Canada’s New Immigration Canada’s New Immigration Policies: Policies:

Implications for TESL OntarioImplications for TESL Ontario

Naomi AlboimNaomi Alboim

November 2008November 2008

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Overview of presentationOverview of presentation Recent policy changesRecent policy changes ContextContext Facts and FiguresFacts and Figures Analysis, Challenges, Options for Analysis, Challenges, Options for

interventionintervention New directions and policy/programNew directions and policy/program

implicationsimplications

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Recent CIC Policy ChangesRecent CIC Policy Changes Increased focus on short term labour market Increased focus on short term labour market

needs needs Greater role of provinces in selection Greater role of provinces in selection Increased numbers of temporary workers Increased numbers of temporary workers Introduction of Canadian Experience ClassIntroduction of Canadian Experience Class Increased Ministerial discretion (proposed list Increased Ministerial discretion (proposed list

of occupations)of occupations)

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The cumulative impact of the The cumulative impact of the changes is a fundamental changes is a fundamental shift in Canadian immigration shift in Canadian immigration policy which could also have policy which could also have language training language training implications.implications.

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Canadian contextCanadian context Immigration as means to end: one tool in kitImmigration as means to end: one tool in kit Economic objectives paramount: short Economic objectives paramount: short

term/long termterm/long term Population realities: net growth dependent on Population realities: net growth dependent on

immigration immigration Labour market realities: labour and skill Labour market realities: labour and skill

shortagesshortages International competition for skilled workersInternational competition for skilled workers Immigration to build nation, community and Immigration to build nation, community and

labour forcelabour force Selecting citizens, not just workersSelecting citizens, not just workers

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Who’s coming and where are they going?Who’s coming and where are they going?

Number of permanent residents down (236,758) in all Number of permanent residents down (236,758) in all categories despite huge inventory and labour/demographic categories despite huge inventory and labour/demographic needs needs

Only 17% of immigrants (41,253) assessed on skilled Only 17% of immigrants (41,253) assessed on skilled worker points system including knowledge of official worker points system including knowledge of official language (Skilled Worker Principal Applicants)language (Skilled Worker Principal Applicants)

Within economic class only Provincial Nominee Program Within economic class only Provincial Nominee Program going up; skilled worker PAs are biggest declinegoing up; skilled worker PAs are biggest decline

While 47% of PRs still going to Ontario (59% in 2001), other While 47% of PRs still going to Ontario (59% in 2001), other provinces gaining at expense of Ontario and BCprovinces gaining at expense of Ontario and BC

Toronto numbers declining steadily (from 50% in 2001 to Toronto numbers declining steadily (from 50% in 2001 to 36.8% in 200736.8% in 2007

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……Who’s coming and language Who’s coming and language training implicationstraining implications

Almost 71% from Asia/Pacific and Almost 71% from Asia/Pacific and Africa/Middle EastAfrica/Middle East

More educated than Canadian born (92% of More educated than Canadian born (92% of SWPA have some Post Secondary Education)SWPA have some Post Secondary Education)

Largest group 25-44 years of age, but fewer Largest group 25-44 years of age, but fewer 0-14, and increased numbers of 45-64 and 0-14, and increased numbers of 45-64 and 65+65+

67% have some official language capacity 67% have some official language capacity (SWPA 89%)(SWPA 89%)

33% have no official language capacity33% have no official language capacity

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How are recent immigrants doing?How are recent immigrants doing? Worse than previous cohorts, longer to catch Worse than previous cohorts, longer to catch

upup More unemployed than Canadian born, but More unemployed than Canadian born, but

most workingmost working More underemployed than Canadian bornMore underemployed than Canadian born More in part time/part year employment than More in part time/part year employment than

Canadian bornCanadian born More in low paying jobs than Canadian bornMore in low paying jobs than Canadian born More in low income than previous cohortsMore in low income than previous cohorts More than twice the incidence of low income More than twice the incidence of low income

relative to Canadian bornrelative to Canadian born

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Possible causesPossible causes Changing characteristics of immigrants (language, Changing characteristics of immigrants (language,

culture, education, country)culture, education, country) Discounting of credentials and experienceDiscounting of credentials and experience Increased competition with educated Canadian born Increased competition with educated Canadian born

and other “new entrants”and other “new entrants” DiscriminationDiscrimination Business cycle “scarring”, economic restructuringBusiness cycle “scarring”, economic restructuring Lack of alignment between selection criteria and Lack of alignment between selection criteria and

labour market needslabour market needs

Different possible policy interventions for Different possible policy interventions for eacheach

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Preliminary research findingsPreliminary research findings Immigrants not integrating economically as well Immigrants not integrating economically as well

as expected given education levelsas expected given education levels– 60% of recent immigrants not in jobs using their 60% of recent immigrants not in jobs using their

experience and educationexperience and education Some classes doing better than othersSome classes doing better than others

– Skilled Worker Principal Applicants do better than other Skilled Worker Principal Applicants do better than other classes. Human capital matters.(92% PSE; 89% E or F)classes. Human capital matters.(92% PSE; 89% E or F)

– After SWPAs, refugees do better than other economic After SWPAs, refugees do better than other economic categories. Services matter.categories. Services matter.

