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Erratum

Since the tabling in Parliament of the Citizenship and Immigration Canada Report on Plans and Priorities 2010-2011, an editorial change was made to the English version, Section II, Program Activity 2 – Temporary Resident Program: in the sentence under the rubric Expected Result, the word “permanent” has been replaced by “temporary”.

Section I — Overview

Message from the Minister

I am pleased to present the 2010–2011 Report on Plans and Priorities for Citizenship and Immigration Canada (CIC).

The Government of Canada is committed to maintaining Canada's tradition of welcoming newcomers from around the world. While other countries scale back immigration during these tough economic times, we are building on our Action Plan for Faster Immigration and maintaining our historically high immigration levels. The recent economic downturn appears to have been short-term, and our long-term labour force growth and economic health depend, in large part, on immigration.

In order to support our economy as it recovers from the downturn, our Government plans to capitalize on Canada's status as a destination of choice for newcomers and focus its immigration plan for 2010 on economic immigration. We will also maintain our commitment to family reunification and continue to uphold Canada's proud humanitarian tradition by offering protection in Canada to genuine refugees.

We are, however, committed to protecting the integrity of Canada's asylum system against those who would abuse it, and to doing so in a way that respects both our domestic and international obligations. To achieve this, CIC will propose ways to streamline the asylum system and enable faster decisions and removals of failed claimants, as well as ways to better support refugees as they start new lives in Canada.

We will also continue our efforts to promote and strengthen the value of Canadian citizenship. That process took a major step forward in 2009, when we unveiled Discover Canada, a new study guide for Canadian citizenship that is more comprehensive in scope and whose strong focus on Canadian values, history, symbols and institutions captured the attention and the imagination of many in Canada.

Building on Discover Canada, we will develop and implement a revised citizenship test to strengthen the value of Canadian citizenship by emphasizing not only the rights it confers, but also the responsibilities it entails. We will also pursue ways to more forcefully deal with cases of citizenship fraud.

In response to our ever-increasing diversity and to ensure that our Multiculturalism Program reflects the needs of all Canadians by promoting integration, the Government of Canada has implemented three policy objectives for the Program: building an integrated, socially-cohesive society; making institutions more responsive to the needs of Canada's diverse population; and engaging in international discussions on multiculturalism and diversity.

As part of implementing these objectives, the Government will continue to combat all forms of racism, including anti-Semitism. As a full member of the Task Force for International Cooperation on Holocaust Education, Remembrance and Research (ITF), Canada is increasing public awareness of genocide and developing learning opportunities about the Holocaust.

Building on our membership in the ITF, we support the London Declaration on Combating Antisemitism, and we look forward to the next conference of the Interparliamentary Coalition for Combating Antisemitism, which is to take place in Canada in 2010.

Our Government remains committed to helping newcomers settle and succeed in Canada, and fully participate in the economy and all aspects of Canadian society. To do so, we will continue to support the settlement and integration of newcomers to Canada by implementing a modernized approach with innovative programs and initiatives – such as our ongoing Language Training Vouchers pilot project – that respond to the needs of newcomers. At the same time, we will undertake a review of settlement and integration programming to ensure that we are achieving the best possible results.

A major challenge in the settlement process is to ensure that internationally educated professionals can find work in their fields once in Canada. To help achieve this objective, the Foreign Credentials Referral Office will continue to develop tools and initiatives to help newcomers and prospective immigrants, often while they are still overseas, to obtain information on Canada's accreditation processes and labour market conditions.

The Government is also committed to improving the Temporary Foreign Worker Program to protect foreign workers and live-in caregivers from potential abuse and exploitation. To achieve this, we have proposed new penalties for employers who fail in their commitments to their employees. We have also proposed measures to make the Live-in Caregiver Program more flexible and make it easier for live-in caregivers to obtain permanent residence.

Canada is among the most ethnically, culturally and religiously diverse countries in the world. Our challenge is to ensure unity in our diversity. The Government of Canada is proud of the contributions that all communities make to the social, civic, cultural and economic fabric of this country, and of the efforts all Canadians make to welcome and encourage newcomers' full participation in our society.

