Broadening the conversation: policy and practice in immigration, settlement and diversity - Canadian Institute for Identities ...
←
→
Page content transcription
If your browser does not render page correctly, please read the page content below
Broadening
the conversation:
policy and practice in immigration,
settlement and diversity
Guest Editors
Dr. Laurie Carlson Berg, University of Regina
Dr. Fadila Boutouchent, University of Regina
Volume 13 | No. 1 | 2016
Programs & Initiatives
Voices into Action - Unit 6
Introduction Rural Settlement Services in Western Canada:
Available on 5 Dr. Laurie Carlson Berg, University of Regina
and Dr. Fadila Boutouchent, University of Regina 34
An Inventory and Opportunity Assessment
Rachael Noelle Pettigrew, William (Bill) Ashton
and Eleni Galatsanou
Beyond Government by Surprise:
The National Film Board of Canada (NFB) interactive iPad app and 8 Governance in the Immigration Sector Does Language, Employment Status and Region
of Origin Influence Access to Settlement Services?
39
Keith Banting
website, featuring seven short films, offers a unique and intimate look at
Jill Bucklaschuk, Pallabi Bhattacharyya,
how young Canadians from different backgrounds weave faith into their
Lori Wilkinson, Jack Shen, Iqbal Ahmed Chowdhury
daily lives. This immersive media experience was conceived by the NFB Pick a Number: The Value of Annual
11
and Tamara Edkins
in collaboration with the CRRF. http://thefaithproject.nfb.ca Consultations on Immigration Levels
Jack Jedwab
Neighbourly Environments of the Canadian
A Win-Win Scenario: An Employer Case Study 43 and Foreign-Born
Fernando Mata
of the Bidirectional Benefits of Newcomer-
Voices into Action is a FREE ONLINE
educational program that brings key
social justice issues to the forefront
18 Supportive Policies
School-Family Collaboration: The Perspectives
Rachael Noelle Pettigrew
while meeting provincial requirements of Quebec-born and Immigrant Parents
51
for secondary school curriculum.
voicesintoaction.ca Bringing Home, Home: Place-Making and A Preliminary Analysis of the Results of Two
Therapeutic Landscaping Through Cultural Studies
CROSS-CANADA LIVE STREAM EVENT 22 Rituals and Practices Among African Refugees Annick Lenoir
FOUR PRESENTATIONS ABOUT DIVERSITY ON CAMPUS
in Winnipeg
Tuula Heinonen and Regine King Resettlement Following Genocide:
Monday, March 21, 2016 Perceived Experiences of Rwandan Refugees
1 p.m. to 4 p.m. EST
Tune in to the live-streamed event and
1/35
How do the Economic Outcomes of Economic 59 in Toronto
25
versus Family Sponsored Immigrants Compare? Regine King
create your own dialogue circles Yoko Yoshida, Howard Ramos and
Why Do Chinese Canadians Have Lower Fertility?
62
Connect with students at UBC, U of Ottawa, Madine VanderPlaat
Mount Saint Vincent and Universite de Moncton Jing Zhao
Impediments to Belonging: Economic Precariousness
WWW.CRRF-FCRR.CA
After the Live-in Caregiver Program Exploring the Processes of Identity Construction
30 Ethel Tungohan, Rupa Banerjee, Wayne Chu, Conely
De Leon, Mila Garcia, Philip Kelly, Marco Luciano, 66
Among Chinese Immigrant Parents and Young
Adults in Montreal
2015-2016 Cynthia Palmaria and Christoper Sorio
Lingwei Qian
National Youth
Video Challenge
Ends June 30, 2016 Canada
Lecture
Our Canada: Take action
Think! Collaborate! Produce!
REGIONAL PARTNERS
Canadian Diversity is published by Canadian Diversity is a quarterly publication of the
Association for Canadian Studies (ACS). It is distributed
Board of Directors: free of charge to individual and institutional members of
the ACS. Canadian Diversity is a bilingual publication. All
Introduction
Ayman Al-Yassini
Montreal, Quebec (Chair)
material prepared by the ACS is published in both French and
English. All other articles are published in the language in
Yolande Cohen which they are written. Opinions expressed in articles are
Professor, History Department, Université du Québec a Montréal, those of the authors and do not necessarily reflect the opinions
Montréal, Québec Dr. Laurie Carlson Berg, University of Regina and Dr. Fadila Boutouchent, University of Regina
of the ACS or sponsoring organizations. The Association for
Lloyd Wong Canadian Studies is a voluntary non-profit organization. It
Professor, Sociology Department, University of Calgary seeks to expand and disseminate knowledge about Canada
Madeline Ziniak
through teaching, research and publications. The ACS is a
Chair, Canadian Ethnic Media Association, Toronto, Ontario scholarly society and a member of the Humanities and Social The 17th National Metropolis Conference (Vancouver, March 2015) addressed many themes such as issues related to changes in
Science Federation of Canada. policy and practice related to immigration in Canada. The previous federal government adopted many measures that are con-
Vivek Venkatesh sidered restrictive in terms of immigration-related matters. For instance, positions and outreach services have been cut. Also,
Professor, Concordia University, Montreal, Quebec
psychological support for torture, rape and abuse victims were cut from the interim refugee program and policies pertaining to
Celine Cooper obtaining Canadian citizenship, family class immigration, foreign workers and refugees. These cuts raised many debates and
PhD Candidate, OISE/University of Toronto, Montreal, Quebec
questions.
Madine Vanderplaat
LETTers
Professor, Sociology Department, Saint Mary’s University, Halifax, Nova Scotia In July 2015, the Association for Canadian Studies called for submissions about these themes to broaden the discussions about
Comments on this edition of Canadian Diversity? the challenges and opportunities determining settlements and integration in Canada; identifying with, participating in and
Herbert Marx
We want to hear from you!
