This is an updated version of my earlier deck with 2022 numbers across immigration, citizenship, settlement and multiculturalism, OECD integration indicators and polling data.
The narrative has also been updated to reflect the ongoing shift to two-step immigration, and arguably a shift from an immigration-based country to a migration-based country.
3. Global Context
• Global mobility and identities
• Increased prominence of religion
• In
fl
uence of US and European debates and
growing xenophobia
• Commonalities and differences with indigenous
issues
3
4. Immigration-Based Society
Culture of Accommodation
• Canada built by successive waves of immigration
• Accommodation (imperfect) among Indigenous,
French, and British
• Context for later group arrivals and
multiculturalism
• Immigrant to citizen expectation but changing to
migration-based society given growth in
temporary residents
4
5. Canadian Model of Integration
Canadian History, Identity and
Values
Multiculturalism
Selection
Immigration
(Permanent Residents)
Foreign Workers
(Temporary Residents)
Short-term
Integration
Language
Orientation
Employment
Requirements
Ceremonies and
Awareness
Citizenship
5
6. “Integration of Postwar Immigrants”
Canada Year Book 1959
• In keeping with the democratic belief in the dignity and freedom of the
individual, it is felt that integration should be voluntary and should not be
pressed. It is assumed that integration is more moderate in its demands on
the immigrant and less painful for him than assimilation would be. Assimilation
usually means the complete absorption of the newcomer by the dominant
culture. In the process, cultural and social differences are worn off and a more-
or-less homogeneous society emerges. Integration, on the other hand,
recognizes and respects the cultural contributions that may be made by
people of diverse ethnic backgrounds who, nevertheless, are devoted to
the welfare of the same country.
• The ultimate responsibility for integration rests with the Canadian people
for, without their acceptance of the newcomers into community life, there can
be no integration. One of the main objectives of the Citizenship Branch*
therefore has been to encourage understanding and co-operation between old
and new Canadians and between the various ethnic groups in the population.
6
7. Bi&Bi Report 1969
Integration, in the broad sense, does not imply the loss of an
individual's identity and original characteristics or of his
original language and culture. Man is a thinking and sensitive
being ; severing him from his roots could destroy an aspect
of his personality and deprive society of some of the values
he can bring to it. Integration is not synonymous with
assimilation. Assimilation implies almost total absorption into
another linguistic and cultural group. An assimilated
individual gives up his cultural identity, and may even go as
far as to change his name. Both integration and assimilation
occur in Canada, and the individual must be free to choose
whichever process suits him, but it seems to us that those of
other than French or British origin clearly prefer integration.
7
8. Integration-related Policies
• 1960s — Discrimination removed from immigrant
selection (1962); points system introduced (1967)
• 1971 — Multiculturalism Policy
• 1977 — Citizenship Act
• 1982 — Charter of Rights and Freedoms
• 1986 — Employment Equity Act (being reviewed)
• 1988 — Multiculturalism Act
8
9. Charter of Rights and Freedoms
(1982)
• Fundamental freedoms
(a) freedom of conscience and religion;
(b) freedom of thought, belief, opinion and expression, including freedom of the press and other
media of communication;
(c) freedom of peaceful assembly; and
(d) freedom of association.
• Equality
15. (1) Every individual is equal before and under the law and has the right
to the equal protection and equal bene
fi
t of the law without discrimination
and, in particular, without discrimination based on race, national or ethnic
origin, colour, religion, sex, age or mental or physical disability.
• Multiculturalism
27. This Charter shall be interpreted in a manner consistent with the
preservation and enhancement of the multicultural heritage of Canadians.
