1. The Canadian Immigration System: Policy and Patterns
The Public Policy Framework
The Canadian Immigration System: Policy and Patterns
The Policy Framework
© Lorne Foster
© Lorne Foster

2. MAJOR HISTORICAL TRENDS
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MAJOR HISTORICAL TRENDS
Economic Shift from an “Agricultural” to a “Post- Industrial” base.
Policy Shift from a “Closed Policy” to “Open Policy” to “Restricted Policy”
Administrative Shift from “Absorptive Capacity” To “Adaptive Capacity.”
Demographic Shift to more “Complex Social Differentiations” in Society.
Cognitive Shift from a “White-Settler Colony” to a “Post-Racial Society.”
These are the interlocking trends 
The Shift in the Economic Base From an Agricultural to a Post-Industrial Foundation Corresponds to the Demographic and
Historically, at the Collective Level, the “Form of Immigration” Intake has Shifted From a Closed Policy to Open Policy to Restricted Policy with a labour market matrix – Characterized today by “Designer Immigration.”
Historically, at the Individual Level, the Criteria for Admission has Shifted From “Absorptive Capacity” To “Adaptive Capacity.”
Historically, at the Mode of Production Level, the More Complex Developments in the Economic Infrastructure (Mode of Production) have Corresponded to the More Complex Social Differentiations in Society.
Cognitive Shift From a “White-Settler Colony” to a “Post-Racial Society.”
The Policy Framework
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© Lorne Foster

3. Outline of Presentation: The Canadian Immigration System
The Public Policy Framework
Outline of Presentation: The Canadian Immigration System
History of Canada’s Immigration Policy – Forms and Periods
Immigration in Canada Today: A General Picture
• Immigration levels
• Regions of origin
• Types of immigrants
• Where immigrants settle
Policy Challenge: Immigrant’s skills and credentials are not utilized – The Foreign Credentials Gap
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4. History of Immigration Policy: The Three Forms
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History of Immigration Policy: The Three Forms
The Forms of Immigration:
From a White-Settler Colony to a Post-Racial Society
& From an Agricultural to a Post-industrial Society
“Closed Policy" – [designated country immigrants] of ‘preferred’ European stock, White-Settler Colony mentality .
“Open Policy" – [mapped by a ‘point system’ immigrants], supporting the rise of a Post-Racial Society mentality.
“Restrictive Policy“ – [labour market matrix immigrants] characterized by the rise of “Designer immigration.”
Closed Policy" – was inclined toward formalizing a practice that existed since Confederation of recruiting only designated newcomers from only designated countries. This closed policy resulted in targeted or selective immigration practices which guaranteed the bulk of newcomers were, and would remain, of ‘preferred’ European stock.
“Open Policy" – Canada abandoned its “White-Settler Colony” mentality, country of origin was no longer a criterion in immigration selecting, and admission requirements were to be based on individual personal characteristics [mapped by a ‘point system’], supporting the rise of a “Post-Racial Society” mentality.
“Restrictive Policy“- began in 1978 and is associated with specific yearly immigration target levels, coupled with a closer scrutiny of the immigrant's potential labor market impact, characterized by the rise of “Designer immigration.”
The Policy Framework
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© Lorne Foster

5. The Public Policy Framework
Period One: 1867 –1913
Immigration part of a general set of national policies ( Department of Agriculture; Department of Interior)
Main goals
. securing farmers, farm workers and female domestics
. populate, farm and settle the Canadian West.
Search for farmers was concentrated in Britain, the U.S. and
Northwestern Europe.
The highest levels ever: 330,000 in 1911 and 400,000 in 1913.
Demand for labour high, source countries begin to include Eastern and Central Europe – and give away land to White-settlers.
Head tax on Chinese immigrants in West doubled, to $100 – tax increased again to $500 – then immigration outlawed in 1923.
Canada has been “a nation by design,” engineering immigration and naturalization laws and policies to meet the interests of dominant social and economic groups, and restricting by “race” and origin (until relatively recently in its history) those populations it would lure and those it would bar. The Chinese Exclusion Act of 1923 (extended until 1947)  and mimicking the USA national origin quotas imposed in the early 1920s which privileged northwest Europeans (not abolished until 1965), all aimed at the racial exclusion of immigrants from the Eastern Hemisphere
Chinese  the were the only group for which there was a complete structure of special legislation and regulations limiting there opportunity to come, to be united with their families if already here, and to proceed immediately to citizenship when eligible.
[Royal Commission of Chinese and Japanese Immigration 1902 – Controller of Chinese Immigration]
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© Lorne Foster