Montreal Quebec belonging to both official language communities in Canada; and transculturality and establishing relations between newcomers
Jean Teillet Canadian Diversity / ACS and immigrants who have settled some time ago. Shortly after this call for submissions, the federal government held elections
Partner at Pape Salter Teillet LLP, Vancouver, British Columbia 1822A, rue Sherbrooke Ouest in 2015. In spite of a new government, these themes are still present in the media and public debates. These conversations and
Montréal, Québec H3H 1E4 speeches seem to lump together the Syrian crisis, the threat of Islamic extremism, Islam and the Muslim veil. Indeed, what some
people call the “veil debate” has become so crucial that it has either benefited or harmed the positions of the various political
Or e-mail us at parties. What do these debates reveal about the various opinions Canadians have about our pluralistic society? Some discourses
seem to normalize diversity, some refer to the “straw that broke the camel’s back”, and others encourage identification (different
Your letters may be edited for length and clarity.
identities?) and questioning the dominant discourse. This issue offers different perspectives. The authors encourage readers to
reconsider and rethink the impact of immigration practices and policies related to the development of respectful and mutual
EDITOR-IN-CHIEF
relations crucial to integration, civic participation and cultivating a sense of belonging to Canada, especially with the recent
Jack Jedwab experience of researchers from Western Canada. This issue of Canadian Diversity contains a selection of articles about the main
themes and articles of the 17th National Metropolis Conference (Vancouver 2015) and is likely to contribute to new discussions at
Guest Editors
Dr. Laurie Carlson Berg, University of Regina the 18th National Metropolis Conference in Toronto in March 2016 and beyond.
Dr. Fadila Boutouchent, University of Regina
This issue of Canadian Diversity starts with an article that champions public access to procedures and policies that allow the
MANAGING EDITOR
Sarah Kooi opening of a debate for an informed audience. Banting points out that changes made to the immigration policies throughout the
last decade were not very transparent. Banting criticizes this process of change and calls it governance by surprise because it
DESIGN & Layout
CAMILAHGO. studio créatif
tends to keep critics off-balance. According to the author, this process mainly undermined the predictability of all involved by
camilahgo@gmail.com eroding trust in government and weakens accountability mechanism on which our conception of democracy rests. He believes it
is time to put an end to parliamentary debates about citizenship, refugees and security if not replace this divide-and-rule policy
with better integration opportunities.
In the second article, Jedwab questions whether annual and multi-annual planning consultations are really a matter of num-
bers. The author claims that there have been very few changes in annual immigration levels in the last few years. He took the
opportunity to analyse the general theoretical discussion and to imply the importance of investing in public literacy about
immigration. The article offers a new perspective on the data collected in Léger Marketing’s March 2015 poll commissioned by
the Association for Canadian Studies. The author believes it is important to augment literacy about immigration in anticipa-
5
tion of more significant public debates in the future. Jedwab, just like Banting, believes that informing better Canadians about official languages and culture. They also face professional and civic challenges. The author reflects on the necessity of creating
immigration and its related issues may encourage a more rational public debates in which everybody wins, just as suggested by inclusive spaces open to new forms of identity and to the juxtaposition of identities.
Pettigrew’s scenario in the third article.
In conclusion, this issue of Canadian Diversity/Diversité Canadienne offers an in-depth coverage of the topics discussed herein.
In this article, Pettigrew describes a win-win situation in which potential employers can play a key role in the hiring, settling and Not only does this issue contain diverse immigration-related topics, but also covers specific needs that need to be met in order
integration of newcomers. This article offers an overview of a big Canadian employer’s successful experiment and identifies the to better integrate Canadian values such as democracy, justice and equality. These articles present different points of view on
policies put in effect for that purpose as well as organization’s profit. The author claims that employers who can offer language migration backgrounds, if not, potential therapeutic landscapes that can be food for thought. These readings are ways to inform
training at lunch time, a mentorship program, and help with housing not only support the integration of newcomers, but also the general public and various social partners of policies, practices and the challenges of immigration in order to be better
simultaneously ensure that loss of staff within their organization is minimal. equipped and be more open to immigration. This issue reiterates the call to create inclusive spaces that are open to diversity.
In the fourth article, Heinone and King offer another example of substantial gain. Both authors describe how resorting to cultural
activities, recreation, arts and crafts, and focusing on family needs allows the creation of therapeutic landscapes for refugees in
their cold, new home, Winnipeg. It’s as if this article called on us, among other things, to think of customs and familiar habits
through which immigrants and members of the host communities can create human, respectful and mutually beneficial bonds.
On another note, other authors examine the contributions of newcomers as well as the economic challenges they face. If the fifth
article, Yoshida, Ramos and Vanderplaat discuss the economic contribution of newcomers in Nova Scotia. Their study shows
that some families contribute considerably, if not surpass the economic expectations of the province. Tungohan and her con-
tributors address another economic facet. They explored, in the sixth article, the socio-economic vulnerability of Filipina immi-
grants who have come via the live-in caregiver program. According to the authors, because these immigrants have no Canadian
work experience, they must take costly and time-consuming upgrade classes that don’t guaranty a job. Furthermore, having to
feed their families adds to the pressure that is already on them. The authors discuss some of the modifications made to the pro-
gram since 2014 which have led to some abuse. In regards to challenges, in the next articles, Pettigrew, Ashton and Galatsanou
took a closer look at serviced aimed at increasing the immigrant population in rural regions of Canada’s four Western provinces
(British Columbia, Alberta, Saskatchewan and Manitoba). The authors noted a considerable increase of newcomers of various
ethnocultural and immigration backgrounds in some small communities in which infrastructure and immigrant settlement
services are not always available. The authors identify areas that can be potentially improved.
In this very issue, there are also two articles that explore the social aspects of immigration. Bucklaschuk, Bhattacharyya, Wilkinson,
Shen, Chowdhury and Edkins surveyed by telephone immigrants who landed in Canada between 2008 and 2012 to show that
about two out of three immigrants did not access settlement services. Their results show a high percentage of immigrants that
did not use service providers because their own networks could offer support. Their results also show a relatively high percentage
of people who needed help from service providers, but did not seek them out as they were unaware that such services existed.