– Family class members do better than other economic Family class members do better than other economic categories, particularly in their first year. Social capital categories, particularly in their first year. Social capital matters.matters.

Language and communications matter mostLanguage and communications matter most

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……Preliminary Research FindingsPreliminary Research Findings Refugees and Family Class members stay in Canada Refugees and Family Class members stay in Canada

more than Economic Class more than Economic Class If low income avoided in first year, likelihood only 10% If low income avoided in first year, likelihood only 10%

or less in subsequent yearsor less in subsequent years 34-41% exited low income after one year; approx one 34-41% exited low income after one year; approx one

third still in low income after 3 years (two thirds not in third still in low income after 3 years (two thirds not in low income)low income)

More recent immigrants aged 18-24 and 25-54 likely More recent immigrants aged 18-24 and 25-54 likely to attend school than Canadian counterpartsto attend school than Canadian counterparts

Services can shape economic integration: early Services can shape economic integration: early interventions, language, social networks, top-ups interventions, language, social networks, top-ups reverse discountingreverse discounting

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Options for InterventionOptions for Intervention Focus on the immigrantFocus on the immigrant

– Levels/mix/source countriesLevels/mix/source countries– Selection criteria (language, age, education, Selection criteria (language, age, education,

credentials, occupation)credentials, occupation)

Focus on programs and servicesFocus on programs and services– Bridge gap faced by immigrant before and after Bridge gap faced by immigrant before and after

arrivalarrival– Information, qualification assessment, language Information, qualification assessment, language

and bridge training, mentorships, work experience and bridge training, mentorships, work experience programs, loansprograms, loans

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Focus on systems and attitudes of host Focus on systems and attitudes of host society and institutionssociety and institutions– Regulatory bodies, employers, schools, universities, Regulatory bodies, employers, schools, universities,

community colleges, community agencies community colleges, community agencies – Bridge gaps faced by the institutions: Bridge gaps faced by the institutions:

awareness/recognition of skills, cross-cultural/anti-awareness/recognition of skills, cross-cultural/anti-racism training, supports, incentives, legislationracism training, supports, incentives, legislation

– Multi-stakeholder vehiclesMulti-stakeholder vehicles– Intergovernmental collaboration (federal, Intergovernmental collaboration (federal,

provincial, cities)provincial, cities)

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Recent policy changesRecent policy changes– Reduce skilled worker permanent admissions in Reduce skilled worker permanent admissions in

favour of provincial nominees and temporary favour of provincial nominees and temporary entrantsentrants

– Focus almost exclusively on short term labour Focus almost exclusively on short term labour market needs (Ministerial instructions)market needs (Ministerial instructions)

– Devolve responsibilities to provinces, educational Devolve responsibilities to provinces, educational institutions, and employersinstitutions, and employers

Governments have invested in programs and systems, but instead of evaluating impact or fixing SWPA

processing and criteria…..

Challenges of New DirectionsChallenges of New Directions

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Provincial nominee programsProvincial nominee programs(provinces)(provinces)

11 Federal-Provincial Agreements in absence of 11 Federal-Provincial Agreements in absence of national frameworknational framework

Patchwork of criteria, costs, processesPatchwork of criteria, costs, processes Respond to regional needs but mobility rights Respond to regional needs but mobility rights

guaranteedguaranteed Provide priority processing but no caps and growing Provide priority processing but no caps and growing

significantly (17,095 in 2007)significantly (17,095 in 2007) Testing ground for new approaches but no national Testing ground for new approaches but no national

evaluation (Ontario now in evaluation)evaluation (Ontario now in evaluation) Ontario’s PNP very small (500), few occupations (20), Ontario’s PNP very small (500), few occupations (20),

favours employers outside GTA (Manitoba wants to favours employers outside GTA (Manitoba wants to double from 10,000 to 20,000)double from 10,000 to 20,000)

Over time could result in significantly reduced Over time could result in significantly reduced numbers to Ontarionumbers to Ontario

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International studentsInternational students(PSE institutions)(PSE institutions)

ContextContext– 64,636 initial entries in 2007 (Canada) (gradual increase)64,636 initial entries in 2007 (Canada) (gradual increase)– 21,476 Ontario (stock 65,517)21,476 Ontario (stock 65,517)– 11,939 Toronto (stock 35,872) 11,939 Toronto (stock 35,872) – Provides workforce on and off campus; during and after Provides workforce on and off campus; during and after

graduationgraduation– Pool of excellent potential immigrantsPool of excellent potential immigrants– Credential, language, integration costs borne by students and Credential, language, integration costs borne by students and