6. History of Canada’s Immigration Policy: The Eight Periods
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History of Canada’s Immigration Policy: The Eight Periods
“When I speak of quality, I have in mind something that is quite different from what is in the mind of the average writer or speaker upon the question of immigration. I think of a stalwart peasant in a sheep-skin coat, born on the soil, whose forefathers have been farmers for generations, with a stout wife and half-a-dozen children, is good quality.”
Sir Clifford Sifton, 1922
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© Lorne Foster

7. "The Last, Best West" The Public Policy Framework The Policy Framework
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© Lorne Foster

8. Chinese Head Tax Certificate
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Chinese Head Tax Certificate
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© Lorne Foster

9. Period Two: 1919 – 1929 Industrialization and Urbanization
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Period Two: 1919 – 1929 Industrialization and Urbanization
1919: Immigration Act revised (reflecting growth of class-based cleavage/social stratification)
First official division of source countries into preferred and non-preferred groups
Formal acknowledgement of “short-term absorptive capacity”
1919: Immigration Act revised (reflecting growth of class-based cleavage/ social stratification
. government may limit the numbers of immigrants
. formalized immigration guidelines based on ethnicity, race, cultural and ideological traits.
. word ‘nationality’ added to ‘race’ to define the origin of immigrants. [ more nuanced/ complex social differentiations]
First official division of source countries into preferred and non-preferred groups
. preferred countries included Britain, the US, the Irish Free State, Newfoundland, Australia and New Zealand
. applicants from northern and western Europe were treated similarly; those from eastern, southern and central Europe faced stricter regulations.
Formal acknowledgement of “short-term absorptive capacity”
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10. Period Three: 1930s and 1940s déjà vu Capitalism
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Period Three: 1930s and 1940s déjà vu Capitalism
1931: Canadian unemployment rate over 11%
Financial [déjà vu Capitalism and the ideological distain for market regulation] system crisis comparable to today.
Effectively ended six decades of active immigrant recruitment.
Door closed to most newcomers except those (of European descent) from Britain and the US.
1931: Canadian unemployment rate over 11%
. Financial [déjà vu Capitalism and the ideological distain for market regulation] system crisis comparable to the recent collapse of financial markets of 2008.
. Effectively ended six decades of active immigrant recruitment
. Door closed to most newcomers except those (of European descent) from Britain and the US.
Family reunification remained a priority; immediate family members admitted into the country (still in transition from and agricultural to and industrial based economy).
The Policy Framework
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© Lorne Foster