The authors discuss the best ways to inform newcomers adequately. Also, Mata examines, more specifically, sociodemographic
markers and features of the environments where immigrants choose to settle and their relationship with their neighbours. His
study shows that immigrants generally do not interact with their neighbours even if they have been living in Canada for some
time. The author suggests that programs that encourage immigrants to interact with their neighbours and that promotes a more
participative citizenship, especially in negative areas, should be implemented. However, these interactions have already been
linked to a sense of belonging to Canada, interaction with and participation in the host society.
In the field of education, Lenoir, in the tenth article, presents the relationship between schools and immigrant families. Her
study is a reminder that school and family interactions are less than ideal. Generally, this fact is perceived as evident as most
families integrate discourse related to this type of collaboration. However, families’ involvement is minimal and is usually
limited to parents following up on lessons at home. Her results suggest that there is room for dialogue and for improving
collaboration between schools and families, an issue that has been talked about for decades.
The last three articles explore the challenges of certain immigrant communities. First, King presents results of a qualitative study
on Rwandan refugees in Toronto. Results show that social isolation in the host society, being a refugee and its painful legacy all
contribute to withdrawal and a feeling of isolation. The author examines policies and practices related to the challenge of social
isolation. This study is one of the few that examines the consequences of genocide. Jing Zhao explores the low fertility rate of
Chinese-Canadian women. According to the author, having children, although a person choice, have significant social outcomes.
The comparative study shows that in spite of Canada’s policies that favour fertility more than China’s policies, socio-economic
considerations, situational differences caused by the slowness of immigration and the settlement process may be the source of
Chinese women’s low fertility rates. Finally, Lingwei Qian explores the identity of two generations of Chinese-Canadians who
have immigrated to Canada in the 1990s. The author notes that parents who are considered economic class immigrants are,
as well as their children, are often highly educated. They face challenges related to the multiplicity of identities, knowledge of
6 7model, governments face fewer constraints on the exercise of consultations before being formally approved by cabinet.
power. The critical line of accountability is to the legislature The Immigration and Refugee Protection Act in 2002 largely
and to the electorate. The key to the democratic legitimacy of followed this pattern.
the model lies, not necessarily in the search for broad consen-
sus, but in open, transparent government, consultation, and This approach faded during the recent Conservative govern-
vigorous public debate, to ensure voters are informed the next ment. Interestingly, the shift began in the context of minority
time they cast their ballot. government. Traditionally, minority governments lean more
towards consensus politics, with governments having to find
The strengths and weaknesses of these two systems are support for each piece of legislation from another party in
the obverse of each other. Consensus democracy ensures a the House. But that was not the route chosen. In 2008, the
broader societal agreement on new initiatives. The down- omnibus Budget Bill, packed with many different things and
Beyond Government by Surprise:
side is that the need for consensus can slow the process. In passed through political brinkmanship, granted the Minister
contrast, the majoritarian system facilitates action, allowing the authority to fundamentally alter important immigration
a government to act on the basis a narrower range of programs by issuing “Ministerial Instructions” to immigra-
Governance in the Immigration Sector
public support. Critics of consensus democracy worry about tion officers. Ministerial authority was broadened again
the potential for paralysis. Critics of majoritarian systems 2012. In addition, avenues for public consultation narrowed.
worry about the abuse of power and complain about elected Consultations were by invitation only, held in private,
dictatorship. narrowly defined and highly targeted. And parliamentary
committees played a smaller role in shaping policy change,
By its very nature, Canada has always been closer to the limiting opportunities to public groups excluded from the
Keith Banting is the Stauffer-Dunning Fellow in the School of Policy Studies at Queen’s University. His research focuses majoritarian model. Most often, the electoral system delivers private channels to advance their views.
on the politics of social policy, including more recently the relationship between ethnic diversity, multiculturalism and social a majority in Parliament without a majority of votes from
solidarity. He is the author or editor of twenty books and numerous articles and book chapters, and his publications have been the electorate. The former Conservative government and the The scope of policy change carried out through ministerial
translated into seven languages. Dr Banting is a member of the Order of Canada and a Fellow of the Royal Society of Canada. recently elected Liberal government both achieved majorities instructions has been staggering. In the years after 2008,
in the House of Commons with the support of less than 40% of major portions of the immigration system, such as the eco-
voters. Moreover, compared to many other democratic coun- nomic stream and the family reunification stream were trans-
tries, there are relatively few potent checks and balances. The formed in major ways, changes that would have involved
In recent years, immigration policy has been transformed through a governance process best described as government courts and the Charter of Rights and Freedoms clearly matter. legislation in the past. For example, the Temporary Foreign
by surprise. A bewildering flurry of decisions made in a closed, tightly controlled process remade immigration and At times, the federal-provincial interface has also represented Workers program was re-made and re-made again through
settlement programs with little opportunity for public consultation, parliamentary scrutiny or informed public a check on the exercise of power at both levels of govern- ministerial instructions, going through cycles of major expan-
debate. Government by surprise is highly effective at keeping critics off balance. But it also brings serious costs. ment, a consensus mechanism in an otherwise majoritarian sion and subsequent restriction, all without legislation. If ever
It raises the level of uncertainty and lowers predictability for all involved; it can only erode trust in government; polity. But intergovernmental compromises are important there were a case study of what can go wrong with populist
and it weakens the accountability mechanisms on which our conception of democracy rests. It’s time to retire only when governments want to advance policies that require policy-making, this was it. Admittedly, when the program
government by surprise. the cooperation of the two levels. Absent such political drive, became a hot political issue in 2012, the controversy was dif-
intergovernmentalism does not kick into gear, as witnessed fused very quickly through new ministerial instructions. But
by its decline under the former Conservative government. perhaps a more open and deliberative process would have
The election of a new federal government presents an ideal the exercise of untrammeled government power is a danger. helped avoid the mistakes that made it such a hot issue in the
time to reflect on governance in the immigration and settle- In this model, democracy requires political institutions that Given the limited institutional checks on political power, what first place. More recently, the introduction of Express Entry
ment sector. The policy process during the last ten years limit the potential for abuse by creating checks and balances qualifies our system of governance as passably democratic is was completed by ministerial instruction. Over time, we have
has raised troubling issues, and hopefully the lessons of the and by bringing major economic and social interests into the an open and transparent process, with a strong flow of infor- seen a dramatic shift of the economic stream from the human
recent past can become signposts for a different future. Such process of policy development. In practice, surmounting the mation to the public, opportunities for public input before capital approach embedded in the 2002 legislation to a mixed
an evaluation needs to set the immigration sector in the con- checks and balances inherent in this model usually requires decisions are made, and informed vigorous debate in the model in which employers have a much larger role – all without
text of the larger system of democratic governance in Canada, compromise between political parties before new policies can media, civil society, and Parliament. Without that, it becomes the focused parliamentary and public debate that legislation
and pay careful attention to mechanisms of accountability, be implemented. The classic case is obviously the US, with its harder to pretend this is really something we want to call generates.
