, both at home and abroad. This organization offers a dynamic framework for examining history and human behaviour in order to promote the development of a more humane and informed citizenry. By joining with experts from around the world, Canada will be able to share in the memorial, educational, and humanitarian lessons on the Holocaust that membership on the ITF has to offer.

Historical recognition programs

This initiative responds to the Government of Canada’s commitment to recognize the historical experiences of cultural communities affected by immigration restrictions and/or wartime measures, and to commemorate and educate Canadians about these historic events. The activities of Historical Recognition are detailed below:

National Historical Recognition Program and Community Historical Recognition Program

On June 22, 2006, the Government announced $10–million in funding for the National Historical Recognition Program (NHRP) and $24–million in funding for the Community Historical Recognition Program (CHRP) within the Department of Canadian Heritage. The Government is still finalizing program details.

Chinese Head Tax

On June 22, 2006, Prime Minister Stephen Harper issued an official apology for the Head Tax imposed on Chinese–Canadians to formally turn the page on an unfortunate period in Canada’s past. The apology was offered in recognition of the stigma and hardship the Head Tax caused the Chinese community to experience. Tied to the formal apology, the Government of Canada announced it would make ex–gratia symbolic payments of $20,000 to living Head Tax payers and to persons in a conjugal relationship with a now–deceased Head Tax payer. The apology and the ex–gratia payments are actions taken by the government to contribute to healing within the Chinese–Canadian community around the Head Tax issue.

The ex–gratia payments process has been implemented in two phases. The government began accepting applications from living Head Tax payers on August 29, 2006. Phase two of the payments process, launched on December 1, 2006, focused on payments to living persons who were in a conjugal relationship with a now–deceased Head Tax payer. Individuals applying for an ex–gratia payment as a Head Tax payer or a person who was in a conjugal relationship with a now–deceased Head Tax payer have until March 31, 2008 to submit an application.

Following the launch of the ex–gratia payments process, the Department of Canadian Heritage held recognition and cheque presentation ceremonies in Toronto and Vancouver to mark the first ex–gratia payments to Head Tax payers.

By the end of December 2007, the Department of Canadian Heritage had received a total of 725 applications (51 applications from Head Tax payers and 674 applications from conjugal partners) and had made 607 ex–gratia payments to eligible applicants (45 payments to Head Tax payers and 562 payments to persons who were in a conjugal relationship with now–deceased Head Tax payers), for a total of $12,140,000. The initiative continues until the deadline date of March 31, 2008.

The Komagata Maru Incident

In 1914, the ship Komagata Maru arrived in Vancouver carrying fifty–six passengers from Punjab and India via Hong Kong and Japan. Regulations at the time required migrants seeking to immigrate to make a “continuous journey” to Canada from their homeland. There were no direct routes from India to Canada at the time. Canada did not allow the passengers to land in Canada, and the ship was forced to return to India.

In August 2006, Prime Minister Stephen Harper stated the Government of Canada acknowledged the Komagata Maru incident and announced the government’s commitment to consult with the Indo–Canadian community on how best to recognize this moment in Canada’s history.

As a follow–up to this commitment, Mr. Jim Abbott (MP), the Parliamentary Secretary to the Minister of Canadian Heritage, held 41 meetings and town halls with individuals and groups from the Indo–Canadian community on how best to recognize the Komagata Maru incident and “continuous journey” regulation, within the context of the proposed Community Historical Recognition Program of the Department. During the meetings, participants expressed the need for historical recognition to foster a sense of healing within the community and to strengthen the inclusiveness of Canadian society. The Indo–Canadian community greatly appreciated the government’s commitment to recognizing the Komagata Maru incident and the action taken to address the issue. The meetings were seen as a first step to moving forward, and to integrating into Canada’s history accounts of the Komagata Maru incident to help ensure such incidents do not happen again.

The Parliamentary Secretary’s report on the meetings and the views expressed by the Indo–Canadian community was released on March 11, 2007 and is available on the Department of Canadian Heritage website (www.cic.gc.ca/multi/publctn/ichr/index–eng.asp).