11. The Public Policy Framework
Period Four: 1946 – 1962 The Transition to an Advanced Industrial Society
Two main events: large influx of displaced persons from Europe, establishment of clear ethnic and economic goals for immigration policy
1947: Prime Minister Mackenzie King stated that immigration had purpose of (1) population growth and (2) improved Canadian standard of living.
1952: New Immigration Act – strict admissions control.
Two main events: large influx of displaced persons from Europe,
establishment of clear ethnic and economic goals for immigration policy
1947: Prime Minister Mackenzie King stated that immigration had
purpose of (1) population growth and (2) improved Canadian standard of living  & immigration (3) should not change the basic character of the Canadian population
1952: New Immigration Act allows refusal of admission on the
grounds of nationality, ethnic group, geographical area of origin, peculiar customs, habits and modes of life, unsuitability with regard to the climate, probable inability to become readily assimilated, etc.  moral turpitude
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12. Immigration Is A Privilege And Not A Right Canada’s Postwar Immigration Policy
"The policy of the government is to foster the growth of the population of Canada by the encouragement of immigration. The government will seek by legislation, regulation and vigorous administration, to ensure the careful selection and permanent settlement of such numbers of immigrants as can be advantageously absorbed in our national economy. It is a matter of domestic policy [...] The people of Canada do not wish as a result of mass immigration to make a fundamental alteration in the character of our population. Large scale immigration from the Orient would change the fundamental composition of the Canadian population" – William Lyon MacKenzie King.
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13. Period Five: 1962 – 1973 Liberal Universalism and Difference Blind-ness
1962: Canada abandoned its all White racist immigration policy
. Admission to be based on individual personal characteristics; not nationality
1966 Immigration under Department of Manpower and Immigration (directly tie immigration and labour market).
1967: Point system created to facilitate and encourage the flow of skilled migrants
Family class was still prioritized
Additional immigration posts were opened in third world areas; resulting shift in region of immigrant origin
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14. Selection Grid for Economic Immigrants (Point System)
Factor One: Education
Maximum 25
Factor Two: Official Languages
Maximum 24
1st Official Language
Maximum 16
2nd Official Language
Maximum 8
Factor Three: Experience
Maximum 21
Factor Four: Age
Maximum 10
Factor Five: Arranged Employment in Canada
Factor Six: Adaptability
Total
Maximum 100
Passing Mark 67
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15. Selection Factor: Adaptability
Factor Six: Adaptability
Maximum 10
points
Spouse’s or common-law partner’s education
3 - 5
Minimum one year full-time authorized work in Canada 5
Minimum two years full-time authorized post-secondary study in Canada
Have received points under the Arranged Employment in Canada factor
Family relationship in Canada
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16. Period Six: 1974 – 1985
A period of big swings in the business cycle; immigration inflows
were adjusted accordingly.
1976: New Immigration Act defines the 3 main priorities of the
immigration policy:
. Priority 1: family reunification
. Priority 2: humanitarian concerns
. Priority 3: promotion of Canada’s economic, social demographic and cultural goals
These goals/priorities still form the core of our immigration policy
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17. The Public Policy Framework
Period Seven: 1986 – 2002
1985: Report to Parliament on future immigration levels
.fertility in Canada had fallen below replacement levels
.economic component of the inflow should be increased but not at the expense of social and humanitarian streams
1992: Family class was reduced; government committed to stable inflows of about 1% of the current population
1993: Size of the inflow increased to 250,000 in spite of poor labour market – a major shift from the absorptive capacity policy to adaptability (labour market indicators)
The switch to long term goals and the desire to increase the numbers of skilled workers continued through the 1990s (the birth of “designer immigration”)
1985: Report to Parliament on future immigration levels
fertility in Canada had fallen below replacement levels
economic component of the inflow should be increased but not at the expense of social and humanitarian streams
1992: Family class was reduced; government committed to stable inflows of about 1% of the current population
1993: Size of the inflow increased to 250,000 in spite of poor labour market – a major shift from the absorptive capacity policy to adaptability (labour market indicators)
The switch to long term goals and the desire to increase the numbers of skilled workers continued through the 1990s (the birth of “designer immigration”)
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© Lorne Foster

18. Period Eight: 2002 – 2002: 1976 Immigration Act replaced
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Period Eight: 2002 –
2002: 1976 Immigration Act replaced
. A few changes to the skilled workers category in order to attract younger and educated workers
. More points to applicants with a trade certificate or a second degree; more points for language (French and English); fewer points for experience with greater weight on first two years of experience; and changes in age factor
. Common-law partner in the family category (conjugal relations)
. More powers of detention
. Undocumented protected persons category eliminated
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© Lorne Foster

19. Immigration in Canada Today: Components of Immigration Intake
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Immigration in Canada Today: Components of Immigration Intake
Family Reunification
Members of the Family Class
Humanitarian
Convention Refugees; Members of Designated Classes; Persons eligible under special humanitarian measures
Economic
Assisted Relatives*
Business Immigrants: Entrepreneurs
Self-employed persons
Investors
Retirees
Other Independent Immigrants*
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© Lorne Foster