the vibrancy of checks and balances, and the strength of complex system of divided authority. But the German system, democratic.
linkages with stakeholders in the sector. for example, achieves similar constraints through a propor- In the settlement sector, major changes also came through
tional electoral system which leads to coalition governments In some earlier periods, the immigration and settlement administrative discretion. The surprise decision in 2012 to
It is useful to start by briefly highlighting two different con- which must compromise internally, plus two powerful cham- sector did a reasonable job of meeting these expectations. recentralize delivery of settlement services in Manitoba and
ceptions of democratic governance, noting the strengths and bers of the national parliament and the multi-level governance Proposals for significant change were preceded by discussion British Columbia was accomplished by ministerial decision
weaknesses of each, and then using the two conceptions to inherent in the EU. papers setting out a new direction, public consultations gave without advance consultation with the provincial govern-
analyze the policy process in immigration and settlement sector interested parties an opportunity to present their views, and ments involved. The change came as a complete shock to the
in recent years. I will call these two conceptions “consensus The defining characteristic of majoritarian democracy is the final decisions were enacted through legislation, with serious settlement service organizations actually delivering the ser-
democracy” and “majoritarian democracy”. concentration of political power in the hands of a government parliamentary debate and committee hearings, and the media vices on the ground in the two provinces. As Naomi Alboim
which – in the prototypical case – is formed by one political scrutiny which such debates trigger. In addition, regulations and Karen Cohl wrote in 2012, sweeping changes “have been
The defining assumption of consensus democracy is that party holding a majority of seats in the legislature. In this made pursuant to the legislation were often the subject of realized through a tightly controlled political process without
8 9allowing for real engagement and discourse” (Alboim and Reference
Kohl 2012). Clearly, their description has remained relevant
Alboim, Naomi and Karen Cohl. 2012. “Shaping the future:
since then.
Canada’s rapidly changing immigration policies”, Toronto: Maytree Foundation.
Government by surprise may keep critics off balance. But
there are costs to this style of decision-making. First, it
raises the level of uncertainty and lowers predictability for
all involved. It does not provide a secure basis to plan if you
are an applicant, a stakeholder group, or a provincial govern-
ment. Second, such a closed and unpredictable process can
only erode trust in government. Much has been written by
Pick a Number: The Value of Annual Consultations
Robert Putnam and others about the problems of sustaining
interpersonal trust in our increasingly diverse societies. But
more recent analyses have emphasized the importance of
on Immigration Levels
trust in government as a key to managing the strains that
diversity brings. Countries with high levels of public trust in
government are less prone to the decline in social cohesion
and solidarity that many worry about. Government by sur-
prise, unpredictable government, government that does not
honour commitments by phasing in changes, cannot be good
for trust in government. Just ask international graduate stu- Jack Jedwab is currently President of the Association for Canadian Studies (ACS) and the Canadian Institute for Identities and
dents who watched the Canadian Experience Class folded Migration. He has led the ACS since 1998. He previously served as Executive Director of the Quebec branch of the Canadian Jewish
into the Express Entry pool without much notice. Congress (1994-1998). He holds a PhD in Canadian History from Concordia University. Between 1983 and 2008, he lectured
at McGill University in the departments of sociology, political science and at the McGill Institute for the Study of Canada. He
Third, and most importantly, government by surprise erodes also taught in the history department at Universitié du Quebec a Montreal. He is currently the Chair of the National Metropolis
the vibrancy of democracy. The majoritarian model is a legi- Conference on Immigration and Integration and is founding editor of the publication Canadian Diversity, He is a frequent
timate conception of democratic government. And there is contributor to the opinion pages of the Montreal Gazette and commentator in several national media
nothing new in diagnoses of the centralization of power in
Canadian government; such assessments have been a con-
sistent refrain throughout my entire professional career. But
what gives concentrated power its legitimacy, the minimum The annual or multi-year planning consultations on levels of immigration have been regarded as an essential
condition that qualifies this model as a democratic form of conversation in determining the numbers of immigrants coming to the country. Since there has been very little
governance, is open and informed public debate in civil society, change in the annual level of immigration over the past two decades the author questions whether the object
in the media, in the people’s House, in its committees. Such of the exercise is indeed about numbers. He also points out that in the absence of any shift in the numbers the
vigorous informed debate is crippled by government in the evidence occasionally offered by analysts about the impact about any such modification is generally reduced to a
shadows. theoretical discussion. Finally given the relatively low level of public knowledge about numbers of immigrants the
author recommends a greater investment in augmenting public literacy about immigration.