International initiatives

The Multiculturalism Program participated in a number of international forums and in 2006–07, the Multiculturalism Program met with 20 foreign delegations from a range of countries, including Egypt, Finland, France, Germany, Iraq, Malaysia, the Netherlands, the Philippines, Russia, Sweden, Syria, the United Kingdom, and Uruguay. In addition to sharing Canada’s approach to multiculturalism, these meetings allowed the Program to learn how others respond to their diverse populations. The Program also received representatives from foreign organizations, including international journalists and the Organization for Security and Cooperation in Europe.

The Multiculturalism Program attended the Regional Conference of the Americas on Progress and Challenges on the Action Plan Against Racism, Racial discrimination, Xenophobia and Related Intolerance, held in Brazil in July 2006. The Program provided support to the head of the Canadian delegation and shared best practices and Canada’s experiences in promoting multiculturalism and diversity. Some 300 participants from 35 countries attended the conference. Attendees included government representatives, members of civil society, and officials with foreign embassies in Brazil.

In September 2006, the Director General of the Multiculturalism Program visited Italy to share information on diversity in Canada, and the role of the government and the Multiculturalism Program in particular in eliminating barriers to civic participation and fostering a more cohesive society. Presentations were given in Bologna, Milan, and Rome.

In October 2006, the Assistant Deputy Minister (Citizenship and Heritage) led the Canadian delegation at the 11th International Metropolis Conference. The conference brought together academics, practitioners and public officials to discuss globalization, diversity, and migration. The Assistant Deputy Minister delivered remarks on two internationally comparative panels where the topics of ethnocultural youth participation, and re–shaping citizenship in the 21^st century, were debated. While in Portugal, the Assistant Deputy Minister also participated in a G8 experts roundtable on diversity and integration, and held bilateral meetings with her counterparts from Australia, Portugal, France, and the United Kingdom.

In February 2007, the Assistant Deputy Minister (Citizenship and Heritage) led a delegation to the United Nations in Geneva on the occasion of the Review of Canada’s 17th and 18th Reports on the International Convention on the Elimination of All Forms of Racial discrimination. In a dialogue with members of the UN Committee on the Elimination of Racial discrimination, the delegation highlighted important initiatives undertaken to enhance implementation of the Convention and support efforts to eliminate racial discrimination in Canada, including Canada’s Action Plan Against Racism.

Also in February 2007, the Assistant Deputy Minister (Citizenship and Heritage), attended a policy dialogue titled “Multiculturalism and the law: testing the limits,” hosted by the Canadian Mission to the European Union in Brussels. As Europe attempts to cope with its increasingly diverse society, the European Union (EU) and its member states are looking to partners, like Canada, as sources of information on successful integration models. The Assistant Deputy Minister delivered the keynote address at the policy dialogue and spoke to the evolution and challenges of the multicultural model in Canada. The event provided a forum to exchange ideas and transatlantic perspectives on the future of multiculturalism in the EU and Canada. The dialogue was a timely opportunity to showcase Canada’s multiculturalism policies for EU decision makers and to dispel certain misconceptions regarding the Canadian model.

Multiculturalism Champions Network

The Multiculturalism Champions Network was launched in 2005 with the goal of facilitating greater implementation of the Canadian Multiculturalism Act and fostering a better understanding of multiculturalism throughout federal institutions. The Network is composed of senior officials whose primary responsibilities are: to build awareness and understanding of the importance of multiculturalism and the Act; stress the importance of multiculturalism in the development and implementation of policies, programs and practices of their institutions; and play a leadership role as agents of change within their institutions. Many federal institutions have nominated a Multiculturalism Champion and there are currently seventy eight Champions across federal institutions.

Since the creation of the Network, federal institutions have demonstrated an increased level of engagement and shown greater awareness of the issues. To date, there have been three meetings which have served as a forum to aid Champions in their work as well as the sharing of best practices and lessons learned.

At the most recent meeting in October, 2007, The Honorable Jason Kenney, Secretary of State (Multiculturalism and Canadian Identity) delivered the keynote address, sharing his views on his role as Secretary of State along with his perspective and priorities for multiculturalism and Canadian identity. He discussed the growing importance of the Canadian Multiculturalism Act, highlighting the important role federal institutions play in implementing the Act and fostering an inclusive society. He acknowledged the work of the Multiculturalism Champions and stressed the need to continue to take steps to ensure that policies, programs, and services respond effectively to the needs of a diverse population.

