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Background/Context
When we talk about immigration, we are referring to permanent residents, i.e. individuals
who have made the decision to move permanently to Canada to work and live. People from
around the world also come to Canada on a temporary basis to study and work, but setting
immigration levels focuses on permanent immigration.
Since 2006, the Government of Canada has welcomed the highest sustained levels of
immigration in Canadian history. On average, around 250,000 immigrants per year have
come to Canada.
to fulfill Canadas international legal obligations with respect to refugees and affirm
Canadas commitment to international efforts to provide assistance to those in need of
resettlement;
Every year, as required by law, the Minister of Citizenship, Immigration and Multiculturalism
tables the Annual Report to Parliament on Immigration on or before November 1. The Report
includes a Levels Plan for how many people will be admitted to Canada as permanent
residents the following year. The Levels Plan is an important strategic tool because it sets out
the distribution of admissions spaces across three main categories (economic, family and
refugee/humanitarian). See Annex A for the 2012 Levels Plan.
In developing the Levels Plan, CIC balances the IRPA immigration objectives with several
other factors, including:
Current and future economic conditions, as well as labour market needs; and
2012; a temporary pause on the intake of new sponsorship applications; and introduced the
Parent and Grandparent Super Visa, which allow parents and grandparents of Canadian
citizens and permanent residents to visit Canada for extended stays. In 2012, CIC has taken
action to reform the in-Canada refugee system as contained in Bill C-31,Protecting Canadas
Immigration System Act, which will help deliver faster decisions on refugee claims.
Three Questions
As identified at the beginning of this document, the purpose of this consultation is to seek
your views on immigration to Canada, specifically on immigration levels and their
distribution across categories. The consultation will explore a number of issues related to
three main questions:
1. What is the appropriate level of immigration for Canada? Should the number of
immigrants admitted per year change?
2. What is the appropriate distribution or mix between the number of economic
immigrants, family class immigrants, and refugees/persons admitted under the
humanitarian class?
3. Economic immigration is recognized as a key immigration objective for Canadas
long-term economic growth. What role can immigration play to support Canadas
economy?
Much of the success of Canadas immigration programs depends on who is selected (the
mix), how many come (the level of immigration), and where they go (communities that are
able to welcome them with job opportunities, schools and housing).
Closely linked with the question of the appropriate level of immigration is the question of the
appropriate mix, or distribution, of immigrants across the three main categories of
immigration programs economic, family reunification, and refugee/humanitarian which
broadly reflect IRPAs objectives.
In 2012, the Levels Plan provided a mix of around 62% economic, 26% family, and 13%
refugee and humanitarian class. It is worth noting that the economic category includes the
principal applicants (the individual on the application whose skills and qualifications will be
assessed) and their spouse/partner and dependants. Principal applicants make up around 40%
of the economic category, while spouses/partners and dependents account for around 60%.
However, many of these spouses/partners and dependants as well as immigrants in the
family and refugee/humanitarian classes also join the labour market.
See Annex D for the breakdown and description of the current immigration programs.
The appropriate mix will depend on a careful balance of competing pressures of
commitments to family reunification, refugee resettlement, and selecting immigrants to
support economic growth. The mix must be considered with levels, because there are
different settlement needs among the three main categories of immigrants, and the places that
welcome them should have the job opportunities, the infrastructure and appropriate
community supports in place. How should the social and economic objectives of immigration
be balanced?
candidates also have key attributes such as strong language skills, recognized foreign
credentials, Canadian work experience, and who arrived in Canada at a younger age.