One might argue that the federal government faced unpre-
cedented problems in the Federal Skilled Workers program,
that decisive action was needed, and that the process can
revert back to a more traditional pattern in the future. But From the beginning of the twentieth century to the present The annual level of immigration is described as one of the
power is addictive. The danger is that public servants will day, the growth of Canada’s population through immigration most critical components of a country’s immigration policy.
become accustomed to this way of doing business; and the has contributed immensely to its emergence as a country Whether the actual level of immigration is appropriate for
new Liberal governments might also find government by respected for its economic, social and cultural achievements. the Canadian economy and society is the object of ongoing
ministerial instruction and its equivalents to be convenient. Indeed Canada is often described as a nation of immigrants debate. But it has largely been a discussion between experts as
After all, parliamentary processes are so messy, so time- as the one in five foreign-born Canadians represents the 2nd the broader public has not been especially engaged in debate
consuming, so unpredictable. highest such ratio in world after Australia. Canada’s popula- about immigration numbers. Since there has been very little
tion growth is based on natural increase and net international change in the annual level of immigration over the past two
We seem to manage it elsewhere. Witness the legislation and migration (provincial and territorial population estimates also decades it’s difficult to determine with any certainty whether
intense parliamentary debates about citizenship, refugees, factor in interprovincial migration). As an example, in the the numbers have any meaningful impact on the economy.
and security. Parliament should not be reduced to a platform second quarter of 2015 natural increase was 33,000 almost Hence, since the 1990’s it is not possible to surmise in prac-
for wedge politics. It’s time for a higher quality of democratic half the total of 64, 000 for international migration. Barring tice the economic impact of changes to the annual numbers
governance throughout the immigration and settlement an unlikely baby boom immigration will soon account for the of immigrants. Therefore it’s only in theory that observations
sector as a whole. It’s time to retire government by surprise. country’s entire population growth. can be made about what a change in levels might mean. There
have been several studies that have examined the economic
performance of newcomers over selected periods after time of
10 11arrival. Such studies are certainly important but they can’t tell the immigrant selection process by revising the skilled immi- across all regions; many things but when it comes to migration flows, there are
us about the outcome of the change in levels. grant point system to better attract younger immigrants with indeed several imponderables.
higher levels of language fluency. While immigration policy • reuniting families;
It’s also worth noting that over the past decades while addresses family reunification as well as humanitarian con- For example, as officials observe when permanent resident
governments have not reduced immigration levels, there siderations, the economic focus is prevalent with over 60 • fulfilling Canada’s international legal obligations visas are extended, it cannot control exactly when, or even if,
actually has been a reduction in the share that the annual percent admitted to the country under an economic category. with respect to refugees, and to assisting those in need a person uses that visa to come to Canada. Given this, specific
intake represents within the overall Canadian population. of resettlement; and targets for each class of immigrant need to be established so
In 1992, Canada’s intake was 30,000 short of one per cent of Over the past two decades adjustments have been made to as to include the number of applications that must be pro-
the population (a historic target for Liberal governments). To match market needs with the skill set of immigrants admitted • protecting the health, safety and security of Canadians. cessed to ensure admissions fall within the planning range.
attain the one percent figure today, the Government would to the country via the economic categories but that has not There is also a need to take into account the varying labor
have to admit about 350 000 people and is thereby between resulted in meaningful modification of numbers (with the When referring to levels, CIC asks three questions: 1) what is needs across provinces and territories, rural and urban areas,
80 000 and 100 000 persons short of the target. exception of the substantial increases in the entry of temporary the right level of immigration to Canada? 2) how should this and sectors of the economy. For this reason, the Government
foreign workers). Immigration levels averaged 220,000 per overall level be divided among the three main permanent of Canada must work with the provinces and territories (not
It is contended here that the annual consultations on levels year in the 1990s and just over 240 000 over the first decade of resident classes: economic, family, and refugee/humanitar- to mention the cities) to properly manage the immigration
of immigration are somewhat of a misnomer and need to be the 21st century. Going back to 1992, Canada welcomed about ian? (which it refers to as the “mix.”). And 3) what role can program.
re-described and/or reinvented so it is less centered on num- the same number. immigration play to support Canada’s economy?
bers and more about resources aimed at improving settlement. Provinces have been setting out there specific economic,
This has become an important element in such consultations It’s true that some analysts insist that immigrant numbers The levels plan must also balance such things as: social and labour market needs. And in the case of Quebec there
but it needs to be made more explicit. It’s also contended that should be reduced when the economy is uncertain, since it is an agreement in place (the Canada-Quebec Accord-(1991)
there is real need to augment what might be described as is more difficult for immigrants to find work in Canada and • the Government of Canada’s current priorities and that gives the province power to set its own admission targets
immigration literacy amongst Canadians as there is evidence they are less able to establish themselves economically and commitments; (though humanitarian considerations fall outside their pur-
to suggest that knowledge about the issues of settlement and socially. They point out that there are limits to the number of view). The province also manages its own economic immi-
selection are insufficient. The consequence of inadequate immigrants that can be successfully integrated and the ability • the extent that our economy and communities can gration programs. The government of Quebec also holds its
public knowledge is conversations around immigration that of public services to meet the expansion of population. integrate newcomers; own annual or multi-year immigration levels consultation
are not always based on sound information. and indeed has used this forum to justify recent increases in
In sum therefore while much of the national conversation • current and future economic conditions, as well as numbers. In the years ahead there will be a unique opportunity
Is there really a debate about the numbers of immigrants that over immigration has touched on whether Canada should labour market needs; to test the increase in immigrant numbers on economic and
should be admitted to Canada? target higher numbers those recommending increases have social changes.
seen their proposition fall relatively flat for the better part of A growing consideration in planning levels is security issues
Most economists agree that Canada needs to welcome more the last quarter century. It is legitimate to ask whether in fact as adequate consideration needs to be given to whether CIC In short the very idea of establishing a global admission
skilled immigrants. What is referred to as a debate is about the government consultation about levels has been little more and its security partners (the RCMP, CBSA and the Canadian number on an annual basis seems a complex task with
how many immigrants Canada should admit. The Royal Bank, than an exercise in public relations as regards the annual Security and Intelligence Service) have the financial resources several potential obstacles to effecting change. But it raises
the Ontario Coalition of Agencies Serving Immigrants, the quantity of newcomers to be received. to process applications for effective program delivery. the question of what such consultations are really about and
Conference Board of Canada and the Canada West Foundation if in effect there are more about justifying existing numbers
have called for immigration to proximate the 1% target. But In theory as mentioned by officials at CIC, the department rather than moving them on to some other “level”.