The meeting also included panellists Dr. Jean Kunz, Associate Project director, Policy Research Initiative (PRI), and Dr. Errol Mendes, Professor of Law, University of Ottawa. Dr. Kunz presented findings from a series of roundtable meetings held across Canada on multiculturalism and diversity in Canada. The report is available on the PRI website. Dr. Mendes presented research on current multiculturalism and diversity issues in Canada.

• From Mosaic to Harmony: Multicultural Canada in the 21st Century: Results of Regional Roundtables [PDF format, 500 KB]

Looking ahead, the Multiculturalism Champions’ Network will continue to promote a community of practice, increase opportunities for Champions to share ideas, and facilitate the development of department–specific action plans on multiculturalism. A priority of the Network is to have a Champion designated in each federal institution.

The Multiculturalism Champion Initiative at Canadian Heritage

The Multiculturalism Champion Initiative at Canadian Heritage, which is part of the government– wide network of Multiculturalism Champions, works toward the strategic inclusion of diversity as an organizational imperative. The objective is to mainstream or integrate multiculturalism into the day– to–day operations of the Department, particularly in its policies, programs and practices. The Initiative works with partners throughout the Department and across government to leverage opportunities and advance priorities, ensure linkages with groups and important areas across the Department and Portfolio, and ensure the Initiative is plugged into current trends and research in the area of multiculturalism and diversity. The Initiative has developed an Action Plan Framework which sets out corporate directions for the Multiculturalism Champion Initiative for the period of 2007–10, and identifies the key objectives, priority action areas and results for the Initiative.

It is recognized that corporate change initiatives take time, and ensuring proper foundations are established is key to the future success of the Initiative. The Initiative is therefore using a three–year planning horizon to set a progressive agenda, building toward the longer term goal of mainstreaming multiculturalism in the Department.

Strategic objectives and priority action areas

As established in the Multiculturalism Champion’s Terms of Reference, the Multiculturalism Champion Initiative has two main objectives:

• To build greater awareness and understanding throughout the Department about multiculturalism and the importance of diversity considerations in the Department’s policies, programs and practices.
• To mainstream or integrate multiculturalism into the day–to–day operations of the Department.

Building awareness (short term and ongoing)

Publicity activities, guided by a Communications Plan, will help build a common understanding of multiculturalism that is widely shared, and will include activities such as appearances by the Multiculturalism Champion at key events, the dissemination of materials, and a poster campaign. The development of an Intranet site for the Initiative will be an essential component of building awareness.

Building understanding (medium to longer term and ongoing)

Building understanding will be accomplished through informal training opportunities, such as Armchair Sessions, and participation in currently existing departmental training sessions, such as orientation training.

Building competency (long term and ongoing; language database short term)

To maximize the use of competencies that already exist and foster innovative ideas and approaches, the Multiculturalism Champion Initiative aims to leverage employees’ backgrounds, skills and points of view by developing a language database of non–official languages. This database will enable the Department to maximize utilization of language skills of employees in Departmental initiatives and activities.

The mainstreaming of multiculturalism will require a common method or approach to understanding how to apply multiculturalism and diversity considerations in Departmental policies, programs and practices. In order to develop the appropriate method, it will first be essential to identify information gaps and training needs within each Sector. Working with the Sectors will provide the appropriate strategies and tools to integrate and mainstream multiculturalism. This exercise will also enable the Sectors to look more closely at their work with a view to multiculturalism and diversity issues.

A Canada for all: canada's action plan against racism

The Multiculturalism Program of the Department of Canadian Heritage plays a central role in the implementation of A Canada for All: Canada’s Action Plan Against Racism (CAPAR) and is responsible for coordinating and facilitating the reporting, accountability, performance measurement and information sharing among the participating federal institutions.

