Planning Now
for Canada's Future

Introducing a Multi-year Planning Process
and the Immigration Plan for 2001 and 2002

TABLE OF CONTENTS

 
Message from the Honourable Elinor Caplan

Legislative Requirement for the Annual Immigration Plan

Multi-year Planning

• Introduction
• Planning for the Future--The Vision for Tomorrow
• The Multi-year Planning Process
• The Annual Report to Parliament
• The Multi-year Planning Cycle

International Trends and Challenges

• International Trends
• International Challenges

Domestic Trends and Challenges

• Domestic Trends
• Domestic Challenges

The Multi-year Immigration Plan

• Framework for the Multi-year Immigration Plan

Appendices

• Appendix A: Immigration Arrivals, 1999
• Appendix B: Immigration Arrivals, 2000
• Appendix C: Immigration Plan, 2001 and 2002
• Appendix D: Immigration Levels, 2001: Canada, Quebec and Other Provinces
• Appendix E: Immigration Levels, 2002: Canada, Quebec and Other Provinces

MESSAGE FROM THE
HONOURABLE ELINOR CAPLAN

 
Immigration has been a defining characteristic of Canada. From our earliest days as a nation through to the global transformations of recent decades, it has been vital to our social, economic and cultural development. Today, our immigration and refugee protection programs are widely regarded, both at home and abroad, as the very measure of our values and of our maturity as a nation. Immigrants and refugees built our country, and they will continue to do so if we are to grow and prosper in the future.

Our traditional openness to newcomers has brought us great economic prosperity. But immigration policy is about far more than attracting the best and the brightest to our shores. After all, Canada was built not only through the hard work of outstanding individuals but also through the solid work and determination of families. Families have been the backbone of our communities and critical to the successful integration of our newcomers. Canada's immigration policies must ensure that families are kept together wherever possible, or otherwise reunited quickly.

Our policies must also reflect our humanitarian commitments. Canadians are proud of our strong presence in international efforts to provide durable solutions to victims of war, civil strife, natural disaster and human rights violations. Our contribution to these initiatives, and to the cause of refugee protection, has never been about economics. It is simply an expression of our values.

In support of our growth and prosperity, our families and communities, and our commitment to human rights, I remain dedicated to our long-term goal of increasing Canada's annual immigration levels to approximately one percent of our population. I recognize, however, that we must pursue this objective in a measured and responsible way, taking into account our absorptive capacity and our ability to assist with dispersion and retention so that the benefits of immigration are more widely shared across Canada. I look forward to engaging in a dialogue with provinces and territories on how we can achieve our objective.

Moreover, our immigration planning must be flexible to adjust to ever-changing conditions both at home and abroad. Consultation and dialogue with our many partners have always been key to our success, and I am certain that it will remain so. In this report, I introduce a new multi-year planning process that I hope will enhance both our consultations and our flexibility in the years ahead. Multi-year planning will allow us to signal our intended direction for the immigration program, and to offer a framework for discussion throughout the year.

It has been a busy year at Citizenship and Immigration Canada. My department has introduced many positive changes to the administration of our programs. The effects of these changes will be monitored and evaluated through our multi-year planning exercise, which I expect to be refined and expanded in the years ahead.

Today, I am pleased to present this report on our immigration levels, and on our first multi-year plan, which together offer an overview of the ways in which we continue to welcome the world to Canada.

LEGISLATIVE REQUIREMENT FOR THE
ANNUAL IMMIGRATION PLAN

 
Section 7(1) of Canada's Immigration Act requires that:

"The Minister, after consultation with the provinces and such persons, organizations and institutions as the Minister deems appropriate, shall, not later than the prescribed date in each calendar year, which prescribed date shall be no later than November 1, cause the immigration plan for the next calendar year to be laid before each House of Parliament, or, if either House is not sitting on the prescribed date, not later than the fifteenth day next thereafter on which that House is sitting."

Section 7(2) of the Act sets out the information that an immigration plan must provide. It must include an estimate of the total number of immigrants, Convention refugees and others who will be admitted to Canada on humanitarian grounds during the next year. As well, where any province has sole responsibility for the selection of immigrants, Convention refugees or humanitarian applicants, the plan must also set out, for each class, the number to be admitted for all of Canada, the number to be admitted for provinces with sole selection powers, and the number for the rest of the provinces. Quebec is the only province with sole selection powers.