As Minister of Citizenship, Immigration and Multiculturalism, I am confident that we will meet our objectives and ensure that ours remains a society where Canadians of all origins and backgrounds have an equal opportunity to contribute and succeed.

I would like to thank the staff of CIC in all of the department's offices and areas of responsibility for their efforts to ensure Canada continues to attract the world's best.

The Honourable Jason Kenney, PC, MP
Minister of Citizenship, Immigration and Multiculturalism


Raison d'être

In the first years following Confederation, Canada's leaders had a powerful vision: to connect Canada by railway and make the West the world's breadbasket and the foundation for the country's economic prosperity. Achieving this meant quickly populating the Prairies, leading the Government of Canada to establish its first national immigration policies.

Over the last 150 years, immigrants have been a driving force in Canada's nationhood and its economic prosperity—as farmers settling lands, as workers in factories fuelling industrial growth, as entrepreneurs, and as innovators who help make Canada competitive in the global, knowledge-based economy.

Responsibilities

Citizenship and Immigration Canada (CIC) [note 1] selects foreign nationals as permanent and temporary residents and offers Canada's protection to refugees. The Department develops Canada's admissibility policy, which sets the conditions for entering and remaining in Canada; it also conducts, in collaboration with its partners, the screening of potential permanent and temporary residents to protect the health, safety and security of Canadians. Fundamentally, the Department builds a stronger Canada by helping immigrants and refugees settle and fully integrate into Canadian society and the economy, and by encouraging and facilitating their ultimate acquisition of Canadian citizenship. CIC has 46 in-Canada points of service and 85 points of service in 72 countries.

CIC's broad mandate is derived from the Department of Citizenship and Immigration Act. The Minister of Citizenship and Immigration is responsible for the Citizenship Act of 1977 and shares responsibility with the Minister of Public Safety for the Immigration and Refugee Protection Act (IRPA), which came into force following major legislative reform in 2002. CIC and the Canada Border Services Agency (CBSA) [note 2] support their respective ministers in the administration and enforcement of IRPA. The organizations work collaboratively to achieve and balance the objectives of the immigration and refugee programs.

Jurisdiction over immigration is a shared responsibility between the federal and provincial governments under section 95 of the Constitution Act, 1867. Under IRPA and the Department of Citizenship and Immigration Act, the Minister of Citizenship and Immigration, with the approval of the Governor in Council, has signed agreements with the provinces and territories to facilitate the coordination and implementation of immigration policies and programs.

On October 30, 2008, responsibility for administration of the Canadian Multiculturalism Act was transferred to CIC from the Department of Canadian Heritage. Under the Act, CIC promotes the full and equitable participation of individuals and communities in all aspects of Canadian society, and helps to eliminate barriers to that participation.

Strategic Outcomes and Program Activity Architecture

CIC's three strategic outcomes describe the long-term results that the Department's programs are designed to achieve. The Department's Program Activity Architecture (PAA), summarized below, is a reporting framework that provides an inventory of departmental program activities and links them to CIC's three strategic outcomes. The PAA also provides a foundation for financial and performance reporting to Parliament. In 2009–2010, CIC adjusted its PAA to include the Multiculturalism Portfolio.


Strategic Outcomes Program Activities Program Sub-activities
1. Migration that significantly benefits Canada's economic, social and cultural development, while protecting the health, safety and security of Canadians 1. Immigration Program 1.1 Immigration policy and program development
1.2 Selection and processing of permanent residents
1.3 Processing of Permanent Resident Cards
2. Temporary Resident Program 2.1 Temporary resident policy and program development
2.2 Selection and processing of temporary residents
2. International recognition and acceptance of the principles of managed migration consistent with Canada's broader foreign policy agenda, and protection of refugees in Canada 3. Canada's role in international migration and protection 3.1 International migration policy development
3.2 Contributions to international organizations
4. Refugee Program 4.1 Refugee policy and program development
4.2 Selection and processing of resettled protected persons (government-assisted refugees and privately sponsored refugees)
4.3 Processing of asylum applicants
4.4 Pre-removal risk assessment
4.5 Interim Federal Health Program
3. Successful integration of newcomers into society and promotion of Canadian citizenship 5. Integration Program 5.1 Settlement/resettlement policy and program development
5.2 Foreign Credentials Referral Office
5.3 Settlement Program
5.4 Grant to Quebec for the Canada-Quebec Accord
5.5 Immigration Loan Program
5.6 Resettlement Assistance Program
6. Citizenship Program* 6.1 Citizenship policy and program development
6.2 Citizenship processing
6.3 Citizenship promotion
6.4 Multiculturalism: Engagement and Inclusion