Since CAPAR’s launch, several initiatives have been implemented to increase knowledge and understanding of diversity, facilitate more engagement of federal partners and other stakeholders on racism–related issues, and increase the consideration given to the needs of cultural and Aboriginal communities. These initiatives have undertaken data collection, research and consultation; training, information and awareness development; financial support and partnership development; and policy, programs and service development (Figure 1).

In 2006–07, in response to its commitment to provide progress reports on CAPAR, a number of discussions with stakeholders (i.e. academics, non–governmental groups and institutions) were held to obtain feedback on the Action Plan. For the most part, those consulted welcomed the Action Plan as a first major step in recognizing the need to address racism. They also expressed a need for the federal government to:

1. Provide more public education to increase the understanding of racism.
2. Be more aware of the unique challenges of combating racism outside major urban centres.
3. Better integrate the perspectives of youth, women and Aboriginal peoples.
4. Work more closely with other levels of government on issues such as housing and education.
5. Broaden the discussion on eliminating racism in the workplace to include more partners such as labour unions and Chambers of Commerce.

Figure 1. Activities and Outputs of CAPAR Initiatives

Reporting on new initiatives

The new initiatives involve four key departments, Canadian Heritage, Citizenship and Immigration Canada, Human Resources and Skills Development Canada and Justice Canada. These new initiatives focus on the following key areas: institutional change within public institutions to remove systemic barriers, law enforcement, workplace discrimination, youth integration, and race–based issues in the justice system. Combined, these initiatives are contributing to the longer–term goals of strengthening social cohesion through the elimination of specific barriers impeding the ability of some Canadians to achieve their full potential.

The Inclusive Institutions Initiative at Canadian Heritage supports federal policies, programs and services. The initiative provides matching funds to federal institutions to develop tools for building federal internal capacity that is free of systemic barriers and responds to cultural diversity. The initiative also provides matching funds to community groups in support of community–based projects to supplement already existing federal funding programs.

The initiative received requests and provided advice and consultation to 18 federal institutions on various issues related to increased knowledge and understanding of diversity, eliminating systemic barriers to participation of ethnocultural communities and effective strategies for engaging with ethnocultural groups.

In collaboration with Statistics Canada, the initiative has developed a series of 15 socio–economic profiles of Canada’s largest, fastest–growing, non–European ethnocultural communities to be used as a tool for understanding and knowledge development. These profiles have been distributed widely to federal government departments, schools and other stakeholders. A copy of the profiles may be obtained by contacting the Inclusive Institutions Initiative at Canadian Heritage. Copies of the profiles are also available on the Statistics Canada website
(www.statcan.ca/bsolc/english/bsolc?catno=89–621–X&CHROPG=1).

The Nationally Standardized Data Collection on Hate–Motivated Crime Initiative is undertaken by Canadian Heritage in collaboration with Statistics Canada’s Centre for Justice Statistics (CCJS) to promote and increase standardized reporting and monitoring of hate crimes by police forces in Canada through increased police training and enhanced data collection systems. In February 2007, the CCJS released the first data on hate–motivated crime for 2005 from two Ontario cities: London and Ottawa. Police–reported hate crimes data for 2006 has been collected nationally and is being analyzed for release in early 2008. The results for this release will include every municipal police service in the country, the Ontario Provincial Police Service, the Sûreté du Québec, the Royal Newfoundland Constabulary and the Royal Canadian Mounted Police in British Columbia.

In collaboration with the Canadian Association of Chiefs of Police, the Law Enforcement Aboriginal and Diversity Network, composed of police officers at the national, provincial, territorial, regional, municipal and Aboriginal community levels across Canada, was set up in 2005. As a result of outreach and training activities of the network, law enforcement agencies are increasingly aware of the need to better connect with Aboriginal and ethnocultural communities.

The Racism–free Workplace Strategy undertaken by Human Resources and Skills Development Canada aims to facilitate the integration of skilled individuals in Canadian workplaces by developing tools, guidelines and education materials on the barriers to opportunity faced by employees. These resources will be offered to employers, practitioners, managers, employees and the general public.