20. The Immigration and Refugee Protection Act
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The Immigration and Refugee Protection Act
28 June 2002 – The Immigration and Refugee Protection Act comes into effect. It emphasizes the importance of immigration to improving Canadian society and economy and creating a culturally diverse nation.
12 December 2003 – The Canada Border Services Agency (CBSA) is created. It is part of a broader package of programs designed to deal with the security concerns raised by the 11 September attack on the WorldTrade Center. The CBSA’s mandate is to facilitate the legal movement of goods and people across Canada’s borders while stopping illegal or threatening shipments.
31 December 2003 – Introduction of the Permanent Resident Card. The card is required for permanent residents leaving and re-entering Canada. It is designed to increase border security.
28 June 2002 – The Immigration and Refugee Protection Act comes into effect. It emphasizes the importance of immigration to improving Canadian society and economy and creating a culturally diverse nation. The Act also states the government’s commitment to reuniting families in Canada, integrating immigrants, and protecting the health and safety of all Canadians. The refugee program plans to fulfill Canada’s international legal obligations and give fair consideration to all people being persecuted. The Act guarantees the policies will be consistent with the Canadian Charter of Rights and Freedoms and the Universal Declaration of Human Rights. It also states that intergovernmental co-operation will be important, as will be greater public awareness of policies. [Devolution of Responsibility to Provinces]
12 December 2003 – The Canada Border Services Agency (CBSA) is created. It is part of a broader package of programs designed to deal with the security concerns raised by the 11 September attack on the WorldTrade Center. The CBSA’s mandate is to facilitate the legal movement of goods and people across Canada’s borders while stopping illegal or threatening shipments. [Fortress Mentality]
31 December 2003 – Introduction of the Permanent Resident Card. The card is required for permanent residents leaving and re-entering Canada. It is designed to increase border security.
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© Lorne Foster

21. Canadian Immigration in 2005: By Admissible Category
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Canadian Immigration in 2005: By Admissible Category
Economic
56.1%
Family
28.5%
Refugee
12.8%
Other
2.6%
Total Number of
Immigrants
262,157 (100%)
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© Lorne Foster

22. The Public Policy Framework
Annual Distribution of Permanent Residents By Source Area (%)
In the 1950s, 84.6% of immigrants were European by birth
By the mid 1980s immigrants born in Europe slipped to 28.6%
Now its about 15%
Source: Citizenship and
Immigration Canada
2007, 27.
Source Area
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
Africa and the Middle East
18.9
20.0
18.8
19.0
20.6
21.8
21.2
22.0
19.7
Asia and Pacific
53.4
47.1
49.8
52.7
52.3
50.8
49.9
47.2
51.4
48.4
South and Central America
7.6
6.9
7.5
8.0
8.9
9.2
9.1
9.5
Total for the Above
79.9
74.7
76.2
78.6
80.4
80.6
80.0
78.4
80.2
79.7
United States
2.1
2.5
2.7
2.4
2.6
3.2
3.5
4.4
Europe and UK
18.0
22.7
21.1
19.1
17.4
17.2
17.3
18.4
16.4
15.8
TOTAL
100.0
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23. Canadian Immigration Source Countries 2005 Number of Immigrants
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Canadian Immigration Source Countries 2005
Number of Immigrants
China
42,291
India
33,146
Philippines
17,525
Pakistan
13,576
United States
9,262
Columbia
6,031
United Kingdom
5,865
South Korea
5,819
Iran
5,502
France
5,430
Romania
4,964
Sri Lanka
4,690
Russia
3,607
Taiwan
3.092
Hong Kong
1,784
Yugoslavia (Former)
272
Top 10 Source Counties
144,447
Other
117,789
Total
262,236
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© Lorne Foster

24. Where do Permanent Residents settle in Canada?
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Where do Permanent Residents settle in Canada?
Province/Territory
2005 %
Nova Scotia
1,929
0.7%
Other Atlantic Provinces*
1,918
Quebec
43,308
16.5%
Ontario
140,533
53.6%
Manitoba
8,097
3.1%
Saskatchewan
2,106
0.8%
Alberta
19,399
7.4%
British Columbia
44,767
17.1%
Territories**
160
0.06%
Provinces/Territories not stated 19
>0.001%
Total
262,236
* Newfoundland and
Labrador, New
Brunswick, Prince
Edward Island
** Yukon, Northwest
Territories, Nunavut
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© Lorne Foster