*After the transfer of the Multiculturalism Portfolio from the Department of Canadian Heritage to CIC, 6.4 Multiculturalism: Engagement and Inclusion was added to the Citizenship Program. CIC is currently revising its PAA, with further adjustments to be made in 2010–2011 to identify multiculturalism at the program activity level.

Planning Summary


Financial Resources ($ millions)
2010–2011 2011–2012 20122013
1,561.7 1,549.6 1,556.6

 


Human Resources
Full-time equivalents (FTEs)
2010–2011 2011–2012 20122013
4,015 3,953 3,972

Explanation of change: Planned spending for the Department decreases by a total of $12 million in 2011–2012 compared to the previous year. Although there is an increase in funding to modernize the immigration system and manage the backlog, and for the biometrics project, these increases have been offset by a decrease in the Refugee Program planned spending related to the Interim Federal Health Program.

In 2012–2013, planned spending increases by $7 million, mainly due to additional funding for the Temporary Resident Biometrics project.


Strategic Outcome 1: Migration that significantly benefits Canada's economic, social and cultural development, while protecting the health, safety and security of Canadians
Performance Indicators Targets
Income from all sources (investment, employment earnings, self-employment and employment insurance) for skilled worker principal applicants after three years compared to Canadian Principal applicant income is stabilized and/or improved relative to the Canadian benchmark by 2012


Program Activity Expected Results

Forecast Spending
2009-2010
($ millions)

Planned Spending
($ millions)
Alignment to Government of Canada Outcomes [note 3]
2010-2011 2012-2012 2012-2013
1. Immigration Program The arrival of permanent residents who contribute to Canada's economic, social and cultural development; and the protection of the health, safety and security of Canadians 134.1 129.4 136.2 139.3 ECONOMIC
Strong economic growth
2. Temporary Resident Program The arrival of temporary residents who contribute to Canada's economic, social and cultural development; and the protection of the health, safety and security of Canadians 100.3 114.2 109.8 119.4 ECONOMIC
Strong economic growth
Total   234.4 243.6 246.0 258.7  

 


Strategic Outcome 2: International recognition and acceptance of the principles of managed migration consistent with Canada's broader foreign policy agenda, and protection of refugees in Canada
Performance Indicators Targets
Number of protected persons and Convention refugees granted permanent residence 19,600 to 26,000 persons, as identified in the 2010 immigration plan
Percentage of positions initiated or supported by Canada that are eventually reflected in international policy debate CIC responds to ad hoc requests


Program Activity Expected Results Forecast Spending
2009-2010
($ millions)
Planned Spending
($ millions)
Alignment to Government of Canada Outcomes
2010-2011 2012-2012 2012-2013
3. Canada's role in international migration and protection Canada influences the international policy debate as part of its responsibilities with respect to international migration and refugee protection 4.0 4.0 4.0 4.0 INTERNATIONAL
A safe and secure world through international cooperation
4. Refugee Program Persons in need of protection and Convention refugees are protected by Canada by upholding our international obligations and humanitarian traditions, while protecting the health, safety and security of Canadians 127.3 102.4 80.3 80.3 INTERNATIONAL
A safe and secure world through international cooperation
Total   131.3 106.4 84.3 84.3  

 