The initiative engaged in several information, education and promotional sessions across Canada (including the Atlantic region, Quebec, Ontario, Alberta and British Columbia) with the goals of raising awareness of racism and discrimination in the workplace, and promoting opportunities in support of employers to ensure a racism–free workplace. The sessions engaged national employment associations, unions, human resource specialists, government agencies, community–based organizations and the general public. As part of this engagement, the Honourable Jean–Pierre Blackburn, Minister of Labour, conducted a five–city awareness and promotional tour of the initiative.

In partnership with the National Film Board (NFB), the initiative has produced six short films illustrating different forms of racism in the workplace. These films are available and can be viewed on the NFB web ite (citizen.nfb.ca/node/778&dossier_nid=1128). A total of 75 discrimination awareness workshops were delivered to more than 659 participants representing 515 employers across Canada. As part of these workshops, tools such as educational materials (resource list and cultural assessment kit) and a racial discrimination handbook were developed and distributed to participants. The workshops included a session on the legal aspects of racial discrimination in the workplace. Additional information on best practices, a business case for workplace diversity, and an implementation strategy for a racism–free workplace were also presented at the workshops.

An ongoing project under the Racism–free workplace Strategy is the hiring and placement of nine racism prevention officers in the regional offices of Human Resources and Skills Development Canada. The officers will be placed in Vancouver, Calgary, Winnipeg, Toronto, Montreal and Halifax. The racism prevention officers will conduct ongoing dialogues with employers and employees to prevent crisis situations or chronic inequalities in the workplace. As a result, the capacity of employers to resolve internal labour conflicts related to discrimination will be increased and incidents of race–based conflict will be reduced. As these officers are hired and deployed, they have the potential to enhance policies and programs that decrease barriers to participation of racial and cultural groups in the workplace.

The Welcoming Communities Initiative (WCI) undertaken by Citizenship and Immigration Canada focuses on the expansion of the Host Program and the Settlement Workers in School Initiative. These expansions are designed to create more connections among immigrant youth, family and business to assist in reducing racism, discrimination and ethnic conflict in schools. Included in this effort is an outreach strategy under the Immigrant Settlement and Adaptation Program to address broader issues of racism and discrimination within the context of immigrant integration.

The WCI developed and delivered several anti–racism youth activities using interactive tools, a public education project entitled “Building Bridges to Equality” for children in grades four and five. The project illustrated and shared with children the negative impact of stereotypes and promoted the goals of multiculturalism. Four conferences using educational tool kits were organized for 309 youth in the Atlantic region. Evaluations completed by conference participants indicated a high level of interest in and understanding of anti–racism issues among youth resulting from their participation in the conferences.

An interactive travelling caravan exhibition aimed at francophone youth was also used in the Atlantic and Prairie Regions to raise awareness and promote peaceful co–existence in francophone schools and in the community. The exhibition increased youth awareness, understanding and knowledge of racism–related issues and ways to counter such behaviour. The initiative also undertook the development and delivery of anti–racism workshops and training manuals. As part of this exhibition, sensitization training sessions for settlement workers and school personnel were conducted in the Atlantic and Prairie Regions as well as across the province of Alberta. The knowledge gained from workshops and training sessions will enable them to provide adequate support for immigrants to enhance their successful integration into society.

As part of WCI, there are several on–going partnerships with provincial governments to develop and implement strategies to counter discriminatory behaviour and practices. These partnerships also support immigrants in developing a sense of empowerment to deal with issues of racism and discrimination. To ensure the effectiveness of their strategies, the WCI initiative is conducting a local longitudinal study of refugee children in Calgary to examine their integration process. This study will provide relevant information and recommendations for national and local policy directions.

The Department of Justice Canada’s efforts in the implementation of CAPAR are focused on three anti–racism initiatives addressing Race–Based Issues in the Justice System, establishing Interventions for Victims and Perpetrators of Hate Crimes and Countering Internet–Based Hate Crimes.