MULTI-YEAR PLANNING

 
Introduction

For Canada, immigration has been and will continue to be an essential tool for social, cultural and economic nation building.

We all benefit enormously from immigration. The contribution of immigrant talent and skill to the labour force enhances our economic prosperity. The economy is boosted and jobs are created by immigrant business investment. Socially, immigrants deepen and enrich our cultural heritage. They contribute to our identity as a dynamic nation committed to diversity and open to the world. Through immigration and refugee protection, we strengthen our humanitarian tradition by meeting our international commitment to admit and settle refugees and displaced persons fleeing civil war and ethnic conflict in their homelands.

The objectives of the immigration program are to ensure that the movement of people into Canada contributes to Canada's social and economic interests and that it meets Canada's humanitarian commitments. Citizenship and Immigration Canada (CIC) strives to contribute to a stronger Canada by

• maximizing the benefits of international migration;
• protecting refugees at home and abroad;
• supporting the settlement, adaptation and integration of immigrants; and
• managing access to Canada.

 
Planning for the Future--The Vision for Tomorrow

With a commitment to investment in Canada's economic and social development through immigration, the government has established a long-term plan to move toward immigration levels of approximately one percent of the total population. Many factors must be considered in planning immigration levels: constantly shifting domestic and global environments, operational capacities, the consequences of legislative and policy changes, and the capacity of provinces and territories to absorb and integrate new immigrants.

In light of the long-term goal of gradually increasing immigration levels, and the complexities of setting annual immigration targets, CIC is developing a new way of planning.

 
The Multi-year Planning Process

The new Multi-year Planning Process will enable us to signal a direction for the immigration program, while offering us the flexibility to respond to global and domestic trends and challenges. It recognizes that although we cannot always control the external environment in which the program operates, we can monitor what is happening and respond accordingly. It will permit us to observe results over time and adjust as necessary. It will enable us to recognize that results generated by changes in immigration policy and programs take time to manifest.

While annual immigration targets are important for planning purposes, the success of the program hinges on more than the achievement of these targets. Under the Multi-year Planning Process, qualitative program outcomes will be brought to the fore along with immigration levels.

Specifically, the Multi-year Planning Process will concern issues related to

• the processing and selection of immigrants, refugees, temporary workers and students; and
• the settlement of immigrants and refugees.

Consultation is an integral element of the Multi-year Planning Process. CIC has for some time consulted regularly with provincial and territorial governments, municipalities and organizations that provide services to immigrants and refugees. The provinces and territories support a move to a more comprehensive approach to immigration planning, and are working with CIC to develop effective consultation mechanisms. Consultation is particularly important in determining how the challenges of immigration can be met and how the benefits of immigration can be realized in all parts of the country.

The Multi-year Planning Process will operate continuously, gathering experience from the past to improve planning for the future of immigration. Rather than viewing levels in isolation year by year, the process looks at setting immigration targets along a continuum.

As the following chart on immigration trends demonstrates, actual immigration, at times, has often been greater or less than the annual estimate. However, since the first annual immigration plan was presented to Parliament in 1979, overall immigration levels have been within one percent of the midpoint of planned targets. While the complex factors and forces influencing immigration outcomes can make it difficult to achieve annual levels targets, over time targets have been met.

 
The Annual Report to Parliament

Historically, as required by the Immigration Act, the annual report to Parliament has provided an estimate of immigration levels for the coming year, and it has reported on the achievements of the previous year. Under the new process, the annual report will provide immigration targets for a minimum of two years, in order to signal a direction for the program and to reflect longer range planning and consulting.

This year's report is a transitional document and will serve three purposes:

• to introduce the new planning process for setting future immigration levels;
• to report on trends and challenges related to the selection, settlement and integration of immigrants and refugees; and
• to present the immigration plan for 2001 and an estimate for 2002.

This year's plan announces immigration levels for both 2001 and 2002. The estimate for 2002 may change when that year's immigration plan is presented to Parliament next year. The plan remains flexible so that we may respond to changes in the environment within which the immigration program operates.

Future immigration plans presented to Parliament will provide a snapshot of the immigration program and its strategic direction for the future. Forecasted immigration targets for the next calendar year and an estimate for the following year will be presented in the context of existing global and domestic environments.

 
The Multi-year Planning Cycle

The three major components of the Multi-year Planning Process are outcomes, analysis and planning. The components flow from one to the other such that the immigration program is continually reassessed, and planning is ongoing. The figure below demonstrates this cyclical planning process.