25. Canada-Ontario Immigration Agreement
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Canada-Ontario Immigration Agreement
The first-ever Canada-Ontario Immigration Agreement was signed in November 2005.
The Agreement signals a new era of federal-provincial collaboration in the integration of newcomers to Ontario.
. Over the next five years, Citizenship and Immigration Canada (CIC) plans to invest $920 million in new funding for settlement and language training programs and services in Ontario.
. The federal and provincial governments will jointly develop settlement and language training strategies (service gaps and optimal ways of delivering and measuring the effectiveness of integration services)
. The overall goal of these strategies is to support the successful social and economic integration of immigrants in Ontario.
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26. New Developments
Provincial Nominee Program (PNPs) are also in place with 10 jurisdictions (the Yukon and all provinces except Quebec), either as an annex to a framework agreement or as a stand-alone agreement. Under the PNP, provinces and territories have the authority to nominate individuals as permanent residents to address specific labour market and economic development needs.
Canada Experience Class program will allow temporary workers as well and international students to apply to become permanent residents
. Aimed at people who want to immigrate to Canada and already have Canadian work experience or Canadian academic credentials.
. Perhaps as many as 12,000 – 18,000.
The Immigration Backlog is now report as 900,000. (This effectively means that newcomers face long processing delays, perhaps as along as five years).
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27. Policy Challenge: Immigrants’ Skills Are Underutilized
Immigrants tend to start at a significant earnings disadvantage,
. In 1980, the income of male immigrants represented 89% of the income of workers born in Canada
. In 2000, the income of immigrants fell to 77% relative to the income of workers born in Canada
Unemployment rate shows the same trend
. In 1981, the unemployment rate of immigrants (7.1%) was lower than the unemployment rate of Canadians (7.9%)
. 20 years later, the unemployment rate of immigrants is % compare to 7.4% for workers born in Canada
The economic condition of newcomers in the country has worsened; the immigrants who are most affected belong to racial minorities
Annual cost of this problem: $2 billion
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28. Salary Gap Disparity in median incomes among recent immigrants
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Salary Gap Disparity in median incomes among recent immigrants
Recent Immigrants from 2001 to 2006
University educated, $26,301
Non-university educated, $19,280
Immigrants from 2000 and before:
University educated, $37,647
Non-University educated, $29,301
Canadian-born:
University educated, $57,695
Non-university educated, $39,586.
What it noticeable about new millennium immigration?
University Educated immigrants make less that pre-millennium non-educated immigrants
University Educated immigrants make less than half of Canadian-born university educated.
University Educated immigrants are predominantly racialized.
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29. Policy Challenge: Immigrants’ Skills Are Underutilized
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Policy Challenge: Immigrants’ Skills Are Underutilized
Principal Cause: the non-recognition of foreign education and foreign experience
• Canadian workers are increasingly educated, employers have access to a qualified workforce and prefer to hire Canadian- educated workers with domestic experience
• Professional associations are often accused of placing too many barriers in front of otherwise qualified immigrants
• Even with a work authorization given by a professional association, there is still an earnings gap of 15% between newcomers and the Canadian-born – limited access to senior/management positions
The earnings gap for workers outside the knowledge economy (mostly regulated by professional association) represents a 30% difference
Most newcomers will not be part of the knowledge economy
Cultural hegemony is the new head tax to exclude the ‘undesirable,’ and to perpetuate oppression in Canada.
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30. The Public Policy Framework
Potential Solutions
The Canadian government has recently announced that it will increase
immigration – yet, most of our newcomers today are visible minorities
• To help mitigate possible social tensions, governments (federal, provincial and municipal) have a role to play in establishing coherent policy
• Some potential initiatives include:
1) Better sources of information for immigrants, before and after arrival
2) Bridge-training programs to “top-up” immigrants’ skills or fill in the gaps
3) Subsidized workplace internship and mentoring programs
4) More support for credential assessment services to improve labour market effectiveness
5) Improved public awareness of the problems faced by skilled immigrants in integrating into the Canadian labour market and the consequences for Canadian society
Problem: federal government refuses to assume the necessary role of policy manager – and accept responsibility for monitoring the quality control of the system
Question{?}: What happens with a large project you create where you just give out the goals and objectives, divvy out resources, and delegate responsibilities?
My Thesis: the federal government is in the most advantageous position to monitor the immigrant workplace integration in a substantive equality format that links the global and the local è policy manager function – but because of “sub-contracting” the complex policy landscape of immigrant employment has become “unworkable” – the policy manager function has to be the pivotal feature of governance of nation-building.
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