9
11. Immigration - Selection
• Focus on labour force (economic class 60 percent),
then families and refugees
• Express Entry weighting: age, language, education, job offer,
provincial nominee
• Permanent Residents managed and controlled
through annual plan and levels (Permanent
Residents) but no levels/targets for demand-driven
Temporary workers and students
• Demand-driven temporary workers and students not
in plan and now account for majority of arrivals
11
12. Evolving Immigration
12
Aspect 1867-1914 1915-1945 1946-1985 1986 to 2015 2016 to present
Objective Settling the land Limits (WWI/II,
Depression)
Labour
shortages
Address skills
shortage, aging
population
Address aging
population
Labour Market
Focus
Agriculture Agriculture,
Manufacturing
Industrial
production
Highly skilled PR & TR
increase, TR2PR,
niche programs
Origins UK & USA, 1896-on Northern,
Central and Eastern Europe
Point system introduced (1967), shift non-European
immigration
Controls Chinese, Indian, Jewish, Black etc Removal of racial limits (1962)
Promotion Extensive Fed &
Provincial
Railways
(1920s)
Ongoing and focused government programs
Responsibility Mainly Federal Greater provincial role
Enforcement Prohibited classes Appeal Board CBSA created 2003
Integration Subsidized passage, free land,
Immigration Halls and Aid
Societies
Employment,
orientation,
language
Increased $$,
overseas
services, foreign
cred.
Recognition
Provincial actions
to reduce FCR
barriers
Refugees Very few accepted Post-war waves,
SCC decision on
right to hearing
Immigrant and
Refugee Board,
safe third country
STCA applies to
entire border
2023
13. Immigration Mix
By Category, Long-term 1980-2021
13
25%
50%
75%
100%
1980 to 1990 1991 to 2000 2001 to 2010 2011 to 2021 2011 to 2015 2016 to 2021
16.4%
11.0%
14.0%
12.6%
16.8%
21.6%
25.8%
25.4%
25.6%
28.3%
34.5%
34.6%
56.3%
62.1%
58.9%
57.5%
47.4%
43.2%
Economic Family Refugees Other
14. Immigration Source Region
By PoB, Long-term 1980-2021
14
25%
50%
75%
100%
1980 to 1990 1991 to 2000 2001 to 2010 2011 to 2015 2016 to 2021
16%
14%
12%
8%
6%
11.6%
13.2%
13.4%
13.3%
19.0%
10.1%
10.4%
14.1%
18.6%
25.8%
62.0%
62.1%
60.1%
59.8%
48.7%
Asia Europe Americas Africa Oceania
15. Immigration Numbers
By Category, 2006-22 (~75 percent 15-59 years old)
15
125,000
250,000
375,000
500,000
2006 2008 2010 2012 2014 2016 2018 2020 2022
Economic Family Refugees Other
17. Economic Class Pilots
• Atlantic Immigration Pilot (2017)
• Caregivers: Home Child Care Provider, Home Support Worker (2019)
• Agri-Food Immigration Pilot (2019), now regularized
• Rural and Northern Immigration Pilot (2019)
• Temporary public policy for out-of-status construction workers in the
Greater Toronto Area (2019)
• Talent Beyond Boundaries (2019, refugees matched with employers)
• Municipal Pilot Immigration Program (2022)
17
21. Immigration Sources — Category
Place of Birth - 1980-2016 — Census 2021
1980-90 1991-2000 2001-10 2011-15 2016-21
E F R E F R E F R E F R E F R
Southern Asia 6.1% 17.7% 1.6% 12.6% 25.1% 20.1% 18.0% 27.4% 17.5% 19.9% 22.2% 11.5% 29.7% 21.0% 6.2%
Eastern Asia 21.5% 12.1% 1.4% 31.4% 14.3% 2.2% 20.8% 15.6% 6.4% 13.6% 16.7% 3.8% 12.7% 15.5% 2.2%
Southeast Asia 12.3% 13.5% 39.5% 11.3% 14.4% 4.1% 14.8% 10.9% 3.1% 23.5% 11.6% 1.7% 17.1% 13.6% 0.6%