In collaboration with the National Anti–Racism Council of Canada (NARCC), the Department of Justice conducted four regional sessions to highlight programs and activities addressing over–representation of Aboriginal peoples and people of African descent in the criminal justice system. The sessions took place in Winnipeg, Edmonton, Halifax and Toronto between February and March 2007 and provided participants with the opportunity to learn about other community–based projects addressing the issue and their impact on the identified communities. Participants in these sessions were representatives of non–governmental organizations. The results of a survey conducted after the sessions indicated that a large majority of participants gained a better understanding of the issues addressed and increased their knowledge of effective practices in combating the problem in the criminal justice system. An extensive final report including 26 recommendations was prepared by NARCC following the sessions. This report is currently being used by the department of Justice as a guide in developing strategies for addressing race–based issues in the justice system.

A unique characteristic of hate crimes is that they affect individuals as well as communities. The department of Justice conducted a literature review and analysis of the needs of victims of hate–based crime and available resources in various jurisdictions across Canada. In response to findings from this review, the department has developed a chapter to be added to a manual used by criminal justice professionals and victim service providers. The manual applies research to clinical practice and is a widely–used training resource for service providers. The manual is requested on a regular basis for training volunteers, researchers, and others. This additional information will reach a wide audience of service providers and enhance the delivery of service for victims of hate crimes. Efforts are currently underway to advance a project to combat internet–based hate crimes. This project is being conducted in collaboration with Public Safety Canada, the Centre for Innovation Law and Policy, Internet service providers, the Canadian Human Rights Commission, Cybertip.ca, Media Awareness Network and the Center for Research Action on Race Relations.

Other projects underway include support to the African Canadian Legal Clinic to develop an African Canadian Youth Justice Program. This program offers racially and culturally appropriate services and referrals as community–based solutions for black youth involved in the youth criminal justice process, including those who have been convicted of crimes. The program has developed relationships with justice stakeholders and community organizations and provided community education through presentations. As well, the program has engaged in professional development activities and has challenged others to understand and consider cultural differences when providing services to African Canadian youth who are involved in the youth justice system.

Conclusion

The initiatives under CAPAR are beginning to have an impact by increasing the knowledge of institutional target groups and stakeholders about discrimination and racism–related issues in federal institutions and the justice system. As well, some federal institutions and stakeholders are beginning to make relevant policy and program changes based on recommendations, educational materials, models and tools produced by initiatives, and knowledge gained from consultations and collaboration with ethnocultural groups. Some initiatives have several projects underway or planned as follow–up to recommendations from completed research reports. CAPAR initiatives are also playing a key role in enhancing the successful integration of new immigrants through education and support to relevant settlement workers, parents and youth.

The Way Forward

When Canada’s Multiculturalism Policy was first introduced in 1971, the multicultural reality of Canada was considerably different than it is today. Since the 1970’s, Canada is even more diverse in ethnicity, culture, religion and language. In 2006, one Canadian in five had a mother tongue other than English or French and reported more than 200 ethnic origins. Canada’s multicultural reality is evident.

As society evolves, Canada’s Multiculturalism Policy continues to evolve and respond to new challenges, while harnessing the opportunities that our increasingly diverse society brings.

In recent years, multiculturalism in Canada has been presented with a number of challenges including racism and discrimination, changing demographics, increasing religious diversity, and lack of socio–economic integration. Media coverage has focused on security issues, the debate related to reasonable accommodation, and shifts in other western countries regarding treatment of and attitudes toward immigrant populations as major pressure points.

In the coming year, the Multiculturalism Program will focus its efforts on strengthening partnerships with other levels of government, institutions, individuals and community groups to respond to Canada’s changing diversity and to address emerging issues in our pluralistic society. The program will pay particular attention to the following priorities:

1. Support the economic, social and cultural integration of new Canadians and ethnocultural communities.
2. Facilitate programs such as mentorship, volunteerism, leadership, and civic education among at–risk ethnocultural youth.
3. Promote intercultural understanding and Canadian values, (democracy, freedom, human rights and rule of law) through community initiatives, with the objective of addressing issues of ethnocultural social exclusion (ethnic enclaves) and radicalization.

The Program will also continue its work to broaden the understanding of the Canadian Multiculturalism Act across federal institutions, and work with them to identify future directions they could take to further support and develop Canada’s multiculturalism policy.

Canada is a culturally diverse society and the Multiculturalism Program will continue to work for the Canada of today and the future.

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