Economic Action Plan 2012 committed to strengthening the assessment of foreign
credentials, in order to facilitate the integration of skilled workers arriving in Canada. It will
reform the Federal Skilled Worker program by eliminating a large backlog of applications
received before 2008 and updating the selection system to reflect the importance of age,
Canadian work experience and proficiency in Canadas official languages. A new federal
skilled trades program will be created, and the Canadian Experience Class will be modified to
enable more temporary foreign workers and international students with skilled work
experience and/or education in Canada to apply for permanent residence. It will also
strengthen the Provincial Nominee Program by focusing on economic immigration streams in
order to respond quickly to regional labour market demand. It also provides flexibility to
quickly create new time-limited classes within the economic category to help attract the best
from the world to Canada. The business immigration program will be improved by targeting
more active investment in Canadian companies geared towards growth, and more innovative
entrepreneurs.
CIC is also working towards creating a pool of employment ready prospective immigrants
as announced in the Economic Action Plan 2012, to make Canadas immigration system
nimbler, more flexible and more responsive to modern labour market realities. This would
allow Canada to select the best and most in-demand applicants, rather than
the first individuals to submit their applications. CIC will be exploring approaches to
developing this pool with employers and provinces and territories.
These issues point to key questions regarding economic immigration. What role can
immigration play to support Canadas economy? How can we balance existing economic and
labour needs with future needs, as well as between different regions and industries in
Canada? How should employers and provinces and territories be engaged to facilitate
economic immigration?
Further considerations
This document has introduced some of the key considerations and challenges related to
setting immigration levels and mix. As the Levels Plan is the key strategic tool for balancing
these challenges for immigration, your views are sought on how CIC should set immigration
levels and mix.
Projected Admissions
Federal Selected Economic Programs, Provincial/Territorial Nominees, Family, Refugees and Others
Quebec Selected Skilled Worker
Quebec Business
TOTAL
2001
2002
2003
2004
2005
2006
2007
39,403
34,197
39,680
44,227
45,458
45,305
44,912
3,932
3,645
3,618
3,037
3,232
3,191
3,338
21,341
22,245
19,385
12,733
12,475
20,005
15,813
Others
2,119
2,205
2,438
2,278
2,209
2,016
2,179
Family class
66,795
62,292
65,121
62,275
63,374
70,517
66,242
58,910
52,974
45,377
47,894
52,269
44,161
41,251
78,321
69,756
59,847
65,557
77,969
61,782
56,601
Number
Category
2001
2002
2003
2004
2005
2006
2007
Entrepreneurs -p.a.*
1,608
1,176
781
668
750
820
580
Entrepreneurs -s.d.**
4,479
3,302
2,197
1,799
2,098
2,273
1,577
Self-employed -p.a.*
705
636
446
366
302
320
204
Self-employed -s.d.**
1,451
1,271
981
824
714
632
375
Investors - p.a.*
1,768
1,234
972
1,671
2,591
2,201
2,025
Investors - s.d.**
4,574
3,402
2,723
4,428
7,020
5,830
5,420
Provincial/territorial nominees
- p.a.*
410
680
1,417
2,086
2,643
4,672
6,329
Provincial/territorial nominees
- s.d.**
864
1,447
3,001
4,162
5,404
8,664
10,765
1,874
1,521
2,230