W Central Asia ME 9.6% 3.3% 7.1% 9.3% 5.0% 19.7% 9.3% 6.4% 22.0% 10.3% 6.7% 31.9% 5.7% 6.5% 53.5%
Eastern Europe 3.4% 5.7% 30.6% 9.9% 6.7% 9.3% 8.6% 5.6% 3.3% 4.4% 4.4% 1.6% 3.6% 3.9% 1.7%
South America 5.1% 8.0% 1.8% 2.3% 5.8% 3.2% 3.8% 4.7% 12.8% 3.0% 4.2% 5.1% 3.5% 4.3% 2.7%
Caribbean 4.7% 13.9% 0.3% 2.6% 10.3% 1.2% 2.0% 6.3% 2.7% 2.4% 6.6% 7.9% 1.5% 6.3% 2.0%
Northern Africa 2.4% 1.3% 0.2% 3.4% 1.6% 2.5% 6.5% 3.3% 2.5% 5.8% 4.4% 2.4% 4.6% 3.6% 4.1%
Eastern Africa 2.9% 1.5% 4.3% 1.1% 1.9% 8.5% 1.3% 1.8% 13.5% 1.3% 2.7% 16.1% 1.1% 3.1% 16.2%
Northern Europe 12.0% 4.4% 0.1% 3.1% 2.0% 0.1% 3.1% 2.6% 0.1% 2.6% 2.5% 0.2% 2.9% 2.7% 0.2%
Southern Europe 7.6% 5.9% 0.5% 4.0% 2.3% 15.6% 1.3% 2.1% 2.7% 1.1% 2.4% 0.9% 1.6% 2.1% 0.6%
Western Europe 5.6% 2.7% 0.6% 3.9% 1.5% 0.8% 3.8% 1.7% 0.3% 3.3% 1.8% 0.2% 4.0% 2.1% 0.2%
Central America 1.9% 2.2% 11.1% 1.2% 3.1% 8.0% 1.3% 3.0% 3.5% 1.4% 3.6% 4.6% 1.2% 3.3% 1.6%
North America 2.3% 5.0% 0.4% 1.4% 2.7% 0.5% 1.7% 4.6% 1.3% 1.8% 4.9% 2.6% 2.3% 5.8% 0.9%
Western Africa 0.5% 0.7% 0.2% 0.7% 1.6% 2.1% 2.0% 2.0% 3.6% 3.2% 2.7% 3.6% 5.8% 3.2% 3.0%
Central Africa 0.2% 0.1% 0.1% 0.2% 0.3% 1.8% 0.5% 0.5% 4.3% 1.2% 1.3% 5.1% 1.2% 1.5% 4.0%
Southern Africa 1.4% 0.2% 0.1% 1.3% 0.2% 0.1% 0.8% 0.3% 0.2% 0.7% 0.4% 0.9% 0.9% 0.4% 0.5%
Oceania 0.6% 1.8% 0.0% 0.4% 1.2% 0.3% 0.3% 1.1% 0.3% 0.4% 1.0% 0.0% 0.6% 1.2% 0.0%
22. Growth in Temporary Residents
Outnumber Permanent Residents, “Unmanaged”
22
450,000
900,000
1,350,000
1,800,000
15%
30%
45%
60%
2000 2002 2004 2006 2008 2010 2012 2014 2016 2018 2020 2022
Percent PRs Permanent Residents Temporary Residents TR Trendline
International Students are 50 % of all
TRs, IMP 42 %, TFWP 8 % (2022)
23. Temporary Workers
By Category, 2006-22 (Full- and Part-Time, permit holders)
23
112,500
225,000
337,500
450,000
2000 2002 2004 2006 2008 2010 2012 2014 2016 2018 2020 2022
Live-in Caregivers Agricultural Workers Other Temporary Workers
International Agreements Cdn Interests IMP Other
24. International Students
By Level, 2007-22
24
175,000
350,000
525,000
700,000
2000 2002 2004 2006 2008 2010 2012 2014 2016 2018 2020 2022
Secondary or less Post Secondary Other
26. Source Area
Temporary Residents 2018-22
26
25%
50%
75%
100%
International Mobility Foreign Workers Students
7.7%
6.1%
20.6%
73%
29.5%
29.7%
9.6%
60.6%
42.2%
9.2%
2%
5%
Africa Americas Asia Europe Oceania
27. Integration and Settlement
• $1.8 billion (2022, close to 60 percent IRCC spending)
• Language learning, community and employment
bridging services, settlement information
• 428,000 newcomers served (2022)
• Information, path-
fi
nding and referral services to
internationally trained individuals obtain credentials to
practice in Canada
• Most services designed and delivered by service
provider organizations (SPOs)
27
28. Federal Settlement Services
Main Service and Province, 2018-22, Top 5 Services
28
25%
50%
75%
100%
Canada Atlantic QC ON MB SK AB BC
4.2%
6.5%
7.8%
6%
7.2%
10.3%
4.3%
18.5%
2.9%
5.3%
3.6%
4.4%
3.6%
3%
4.5%
10%
10%
10.3%
13%
15.6%
8.1%
7.4%
14.7%
3.9%
17.1%
13.1%
6.3%
10.3%
13.9%
14.3%
12.7%
25.3% 26.1%
29.3%
30.4%
24.1%
23.4%
26.6%
19.9%
1.3%
39.7%
35.5%
38.9%
39.6%
43.8%
38.4%
44%
41%
Information/Orientation Language Training Needs Assessment