Outcomes are the desired goals of the immigration program; results reflect the status of the program at any given point in time.

Analysis uses the tools of research and consultation to answer the question, "What can we do better?" In answering this question, a variety of factors must be considered to deliver the most effective program.

Planning both completes the process and initiates it anew. Planning activities that are based on results and informed by analysis set future priorities and directions. As part of the planning process, existing policies and programs are maintained or enhanced, or new ones are created.

The Annual Report, a product of the planning process, provides targets for future immigration levels and updates Parliament on the status of immigration planning.

INTERNATIONAL TRENDS
AND CHALLENGES

 
The Multi-year Planning Process takes into consideration international issues, trends and challenges that influence the global movement of people as part of planning for the future.

 
International Trends

A number of international trends affect CIC's selection and integration programs. Among these trends are the following:

• an increase in the non-immigrant movement;
• global labour shortages in certain key economic sectors;
• competition in the global market;
• a shift in source countries; and
• growing numbers of people on the move.

There has been a marked increase in the number of temporary workers, students and visitors (non-immigrants) applying to come to Canada since 1996.

Between 1998 and 2000 there was a 29 percent increase in applications received (almost 192,000) and a 25 percent increase in visas issued (nearly 169,000) in non-immigrant categories. The graph below shows the rise in applications received and visas issued abroad for non-immigrants since 1997. These non-immigrants are of significant benefit to Canada.

Highly skilled temporary workers are now, more than ever before, helping Canadian businesses increase their productivity and enhance their competitiveness in the global marketplace. These workers fill skill shortages, attract foreign investment, support economic growth in Canada and allow the transfer of their knowledge and skills to Canada's permanent labour force. CIC is committed to supporting the efforts of businesses that seek skilled foreign workers by providing a simple and efficient process that permits their entry into Canada.

Foreign students enhance Canada's educational sector, bring new ideas to institutions of higher learning, and generate a cultural richness on Canadian campuses and in Canadian schools and institutions. While in Canada, foreign students add to Canada's reputation as a global centre of excellence for higher education, research and training. Later, when they return to their home countries, these students help build strategic international alliances, enhancing Canada's position in the global marketplace. CIC works closely with key public and private international education associations to streamline the entry of foreign students to Canada, and to explore policy initiatives to further enhance the program.

Foreign visitors are the largest group of non-immigrants to visit Canada. Like foreign workers and students, visitors stimulate the Canadian economy through the purchase of goods and services during their stay in Canada, while contributing to the continued growth of the tourism and hospitality industries.

While Canada has experienced recent growth in the number of workers entering the country, international competition for educated and skilled workers is greater now than ever before. In response to global labour shortages in certain key economic sectors, the United Kingdom, Japan and Germany, countries not traditionally open to immigration, are beginning to compete for skilled workers. Others have implemented new measures to attract increasing numbers of skilled temporary workers for the rapidly expanding high tech industry. Today, Canada finds itself competing in a global marketplace where the demand for skilled immigrants is swiftly increasing.

Recent shifts in source countries from which immigrants arrive are also having an impact on immigration. As the following chart demonstrates, China moved from its ranking as the number three source country in 1997 to first in 1998. Pakistan moved from sixth in 1996 to third in 1999, and Hong Kong, [note 1] Canada's number one source of immigration until 1997, is no longer ranked in the top ten. Between 1996 and 2000 the number of immigrants from each of the top three ranked countries increased significantly.

Finally, growing numbers of people are leaving their countries of usual residence. It has been estimated that there are as many as 150 million people on the move worldwide, 30 million more than 10 years ago. In particular, those fleeing civil strife, ethnic conflict, natural disasters, environmental degradation, and economic and political upheaval in their home countries are often in need of refuge. Others simply seek a better way of life for themselves and their families. For many, Canada is the destination of choice.

United
States

International Challenges

CIC is committed to finding innovative ways to address the challenges arising from these global international trends. The current challenges are:

• managing processing demands;
• remaining competitive; and
• maintaining client service and program integrity.

The global competition for highly skilled temporary workers and immigrants is causing CIC to look for new ways to attract the best and the brightest to Canada. To do so, CIC must enhance its operational capacity, and yet maintain its program integrity and quality of service.