2,496
3,063
3,547
3,433
753
464
1,075
1,796
1,489
3,348
2,685
Economic immigrants
155,71
7
137,86
3
121,04
7
133,74
7
156,31
2
138,25
0
131,24
5
Number
Category
2001
2002
2003
2004
2005
2006
2007
Government-assisted refugees
8,697
7,505
7,508
7,411
7,424
7,326
7,572
3,576
3,041
3,252
3,116
2,976
3,338
3,588
11,897
10,546
11,264
15,901
19,935
15,884
11,696
Refugee dependants
3,749
4,021
3,959
6,259
5,441
5,952
5,098
Refugees
27,919
25,113
25,983
32,687
35,776
32,500
27,954
206
--
79
53
20
23
15
--
97
148
123
136
107
618
2,376
2,984
3,110
4,312
4,346
3,027
6,645
3,930
3,524
5,902
6,844
Other immigrants
206
3,780
9,197
7,115
6,777
10,373
11,312
Total
250,63
8
229,04
8
221,34
9
235,82
4
262,24
1
251,64
2
236,75
4
*principal applicants
**spouses and dependants
*** Deferred removal orders class and post-determination refugee claimants in Canada
****Humanitarian and Compassionate
1860
1861
1862
1863
1864
1865
1866
1867
Number
6,276
13,589
18,294
21,000
24,779
18,958
11,427
10,666
% of Population
0.2
0.4
0.6
0.6
0.7
0.6
0.3
0.3
Year
1870
1871
1872
1873
1874
1875
1876
1877
Number
24,706
27,773
36,578
50,050
39,373
27,382
25,633
27,082
% of Population
0.7
0.8
1.0
1.3
1.0
0.7
0.6
0.7
Year
1880
1881
1882
1883
1884
1885
1886
1887
Number
38,505
47,991
112,458
133,624
103,824
76,169
69,152
84,526
% of Population
0.9
1.1
2.6
3.0
2.3
1.7
1.5
1.8
Year
1890
1891
1892
1893
1894
1895
1896
1897
Number
75,067
82,165
30,996
29,633
20,829
18,790
16,835
21,716
% of Population
1.6
1.7
0.6
0.6
0.4
0.4
0.3
0.4
Year
1900
1901
1902
1903
1904
1905
1906
1907
Number
41,681
55,747
89,102
138,660
131,252
141,465
211,653
272,409
% of Population
0.8
1.0
1.6
2.5
2.3
2.4
3.5
4.2
Year
1910
1911
1912
1913
1914
1915
1916
1917
Number
286,839
331,288
375,756
400,870
150,484
33,665
55,914
72,910
% of Population
4.1
4.6
5.1
5.3
1.9
0.4
0.7
0.9
Year
1920
1921
1922
1923
1924
1925
1926
1927
Number
138,824
91,728
64,224
133,729
124,164
84,907
135,982
158,886
% of Population
1.6
1.0
0.7
1.5
1.4
0.9
1.4
1.6
Year
1930
1931
1932
1933
1934
1935
1936
1937
Number
104,806
27,530
20,591
14,382
12,476
11,277
11,643
15,101
% of Population
1.0
0.3
0.2
0.1
0.1
0.1
0.1
0.1
Year
1940
1941
1942
1943
1944
1945
1946
1947
Number
11,324
9,329
7,576
8,504
12,801
22,722
71,719
64,127
% of Population
0.1
0.1
0.1
0.1
0.1
0.2
0.6
0.5
Year
1950
1951
1952
1953
1954
1955
1956
1957
Number
73,912
194,391
164,498
168,868
154,227
109,946
164,857
282,164
% of Population
0.5
1.4
1.1
1.1
1.0
0.7
1.0
1.7
Year
1960
1961
1962
1963
1964
1965
1966
1967
Number
104,111
71,698
74,856
93,151
112,606
146,758
194,743
222,876
Year
1960
1961
1962
1963
1964
1965
1966
1967
% of Population
0.6
0.4
0.4
0.5
0.6
0.7
1.0
1.1
Year
1970
1971
1972
1973
1974
1975
1976
1977
Number
147,713
121,900
122,006
184,200
218,465
187,881
149,429
114,914
% of Population
0.7
0.6
0.6
0.8
1.0
0.8
0.6
0.5
Year
1980
1981
1982
1983
1984
1985
1986
1987
Number
143,140
128,642
121,179
89,192
88,276
84,345
99,354
152,078
% of Population
0.6
0.5
0.5
0.4
0.3
0.3
0.4
0.6
Year
1990
1991
1992
1993
1994
1995
1996
1997
Number
216,452
232,808
254,792
256,641
224,387
212,865
226,071
216,035
% of Population
0.8
0.8
0.9
0.9
0.8
0.7
0.8
0.7
Year
2000
2001
2002
2003
2004
2005
2006
2007
Number
227,455
250,638
229,048
221,349
235,824
262,241
251,642
236,754
% of Population
0.7
0.8
0.7
0.7
0.7
0.8
0.8
0.7
Year
2010
Number
280,681
Year
2010
% of Population
0.8
About 62% of the immigrants who come to Canada are in the economic class.