PSE institutions; not eligible for settlement or LINC servicesPSE institutions; not eligible for settlement or LINC services– Included in Ontario PNPIncluded in Ontario PNP

Concerns with Canadian Experience Class:Concerns with Canadian Experience Class:– May attract non-studentsMay attract non-students– Impact on PSE institutions and domestic studentsImpact on PSE institutions and domestic students– Impact on skilled worker applicantsImpact on skilled worker applicants

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Temporary foreign workers Temporary foreign workers (employers)(employers)

Numbers increasing dramaticallyNumbers increasing dramatically– 115, 470 in 2007 Canada (initial entries) 115, 470 in 2007 Canada (initial entries) – 37,184 Ontario (stock 82,873)37,184 Ontario (stock 82,873)– 16,506 Toronto (stock 33,604)16,506 Toronto (stock 33,604)– Newfoundland, Alberta, and Territories received more TFWs Newfoundland, Alberta, and Territories received more TFWs

than immigrants in 2007than immigrants in 2007 Employer drivenEmployer driven

– No caps or targets tabled in ParliamentNo caps or targets tabled in Parliament– Priority processing, new offices, reduced employer Priority processing, new offices, reduced employer

requirements to get approval, 2 year work permitsrequirements to get approval, 2 year work permits– Used strategically, effective labour market tool at high endUsed strategically, effective labour market tool at high end– Employers using TFWs to fill permanent vacancies more Employers using TFWs to fill permanent vacancies more

quickly than with Skilled Workers quickly than with Skilled Workers – Increasing use of TFWs to fill low-skilled and unskilled jobsIncreasing use of TFWs to fill low-skilled and unskilled jobs

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……Temporary foreign workersTemporary foreign workers ConcernsConcerns

– Used inappropriately could discourage investment Used inappropriately could discourage investment in training, hiring of under or unemployed in training, hiring of under or unemployed permanent residents and citizens, could suppress permanent residents and citizens, could suppress wageswages

– Ineligibility for language and settlement services, Ineligibility for language and settlement services, mobility restrictions, dependency on employer, lack mobility restrictions, dependency on employer, lack of enforcement create vulnerabilities at low endof enforcement create vulnerabilities at low end

– Canadian Experience Class: transition to permanent Canadian Experience Class: transition to permanent residence only at high endresidence only at high end

– Undocumented underclass at low end if don’t leave; Undocumented underclass at low end if don’t leave; employer concerns if doemployer concerns if do

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ImplicationsImplications Ontario and Toronto will continue to receive fewer permanent Ontario and Toronto will continue to receive fewer permanent

skilled workers because of increased activity by other skilled workers because of increased activity by other provinces, priority processing of FTW’s and CEC.provinces, priority processing of FTW’s and CEC.

More blurring of numbers (perm/temp) will make planning More blurring of numbers (perm/temp) will make planning difficultdifficult

The occupational list proposed for ministerial instructions for The occupational list proposed for ministerial instructions for Skilled worker processing will result in a narrower range of Skilled worker processing will result in a narrower range of skilled workers and will not respond to longer term needs of skilled workers and will not respond to longer term needs of OntarioOntario

Increased proportion of landings will come from the CEC : Increased proportion of landings will come from the CEC : people who will have had no prior access to federal settlement people who will have had no prior access to federal settlement and language programs in 2 step process to permanent and language programs in 2 step process to permanent residenceresidence

Increased selection, settlement and language training Increased selection, settlement and language training responsibilities will be expected for Provinces, employers and responsibilities will be expected for Provinces, employers and PSE institutionsPSE institutions

In the absence of fixing the processing and criteria for skilled In the absence of fixing the processing and criteria for skilled workers, employers in Ontario and Toronto will rely more on workers, employers in Ontario and Toronto will rely more on the FTW program with its concomitant difficultiesthe FTW program with its concomitant difficulties

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Implications for language trainingImplications for language training Language and communication skills will continue Language and communication skills will continue

to be essential but may need to be addressed in to be essential but may need to be addressed in different ways:different ways:– Increase points in selection criteria for PA skilled workersIncrease points in selection criteria for PA skilled workers– Require standardized overseas tests for PA Skilled Require standardized overseas tests for PA Skilled

workersworkers– Increase accountability and employer acceptance by Increase accountability and employer acceptance by

implementing language training exit testsimplementing language training exit tests– Expand eligibility and access for LINC or other language Expand eligibility and access for LINC or other language

training programs at all CLB levelstraining programs at all CLB levels– Enhance ESL opportunities in PSE institutions and Enhance ESL opportunities in PSE institutions and

workplacesworkplaces– Provide loans or income support for those in language Provide loans or income support for those in language

training training

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ConclusionConclusion The cumulative impact of changes is The cumulative impact of changes is

potentially enormouspotentially enormous In the absence of evaluation, good policy In the absence of evaluation, good policy

development and consultation, we may be development and consultation, we may be creating worse problems, rather than fixing creating worse problems, rather than fixing the ones we currently facethe ones we currently face