The rapid growth in the non-immigrant movement is placing new demands on CIC missions abroad. Time-sensitive non-immigrant applications for visitor, student and temporary worker visas require quick response. Missions abroad are successful in meeting our service standards for these applications. However, maintaining these standards is taxing our operational capacity. The challenge for CIC is to continue to balance the needs of both immigrants and non-immigrants while maintaining a high level of service.

The shift in source countries has strained our existing infrastructure. At the same time, case processing is becoming more and more complex. More than ever before, immigration and refugee applicants are coming from parts of the world where documentation is hard to obtain. This lack of documentation often makes it difficult to verify qualifications or identity and creates processing delays. Increasingly, refugees in need of resettlement in Canada are coming from inaccessible parts of the world where communications are difficult.

To enhance service delivery at processing missions abroad, significant temporary resources were allocated in late 1998 and in 1999 to those offices most in need. This has helped to move cases forward, which, in turn, has enabled missions to meet their annual processing targets, resulting in increased landings. Infrastructure issues are being addressed as resources become available.

In an additional effort to speed processing, CIC is assessing whether elements of the overseas immigrant selection process can be centralized in Canada without jeopardizing program integrity. A pilot project is under way, and its evaluation is scheduled for completion in late 2001.

CIC is also improving its information technology infrastructure and electronic processing capacity. A global case management system is being implemented over five years to replace core business systems. The global system is aimed at improving overall program efficiency, integrity and quality of service.

DOMESTIC TRENDS
AND CHALLENGES

 
Of equal importance to the Multi-year Planning Process are domestic trends and challenges that have an impact on the immigration program.

 
Domestic Trends

Among the relevant domestic trends we are seeing today are

• an ageing population;
• a shrinking labour force; and
• ever increasing settlement in urban centres.

Domestically, Canada is facing demographic challenges as our population ages and the labour force shrinks. Immigration, which contributes to population growth in both the short and long term, is important to address the labour shortfall.

Nearly three quarters of all immigrants to Canada choose to live in the metropolitan areas of Toronto, Vancouver and Montréal. The chart below demonstrates the large percentage of immigrants who settled in these cities in 1999.

 
Domestic Challenges

Key domestic challenges to be met include

• ensuring that all parts of Canada share in the benefits of immigration; and
• eliminating barriers to settlement and integration.

The concentration of immigrants in the three major metropolitan areas of Canada comes at a time when many provinces and cities are trying to attract newcomers to their communities. The challenge for all governments will be to find innovative ways to attract and retain newcomers to these non-traditional destinations.

If Canada is to continue to benefit from immigration, facilitating the successful integration of immigrants must remain a priority.

Successful integration is aided by

• proficiency in one of Canada's official languages;
• the ability to find and keep a job;
• the ability to transfer, and make use of, previously acquired occupational skills and educational credentials;
• the ability to integrate commonly held Canadian values and attitudes; and
• the ability to access and fully participate in the institutions and associations that are available to all Canadians.

Canada's immigrant settlement programs are focused on enabling immigrants to become participating and contributing members of Canadian society as quickly as possible. Non-profit groups, non-governmental organizations, community groups, educational institutions, businesses and three levels of government deliver a variety of services and programs, including language training for adult immigrants, orientation services, interpretation and translation services, referral to community resources, and paraprofessional and employment counselling.

Additional programs exist to address the specific needs of refugees for immediate essential services.

CIC is continually reviewing the delivery of settlement programs to newcomers and exploring opportunities for enhanced services in collaboration with other government departments, the provinces and territories, and the voluntary sector.

A primary barrier to successful integration for many immigrants is the lack of recognition of foreign credentials in the Canadian labour market. As a result, many highly skilled and educated immigrants face difficulties in finding employment in their field. CIC is working closely with Human Resources Development Canada, and with provincial and territorial governments, to develop collaborative ways to share information and develop strategies to address this issue so that immigrants to Canada have their credentials recognized and are able to become fully productive citizens.

THE MULTI-YEAR
IMMIGRATION PLAN

 
A multi-year immigration plan is created after assessing the challenges of immigration and weighing and balancing the needs of provinces, territories and communities. The aim of the plan is to maximize the opportunities arising from the movement of people in the global economy.

 
Framework for the Multi-year Immigration Plan

The new framework for multi-year immigration plans takes into consideration the need to continually observe and respond to the factors and forces that affect immigration, as well as the factors and forces upon which immigration will have an impact.