there is a gap between such their respective recommendations could process as many applications as possible and then
and their application. The Challenge of Change: report on the outcome at the end of the year. If it undertakes
the planning exercise it does so because it is required under
A May 2012 Globe and Mail essay suggested that Canada
Obstacles to Adjusting Immigrant Numbers Canada’s immigration law. But officials add that the planning If it’s not about levels what is the annual Consultation really
needed a “flood of immigrants”. It contended that over the exercise is needed to “run a system as big and complex as addressing?
next decade a million jobs risked going unfilled. With popula- In his 1981 annual report the auditor general called for the immigration…to allocate resources across a vast processing
tion aging, immigration would likely become the sole source Minister of Immigration to better justify their reasons for network in Canada and around the globe…to help settle and One of the key dimensions of the national conversation over
of workplace growth. The Globe added that the ratio of working announcing a particular figure or range each year. Since integrate newcomers [they] must know what kind of volumes immigration numbers that gets considerable public attention
age Canadians to seniors was narrowing and the inevitable then Citizenship and Immigration Canada (CIC) has typically to expect. is the issue of integration. The CIC planning process raises the
outcome would be a shrunken tax base and acute labour asked for public feedback on immigration to Canada and issue of how well society can integrate newcomers. It suggests
shortages. While immigration was not the only way to meet specifically on levels of immigration. National immigration The levels plan is further justified as a matter of public that it depends on several factors which include:
this challenge it could diminish the problem. planners consult with the provinces and groups and agen- policy as the Government of Canada must balance the costs
cies from the voluntary and private sectors as well as a small and benefits of maintaining public confidence in the coun- • policies, programs and services that support
Some economists have legitimately urged caution. group of academics that have an interest in the composition try’s immigration program. Planning the level and the mix is immigrant integration;
Christopher Worswick has argued that “…in determining of the immigrant flow to Canada. described as the best tool to manage the immigration system
whether, or how, to raise immigration levels it is vital to con- for Canada’s benefit. Undoubtedly, as CIC officials point out, • labour market conditions that let them take part in
sider average labour market outcomes of newly arrived immi- Canada’s immigration legislation puts forth the country’s maintaining public confidence is a key goal of the planning the Canadian economy; and
grants – outcomes that in recent years have been poor when major goals as follows: exercise.
compared to those of the Canadian born.” • how willingly the newcomer and the local community
• developing a strong and prosperous Canadian eco- CIC correctly notes that there is a degree of uncertainty in take part in the integration process.
The solution that most observers have proposed is to improve nomy, in which the benefits of immigration are shared planning immigration levels. CIC can plan for and control
12 13In the criteria established by CIC in the determination of confidence in the immigration system is essential. Table 2: In total, approximately how many immigrants do you think Canada allows into the country each year?
annual levels there is no explicit reference to social or cul-
tural concerns or more specifically the extent to which TOTAL Atlantic QC ON MB/SK AB BC
newcomers are seen as adapting to societal values (how-
ever defined) and/or whether intergroup harmony would be The “level” of Public Immigration Literacy in Canada Fewer than 10,000 12% 18% 11% 12% 13% 10% 11%
upset by augmenting numbers of immigrants. If such explicit
references are less apparent in the annual consultation pro- How much importance should the state attach to public opinion 10,000 to 24,999 12% 13% 12% 10% 20% 12% 11%
cess they occupy a rather important place in the political when it comes to the annual levels of immigrants? Ideally if
arena and in the national media discussion and discourse public opinion were to be regarded as a key element in the 25,000 to 49,999 5% 6% 7% 3% 4% 6% 3%
around immigration. There is much talk about immigrants conversation over levels of immigrants it should be based on a
adapting to Canadian values, the need to maintain social proper knowledge of the numbers of immigrants. In the ideal
50,000 to 99,999 8% 10% 12% 6% 8% 8% 4%
cohesion (however defined) and the more recent variant on situation one might also hope for a good number of people
this idea, the equally vague notion of living together (pro- informed about the impact of immigration on the economic
100,000 to 149,999 10% 8% 9% 11% 7% 14% 10%
ponents of this concept that they are examining “the living and social condition (keeping in mind it’s too much to ask for
together” as opposed to “living together”). everyone to be an economist).
150,000 to 299,999 11% 5% 9% 13% 7% 9% 12%
Since there has been very little change in annual level of CIC has demonstrated some interest in the degree of literacy
immigration over the past two decades it’s difficult to deter- amongst the population when it comes to immigration. The 300,000 or more 9% 6% 7% 10% 9% 12% 11%
mine with certainty whether the numbers of immigrants has government commissions annual tracking surveys that often
any meaningful impact on intergroup tension or harmony. focus on public awareness of the numbers of immigrants Canada Don't know/Refused 34% 33% 32% 35% 33% 31% 39%
Yet this hasn’t prevented much of the broader public debate receives and the perception around whether immigration
to be framed in such terms and therefore something the generates economic benefits. On the question of numbers
levels planners can ignore since the country’s decision-makers as observed below the CIC commissioned 2015 tracking sur-
contribute to the discussion being framed this way. Elected vey of 3028 Canadians saw a narrow majority agree that the The underlying question behind the public perception of numbers there is a ten point increase in the share that thinks
officials can’t ignore public opinion when it comes to issues annual number is just about right. However some one in four levels is how many immigrants are too many? When the CIC that there are too many newcomers with some 37% in agreement.
of immigration as CIC officials note that maintaining public Canadians believes that there are too many immigrants. commissioned survey presents Canadians with the actual
Table 3: In total, approximately how many immigrants do you think Canada allows into the country each year?