Community Connections Employment Other
29. Citizenship - Key Aspects
• Facilitation and meaningfulness balance
• Birthright citizenship
• Short residency (3/5 years) with physical presence
• Language and knowledge assessment (18-54 year
olds)
• Fraud and misrepresentation investigations
• Oath includes reference to Indigenous treaties
29
30. Evolving Citizenship
30
Aspect Pre-1947 1947 Act 1977 Act 2014 Act C-24 2017 Act C-6
Birthright Yes Yes Yes Yes Yes
Residence
(years)
5 after 1919
(shorter earlier)
5 3 4 3
Language Yes Yes Yes Yes Yes
Knowledge Yes Yes Yes Yes
Test Ages 18-64
(18-54 2005)
14-64 18-54
Dual nationality No No Yes Yes Yes
Values “good
character”
“good
character”
Intent to reside Yes Yes No Yes No
Retention Declaration <
22
Declaration <
25
Declaration <
28
First generation
limit
Revocation
(fraud)
Yes Yes Yes Yes Yes
Revocation
(terrorism)
Yes Yes No Yes No
31. Citizenship Take-up Rate
Foreign-born by Place of Birth, Census 2021
Southern Europe
Eastern Europe
Northern Europe
Caribbean
South America
Southern Africa
Central America
Western Europe
Northern Africa
Oceania
Eastern Africa
West Asia/ME
Southeast Asia
Eastern Asia
Southern Asia
Central Africa
North America
Western Africa
25% 50% 75% 100%
41%
41%
40%
35%
31%
30%
29%
29%
29%
26%
24%
24%
23%
22%
20%
19%
14%
11%
16%
16%
43%
45%
51%
58%
23%
46%
42%
11%
46%
27%
51%
26%
43%
36%
29%
48%
Canadian Only Dual Nationals Non-Citizens
Number
555,175
512,355
524,995
402,780
354,395
54,735
187,250
375,100
283,900
61,900
243,410
749,410
1,023,540
1,172,170
1,361,880
73,535
256,470
166,160
32. Citizenship Take-Up
Period of Immigration — 5-9 years after landing
20%
40%
60%
80%
1996 2001 2006 2011 2016 2021
45.7%
60.4%
67.5%
73%
75.1%
75.4%
32
34. Multiculturalism Policy and Act
1971, 1988
• To assist cultural groups to retain and foster their
identity
• To assist cultural groups to overcome barriers to
their full participation in Canadian society
• To promote creative exchanges among all
Canadian cultural groups
• To assist immigrants in acquiring at least one of
the of
fi
cial languages
34
35. Evolving Multiculturalism
35
Ethnicity Multi
(1970s)
Equity Multi
(1980s)
Civic Multi
(1990s)
Integrative
Multi (2000s)
Social
Cohesion
(Harper)
Diversity and
Inclusion
(Trudeau)
Focus Celebrating
differences
Managing
diversity
Constructive
engagement
Inclusive
citizenship
Social
cohesion
Social inclusion,
anti-racism
Reference
Point
Culture Structure Society
building
Canadian
identity
Canadian
values
Inclusive
Citizenship
Mandate Ethnicity Race relations Citizenship Integration Cohesion Inclusion
Magnitude Individual
adjustment
Equal access Participation Rights &
responsibilities
Responsibilities
& rights
Diversity as
strength
Problem
Source
Prejudice Systemic
discrimination
Exclusion “Clash” of
cultures
Faith & culture
clashes
Barriers, Racism
Solution Cultural
sensitivity
Employment
equity
Inclusivity Dialogue/
mutual
understanding
Shared values,
anchored in
history
Shared values,
universalist but
targeted to
Blacks
Key Metaphor Mosaic Level playing
fi
eld
Belonging Harmony/jazz Conforming Embracing
Adopted from A. Fleras and Jean Kunz, Media and Minorities: Representing Diversity in a Multicultural Canada.