The remaining approximately 13% are primarily refugees but includes others admitted
for humanitarian and compassionate reasons.
It is worth noting that the economic category includes the principal applicants (the individual
on the application whose skills and qualifications will be assessed) and their spouse/partner
and dependants. Principal applicants make up around 40% of the economic category, while
spouses/partners and dependants are around 60%.
Economic
Federal Skilled Worker (FSW) Program
The Federal Skilled Worker Program is designed to supply skilled individuals to Canadas
labour market over the medium to long term, as well as those with job offers to begin work
once they arrive in Canada. Selection is based on a points system, where education, age,
experience, job offer in Canada, and adaptability are assessed. These traits help ensure that
newcomers under this program have high level skills (e.g. managerial skills and/or university
or college education), flexibility and adaptability to find success in Canadas labour market.
The FSW Program is undergoing many changes. A new eligibility stream was launched in
November 2011 to attract and retain those who are pursuing their doctoral degree in Canada
or have recently graduated from a Canadian doctoral program. A new federal skilled trades
program is expected to be introduced through legislative changes in early 2013.
Since November 2008, CIC has worked to better align the processing of FSW applications
with Canadas labour market needs and to address the backlog of applications in the program.
The intake of new FSW applications have been managed by Ministerial Instructions since
2008, and at the end of June 2012, a pause on new intake was announced to allow CIC to
continue to make important changes to the program before accepting more applications.
Significant action on the FSW backlog was announced in Canadas Economic Action Plan
2012, where most applications in the FSWbacklog received before February 27, 2008 will be
terminated and fees returned. This will significantly support a faster and more flexible
program in the coming years.
Business Immigrants
The business program for investors, entrepreneurs and self-employed individuals is
intended to contribute to innovation, bring investment to Canada, and bring individuals with a
proven track record in business that will take risks and create new businesses. The intake of
new applications by this program has been managed by Ministerial Instructions since 2008,
including the pause announced at the end of June 2012 on any new intake for the Immigrant
Investor Program. The business program is being redesigned to target more active investment
and more innovative entrepreneurs.
Live-in Caregivers
The Live-In Caregiver Program is open to temporary residents, who first come to Canada to
contribute their skills and experience in caregiving. Those who meet certain work criteria as a
live-in caregiver within four years of arriving in Canada may apply for permanent residence,
for themselves, their spouse/partner and eligible dependants. The permanent program was
created in 1993 and application volumes are linked with the number of live-in caregivers who
come initially as temporary workers. As volumes in the temporary stream continue to rise,
there will be increasing volumes of applications for permanent residency. At the end of
2011, CIC issued open work permits to those who have applied for permanent residency but
are waiting for processing.
Family
Spouses, Partners and Children
Canadian citizens or permanent residents over the age of 18 may sponsor their immediate
family members to be permanent residents in Canada, subject to sponsorship agreements of
three (for spouses/partners and dependent children) to ten years (for parents and
grandparents).
claim from within Canada. There are also categories to address exceptional humanitarian
situations.
Canada has a long-standing humanitarian tradition of resettling refugees in Canada for whom
no other durable or lasting solution is available (i.e., they cant return home and they cant
stay where they are). In addition, Canada is legally obligated to consider refugee claims made
from within Canada.
The Government is making changes to both major refugee categories. First, the Government
is increasing the number of refugees resettled each year. By 2013, Canada will resettle up to
14,500 refugees annually.
Secondly, changes to the in-Canada refugee system are coming since both the Balanced
Refugee Reform Act and theProtecting Canadas Immigration System Act received Royal
Assent. Once these changes come into effect, refugee claims made in Canada will be decided
more quickly which means that those who are truly in need will get our protection faster.
Likewise, those who do not need our protection will be removed from Canada faster.