Table 1: In your opinion, do you feel there are too many, too few, or about the right number of immigrants coming to Canada? In your opinion, do you feel there are too In fact, in the last few years approximately 250,000 new
many, too few, or about the right number immigrants came to Canada each year. Knowing this,
of immigrants coming to Canada? do you feel there are too many immigrants, too few…
TOTAL Atlantic QC ON MB/SK AB BC
Too many 26% 37%
Total number 3,028 216 726 1,161 196 322 407
Too few 12% 11%
Too many 26% 22% 21% 30% 31% 30% 24%
About the
Too few 12% 22% 9% 13% 9% 12% 14% 52% 47%
right number
About the right number 52% 46% 62% 49% 52% 48% 50% Don't know 8% 4%
Don't Know 8% 10% 7% 8% 7% 9% 10% Refuse 1% 1%
Refuse 1% 0% 0% 0% 1% 2% 2%
If most Canadians are unfamiliar with the numbers there is temporary workers are not the public’s priority when it comes
also no consensus around which categories of immigrants to facilitating entry. Nor do refugees rank especially high in
Underlying the question of whether there are believed to be five think that the country takes in over 150 000 and some that should be the priority as regards entry into the country. this regard. Again public education could have a potentially
too many or too few immigrants is how many the country in three say they don’t know. In short the vast majority of A March 2015 Leger survey for the Association for Canadian important impact on public perceptions so as to help explain
receives in a given year? Canadians are at the very least some- Canadians seem unaware that the country receives about Studies found that the largest plurality of respondents favors how and why government makes certain decisions around
what unsure about this. Some 47% believe that the country 250 000 immigrants per year. facilitating entry for skilled workers. Although they have immigrant admission.
takes in less than 150 000 immigrants annually. Only one in seen substantial growth in numbers over the past five years
14 15Table 4: Rank the following groups of migrants for which Canada needs to facilitate entry in the country from 1 (the group that Canada should facilitate the most) Table 6: In your opinion, do you feel there are too many, too few, or about the right number of immigrants coming to Canada?
to 5 (the group that Canada should facilitate the least)
Too many Too few About the right number
TOTAL Atlantic QC ON MB/SK AB BC
Religious/Cultural groups such as Jews, Muslims and Sikhs should
Skilled workers for 45.9% 22.1% 23.7%
32% 35% 26% 34% 33% 39% 30% abandon their customs and traditions and become more like others
permanent settlement
There is an irreconcilable conflict between Western societies and
Reuniting family members 24% 22% 24% 22% 24% 27% 31% 68.3% 44.3% 48.3%
Islamic text and practices in the world
Investors and entrepreneurs
23% 19% 29% 23% 24% 21% 20%
for permanent settlement
Refugee claimants 15% 10% 15% 16% 14% 11% 14% Conclusion social conditions in Canada. As Canada approaches its 150th
Temporary workers 6% 12% 7% 6% 5% 3% 5% anniversary a meaningful public debate about levels of immi-
Aside from the legislative requirement to do so, there are sound gration would be a welcoming part of any visioning exercise
reasons to hold annual consultations about immigration. The that looks at the country’s future. Doing this would ideally
focus on numbers however gives rise to the idea that there entail greater public knowledge about immigration something
What underlies the view amongst those who feel that there those Canadians that feel that there are too many immigrants might be series modifications to levels based on input from in which a greater investment needs to be made. The annual
coming to the country. Many also cite cultural integration as those bodies engaged in the process. That the levels have shifted consultations on levels of immigration which could benefit
are too many immigrants to Canada? a factor when asked to identity reasons why they feel there very little over the past twenty –five years suggests that the lifting the reference to levels could serve that purpose to a
are too many newcomers. That’s the main reason evoked by consultations are much less about actual numbers. By conse- much greater extent than is currently the case.
The March 2015 ACS-Leger survey commissioned by the the largest plurality of respondents in Quebec and to a lesser quence it is difficult to make more than theoretical observa-
Association for Canadian Studies it is observed that it is degree in Alberta. tions about the impact of changing numbers on economic and
access to jobs that is regarded as a key concern expressed by
Table 5: Reasons given by Canadians that feel there are too many immigrants coming to Canada as to why that’s the case
TOTAL Atlantic QC ON MB/SK AB BC
Limited access to jobs / employment 20% 23% 9% 25% 23% 16% 18%
No effort in integrating within Canadian values /
13% 1% 23% 10% 5% 18% 13%
customs
Immigration quotas / laws / regulations are too
12% 15% 16% 10% 12% 4% 18%
lenient
Unreasonable demands for accommodations 9% 8% 13% 9% 3% 7% 7%
Increase in reverse discrimination / affirmative
8% 6% 2% 10% 18% 10% 5%
action (i.e. taking our jobs)
Immigrants come to take advantage of Canadian
7% 3% 5% 8% 3% 11% 5%
rights, freedoms & social safety net
Over-saturation of social service network
6% 4% 4% 8% 7% 8% 6%
(i.e. welfare, food banks, etc.)
Canadian-born citizens are becoming a
6% 7% 4% 7% 14% 4% 5%
disadvantaged underclass
Safety threat / Circumvention of federal
4% 4% 6% 3% 5% 7% 2%
and provincial laws
The cultural concerns amongst the segment of the popula- and Sikhs should abandon their customs and traditions and
tion that feels there are too many immigrants are further con- become more like others and that “there is an irreconcilable
firmed when looking at how Canadians with varying views on conflict between Western societies and Islamic text and prac-
levels respond to selected questions about assimilation and tices in the world.” Those concerns are also apparent to a lesser-
intergroup conflict. As observed below those Canadians that though not insignificant-degree amongst Canadians that are
believe there are too many immigrants are far more inclined comfortable with the levels of immigration (independent of
to agree that “religious/Cultural groups such as Jews, Muslims whether they know the actual number).
16 17costs and benefits of these programs from both the employer the experiences of one organization that has developed
and newcomer perspective. exemplary policies in supporting newcomer employees. A
large multi-national manufacturing organization was inter-
viewed in February of 2015. This organization, located in the
Canadian prairies, employs roughly 1,800 employees in more
LITERATURE REVIEW than 20 locations and estimates their annual sales at $200
billion dollars.