36. Employment Equity 1986
• Objective: Workplace equality by ensuring that ability and
quali
fi
cations are the only criteria for opportunities, bene
fi
ts, and
advancements
• Women, visible minorities, Indigenous and persons with disabilities
• Applies to public service and federally regulated industries
• Premises
• No one shall be denied employment opportunities and bene
fi
ts for reasons unrelated to
ability
• Special measures are necessary to improve the employment
• "Reasonable accommodation" to recognize legitimate differences and take reasonable
steps to accommodate
• Under review
36
38. Demographic
• More complex, varied diversity — ethnic and religious
• Toronto, Vancouver and Calgary, not MTV
• Dispersion to smaller centres (51 ridings > 50 % VisMin)
• 2036 projections — between 24 to 30 percent immigrants, one in
fi
ve second
generation, together close to 50 percent
Implications and Risks
• More debate and discussion regarding “reasonable” accommodation, populist
anti-immigration language
• More communities and institutions affected
• Housing, healthcare and infrastructure pressures
38
39. Economic
• Strong participation rates, although visible minority women 25-34 lower
• Persistence of economic differences (unemployment, income, poverty)
• But university-educated 25-34 Canadian-born VisMin largely comparable save for employment and
unemployment
• Smaller income gap between VisMin women/not VisMin women than men
• Multigenerational poverty persistence greater for some groups and greater than whites
• Regional variations less signi
fi
cant than group variations
Implications and Risks
• Weaker inclusion of Canadian-born non-university educated, Increased reliance on
students, temporary workers for lower-skilled/paid employment
• Poorer outcomes for some groups (Black, Latin American, Arab, West Asian)
• Communities to focus both on external and internal barriers
• Ongoing discrimination in hiring
39
40. Social
• Strong education outcomes but variance among groups
• Some discrimination and hate crimes persist
• Healthcare, education social services reasonably representative
• Signi
fi
cant police force under-representation
• More mixed ‘ethnic enclaves’ than majority ones
Implications and Risks
• Gap between education and economic outcomes
• Challenge in overcoming implicit bias
• Greater prevalence of some groups in support positions
40
41. Political
• Immigrant to citizen model at risk given declining naturalization (high fees,
other factors)
• Under-representation in elected of
fi
cials, judges, GiCs being addressed in
post-2015 appointments
• Federal public service largely representative, provincial and municipal less
• Media diversity improving, both coverage and journalists
Implications and Risks
• Weakened social fabric
• Increased number of marginalized long-term non-citizens
• Risk that judicial decisions may not re
fl
ect Canada’s diversity—declining given post-2015
appointments
• DND and RCMP need to address weak representation, as do municipal police forces
41
44. Public Attitudes Toward Immigration
Focus Canada Fall 2022, Environics Institute
Immigration positive for economy
Too much immigration
Not adapting Canadian values
Claimants not real refugees 18%
4%
4%
3%
22%
24%
38%