The immigration levels reported for each year within this framework serve different purposes. The Past Year reflects the actual number of immigrants who came to Canada. The Current Year projects the level of immigration based on past data trends and available information (generally the first seven months of the year). Figures for the following year, Current +1, are presented as a range of the number of people expected to immigrate to Canada in the next year. These figures take into consideration the findings of the analysis of trends and challenges, the number of applications currently in process, and operational capacity.

The final year in the plan, Current +2, is subject to change under the Multi-year Planning Process and is presented as an estimate for planning purposes. Because of the outcomes of consultation and research, current global and domestic environments and available resources, the range may change in the following year's plan. This number serves to signal the federal government's longer term immigration strategy.

With each immigration plan, as estimates roll forward and become targets, the targets become less subject to change owing to unforeseen events. In this way, the Multi-year Planning Process focuses on setting goals for the future while maintaining the flexibility to adjust the numbers as changes occur domestically and internationally.

APPENDIX A:
Immigration Arrivals, 1999

 
Actual immigration for 1999 reached a total of 189,914, a figure equivalent to 95 percent of the low end of the planned range. This represents an increase of nearly 16,000 immigrants over 1998.

In 1999, external factors such as the shift in source countries to areas where CIC's operational capacity was hampered by local infrastructure, and the increase in non-immigrant applications, continued to have an impact on immigration levels. However, as a result of special operational measures initiated in 1998, more immigrant visas were issued, and landings began to increase in 1999. This illustrates the time it takes for program changes to manifest results, and the need for flexible and responsive planning.

* Includes Live-in Caregivers, Special Categories and Provincial/Territorial Nominees.

** Kosovo refugees who arrived in 1999 as part of a special movement and who obtained permanent resident status.

APPENDIX B:
Immigration Arrivals, 2000 [note 2]

 
In 2000, interest in coming to Canada remained strong in both the immigrant and non-immigrant streams of the program. At the same time, the full impact of operational measures initiated in 1998 began to manifest, resulting in increases in visas issued in almost all categories.

Actual immigration for 2000 reached a total of 226,837. This represents 101 percent of the high end of the planned range.

While overall immigration increased in 2000, the breakdown by immigrant category remained relatively unchanged. Of immigrants landed in 2000, 68 percent were landed as members of the economic class, 31 percent were landed through the family class, and two percent were other immigrants.

China, India and Pakistan remained the top three source countries for 2000, with 16 percent of total immigrants to Canada arriving from China, 11 percent from India and six percent from Pakistan.

* Includes Live-in Caregivers and Special Categories.

** Kosovo refugees who arrived in 1999 as part of a special movement and who obtained permanent resident status in 2000.

APPENDIX C:
Immigration Plan, 2001 and 2002

 
The annual immigration plan for 2001 reflects the status quo, while the estimate for 2002 represents a modest increase. No change has been projected for 2001 in order to allow for adequate consultations.

Meanwhile, CIC will continue to seek innovative ways to deliver the immigration program. As established within the multi-year framework, the estimate for 2002 will be reviewed through the Multi-year Planning Process, and confirmed or adjusted in next year's immigration plan.

* Includes Live-in Caregivers and Special Categories.

APPENDIX D:
Immigration Levels, 2001:
Canada, Quebec and Other Provinces

* The Immigration Act requires that the annual immigration plan include separate numbers for provinces with selection powers. At this time, Quebec is the only province with this responsibility.

** Drawn from the Quebec Immigration Plan for 2001 released on October 26, 2000.

*** Includes Live-in Caregivers and Special Categories.

APPENDIX E:
Immigration Levels, 2002:
Canada, Quebec and Other Provinces

* The Immigration Act requires that the annual immigration plan include separate numbers for provinces with selection powers. At this time, Quebec is the only province with this responsibility.

** Drawn from the Quebec government's planning figures for 2001 to 2003 released on October 26, 2000, subject to annual adjustments.

*** Includes Live-in Caregivers and Special Categories.

1. To maintain historical consistency, statistics for Hong Kong and China are compiled separately.

2. This year's tabling of the annual immigration plan did not take place by November 1 because the House of Commons was not in session. As a result, actual rather than projected immigration figures are available for 2000.

For additional copies, contact:

Communications Branch
Citizenship and Immigration Canada
Ottawa, Ontario K1A 1L1
Tel.: (613) 954-9019
Fax: (613) 954-2221

© Minister of Public Works and Government Services Canada, 2001
Cat. no. Ci51-1000/2001
ISBN 0-662-65478-1