Though the research exploring the bidirectional benefits
A Win-Win Scenario:
of organizational newcomer-supportive policies is limited
(Guo & Ariss, 2015), it is clear that both newcomers and Organizational history of newcomer employment
employees benefit from such programs (van der Heijden et
An Employer Case Study of the Bidirectional
al., 2009; Harvey, 2012; Wang et al., 2005). Starting at the This organization has been employing newcomers, mainly
recruitment phase, there is evidence that proficiency with TFW, for over ten years. The organization began foreign
host-country language facilitates settlement and integration recruitment out of necessity and was precipitated by an
Benefits of Newcomer-Supportive Policies
(Ashton, Pettigrew, & Galastanou, 2015; Wang et al. 2005), extreme shortage of skilled trades in Canada. This organiza-
which reduces onboarding costs. During the recruitment tion recruits solely skilled trades, such as fitters, machinists,
process employers highlight the benefits of working for their welders, and fabricators. Over the last ten years, the organi-
organization, coming to Canada, and potentially provide zation has recruited over 300 TFWs and currently employs
incentives. Research suggests, at the very least, employers 60 to 70 TFWs. Impressively, 99 percent of all TFWs recruited
need to follow through on pre-arrival promises to maintain became permanent Canadian residents and are still employed
Rachael Noelle Pettigrew, PhD, lives in Calgary, Alberta. After 12 years at University of Manitoba, Rachael now teaches the satisfaction of their employees (Harvey, 2012). by the organization. The few TFWs who returned to their
at the Bissett School of Business at Mount Royal University. Her research follows two streams. First, she is actively engaged country of origin did so because they or their spouses were
in research relating broadly to the work-life interface, but with specific interest in organizational culture, gender, and family- Research shows that an increase in employee support unable to get permanent residence due to personal history or
supportive policies. Second, Rachael’s secondary research stream focuses on workplace diversity, with a focus on immigration, decreases the turnover intentions of employees (van der health reasons.
the Canadian newcomer experience, and the role of the employer in newcomer settlement. Heijden et al., 2009), which can mitigate the significant costs
of turnover for the employer. In addition, Wang and col- Initially, the organization recruited from Ukraine and
leagues (2005) found that newcomers’ adjustment to work and Ireland, but in recent years recruitment has been almost
the organization was linked to coworker support and included entirely from the Philippines. Interestingly, the organiza-
Employers can play a key role in the employment, settlement, and integration of newcomers. Potential supple- both fellow newcomer and Canadian- born coworkers. tion finds recruitment often occurs via a snowball effect. For
mental policies and supports, such as lunchtime EAL training, mentor programs, and housing assistance, can In contrast, newcomers’ work satisfaction was linked only example, they recruit an employee from a specific town in the
help support newcomer employees. However, before employers invest in such programs they need reassurance to the support of management (Wang et al., 2005). These Philippines and then in subsequent recruitment waves recruit
that doing so will have a positive impact on their bottom line. Little research has been conducted to assess the findings indicate that although coworkers can help new- this employee’s family members or friends. These family
potential benefits to both employers and newcomer employees for offering supplemental newcomer supportive comers understand their jobs; it is managerial support that members enter the recruitment process with a strong under-
policies. This paper reviews the success story of one large Canadian employer by describing the policies offered helps them like their jobs, which is linked directly to reten- standing of what to expect from the organization and Canada,
and the organizational rewards of doing so. tion. Finally, employers must acknowledge that employees but also benefit from social support upon arrival.
are also members of families. The successful settlement of
newcomer employees is reliant on the successful adjustment
and acclimation of the employees’ families as well (Wang et Strategic Newcomer Recruitment
In today’s economy, businesses have to look farther than their national immigration will become more common as the popu- al., 2005). Therefore, whenever possible organizations should
own backyards to fill vacancies within their organizations. lation ages. For example, the Immigrant Employment Council support family reunification and extend integration supports The organization uses a strategic and hands on approach to
The highly competitive international hunt for key talent and of British Columbia (BC) has projected by 2020 there will be to both employees and their families. international recruitment. Instead of employing a consultant
scarce skills is referred to as the war for talent (Pollack, 2012). one million job vacancies in BC and “international migration or intermediary, they have a human resources (HR) pro-
Demographic factors such as the declining domestic birth- will contribute the large majority of BC’s net labour force sup- As mentioned earlier, research in this area is limited and has fessional on staff who focuses exclusively on international
rates, the aging population, and retiring baby boomers con- ply” (Pollack, 2012, p. 2). Across Canada, there will be a large been primarily focused on identifying the challenges new- recruitment and support of TFWs. This HR professional and
tribute to the scarcity of workers and key trades. As a result, increase in the arrival and employment of newcomers. How- comers face, rather than identifying and proposing organi- managers personally travel to the Philippines to conduct
nations and individual organizations have two options to ever, there is a concern that these newcomers will be viewed zational solutions or strategies for better supporting their interviews and assess potential employees’ language skills,
maintain national economic growth and competitive advan- as an economic commodity and not properly supported. newcomer employees (Gui & Ariss, 2015). This research aims adaptability, and desire for long-term commitment, which
tage. First, they can build the capacity of their own citizens Ideally, recruitment is just the first step and is followed by an to identify best practices in newcomer support, by reviewing are all important to successful recruitment (Guo & Ariss, 2015;
to meet demand (Deloitte, 2012). This is a long-term solu- investment in newcomer integration into both the organiza- the experiences of one organization that has been extremely McNulty et al., 2009). By personally interviewing potential
tion, since skills needed by 2020 should be in development tion and community. It is essential that employers bringing successful in doing so. employees managers customize recruitment and can match
now. The second and more immediate option is to facilitate newcomers to Canada take a leadership role in the integra- specific employees with certain managers, roles, or branches
the recruitment of skilled workers from around the world tion of their employees. Post-arrival support from employers of the organization. On the last trip the organization con-
(i.e., temporary foreign workers (TFW), provincial nominees) is crucial (Pollack, 2012), however, the business case for pro- ducted 250 interviews and hired 70 people. This proactive
(Deloitte, 2012). viding supplemental programs has not been made. Therefore, CASE STUDY and personal approach to recruitment increases likelihood of
this paper explores one organization that offers supplemental fit for both the organization and employee, can help shape
In Canada, the recruitment of foreign workers and inter- policies to support newcomer employees and reviews the This research utilized the case study method by exploring employees’ expectations, and can prevent underemployment
18 19You can also read