6%
24%
25%
31%
7%
21%
24%
15%
35%
15%
22%
12%
50%
Strongly Agree Somewhat Agree Somewhat Disagree Strongly Disagree Neither/DK
44
45. Public Attitudes Toward Immigration
Focus Canada Long-term, Environics Institute
Immigration positive for economy (1993)
Too much immigration (1987)
Not adapting Canadian values (1993)
Claimants not real refugees (1987)
25% 50% 75% 100%
36%
46%
27%
85%
79%
72%
61%
56%
Past Fall 2022
45
46. Canada accepts too many immigrants
from racial minority groups
Percent Agree, Focus Canada, Environics Institute
Liberal
Conservative
NDP
25% 50% 75% 100%
13%
36%
20%
56%
55%
49%
1990 Fall 2022
46
47. International Comparisons
2023 OECD Integration Report
CA AUS NZ USA UK F D NL S DK
Percent Foreign-born 21.3% 29.2% 26.8% 13.5% 14.0% 13.3% 16.2% 14.3% 20.1% 10.6%
Social - Education compared to native-born
PISA G2 -12.0 1.0 4.0 -23.0 -13.0 -62.0 -99.0 -63.0 -88.0 -41.0
Post-Secondary 15-64 15.9% 20.2% 20.1% -3.2% 10.8% -5.2% -4.5% -4.1% 0.4% 2.5%
Economic compared to native-born
Household poverty rates 4.0% 3.0% -1.3% 8.5% 1.4% 16.3% 1.9% 16.5% 18.6% 12.0%
Median income 91.9% 89.7% 102.5%
83.6% 97.8% 77.7% 92.2% 77.3% 73.3% 87.4%
Unemployment 15-34 G2 -0.7% 0.3% 0.9% 5.3% 6.9% 3.6% 3.3% 10.1% 5.1%
PS Employment 15-34 G2 -3.0% 0.0% -4.0% -1.0% -4.0% -6.0% -4.0% 8.0%
Political
Perceived Discrimination 15-34
G2 Compared G1.5
-3.1% -17.0% 2.2% -3.3% -6.1% -6.5% -2.7% -6.4%
Naturalization 15 or older, 10
years
90.5% 81.4% 66.4% 58.7% 62.2% 54.9% 75.2% 86.9% 47.6%
47
48. International Comparisons
MIPEX 2020 Policy Focus
Indicator CA AUS NZ US UK F D NL S DK
Labour Market Mobility 76 37 59 69 48 52 81 65 91 65
Family Reunion 88 68 74 62 29 43 42 31 71 25
Education 86 79 76 83 40 36 55 57 93 45
Health 73 79 83 79 75 65 63 65 83 56
Political Participation 50 65 85 40 45 45 60 50 80 70
Permanent Residence 77 46 63 63 58 58 54 52 90 42
Access To Nationality 88 76 92 88 61 70 42 55 83 41
Anti-discrimination 100 69 88 97 94 79 70 85 100 51
Total 80 65 77 73 56 56 58 57 86 49
48
50. Change Across Major Programs
2022 Compared to 2018 Baseline
50
PR Applications
PR Admissions-PNP
PR Admissions-Fed
TR2PR
Temporary Workers IMP
Temporary Workers TFWP
Asylum Claimants
Study Permit Applications
Study Permit Holders
Citizenship Applications
New Citizens
Settlement Services
Visitor Visas
-75% -31.25% 12.5% 56.25% 100%
-7.4%
-16.9%
109.2
1.7%
56.1%
101.7
66.3%
65.1%
126.7
93.2%
34.9%
40.2%
-35.8%
51. Models Re
fl
ect Realities
• Geography, history, culture, demographic mix
• Host society attitudes
• Canada’s model re
fl
ects these factors
51
52. Is Canada Unique? Resilient?
Keith Banting framework
Perceived ‘triple threat’ of immigration/multiculturalism
• Economic insecurity
• Growing inequality, precarious employment and temporary status
• Impact housing affordability, healthcare and infrastructure, increased focus of public
debate and discussion
• Cultural insecurity
• Economic threat, cultural threat, security threat
• Political opportunity
• Political incentives to mobilize anti-immigrant backlash
• Electoral system, ethnic voter concentration, number of new Canadian voters provide
counterbalance
• All parties court ethnic votes but concerns over housing etc affect all, immigrants and non-
immigrants
52