Strategic Outcome 3: Successful integration of newcomers into society and promotion of Canadian citizenship
Performance Indicators Targets
Income from all sources (investment, employment earnings, self-employment and employment insurance) for all immigration categories after five years and after 10 years, compared to Canadian benchmark Improvement in immigrant incomes relative to Canadian average by 2012
Social participation measured by donor and volunteer rates Maintain or improve on current levels of 80% giving and 20% volunteerism by immigrants
Increased participation of new and established Canadians in citizenship events 15% of citizenship events will be held off-site annually by 2011


Program Activity Expected Results Forecast Spending
2009-2010
($ millions)
Planned Spending
($ millions)
Alignment to Government of Canada Outcomes
2010-2011 2012-2012 2012-2013
5. Integration Program Newcomers contribute to the economic, social and cultural development needs of Canada 997.2 1,013.4 1,023.2 1,023.2 SOCIAL
A diverse society that promotes linguistic duality and social inclusion
6. Citizenship Program Citizens' full participation in Canadian society 73.2 62.0 60.8 54.5 SOCIAL
A diverse society that promotes linguistic duality and social inclusion
Total   1,070.4 1,075.4 1,084.0 1,077.7  
7. Internal Services   143.7 136.3 135.3 135.9  
All Program Activities            
Total   1,579.8 1,561.7 1,549.6 1,556.6  

Departmental Operational and Management Priorities

The Department's management agenda for 2010–2011 will focus on the following operational and management priorities to support the achievement of CIC's strategic outcomes.


Operational Priority Type Links to Strategic Outcome(s)
Integrating policy across departmental activities Ongoing Strategic Outcomes 1, 2, 3

Description
Enhancing policy integration ensures CIC is ready to meet new and emerging challenges across the immigration, refugee, citizenship and multiculturalism programs in an efficient, effective and coherent manner. In 2010–2011, CIC will work with federal, provincial and territorial partners and stakeholder groups to define the long-term vision for economic immigration and to better align future immigration levels planning, selection processes and settlement interventions with this vision. As well, a 2010–2015 Strategic Plan will provide concrete directions and options to address horizontal policy challenges.


Operational Priority Type Links to Strategic Outcome(s)
Improving client service Ongoing Strategic Outcomes 1, 2, 3

Description
As part of its ongoing efforts to improve client service and realize operational efficiencies, in 2008–2009, CIC adopted a framework aimed at transforming service delivery by leveraging technology, partnerships, global and domestic networks, resources and people while strengthening program integrity and security. The result will be the delivery of quality services and programs that are effective, efficient and timely.

Implement the Service Innovation Framework
In 2010–2011, CIC will continue to implement its service innovation framework so that services and programs are more integrated, responsive and easily accessible around the world. CIC will continue to set service standards, and develop baseline data and performance indicators to measure and report performance. To enhance access to CIC services and improve application processing, CIC will continue to develop partnerships with other government departments and agencies and with service providers.

Continue to Develop E-Services
CIC launched its e-channel [note 4] in June 2008. In the e-channel's initial phase, electronic services were offered to both applicants and partners involved in the Off-Campus Work Permit Program. The e-channel currently supports applicants in Canada who apply for temporary resident services—virtually all applicants are now able to apply for CIC services on-line, representing 25 percent of all temporary resident service volumes globally. A significant percentage of applicants have chosen the e-Application over the traditional paper process. More than 80 percent of the off-campus work permit applicants use this method and half of all study permit applications are now electronic. This results in efficiencies and cost advantages to CIC while it offers applicants additional convenience and faster processing times.

The e-channel is being extended progressively, one service at a time. In 2010–2011, new releases will allow overseas students from a limited number of countries not requiring medical examinations or visas to apply for a study permit on-line, and allow International Experience Canada initiative participants from selected countries to apply on-line for their work permit. These applications will be processed in Canada and, depending upon uptake, may represent up to four percent of all temporary resident applications submitted abroad. Work will advance on an Integrated Payment Solution, which will allow overseas applicants to pay for CIC's services on-line with a credit card.

Building a Global Network of Visa Application Centres
Since 2005, the Government of Canada has contracted with private service providers to operate visa application centres (VACs) that deliver a range of visa services to applicants in 35 locations in 17 countries from Asia, Africa, Eastern Europe and, more recently, Mexico. During 2010–2011, the Department will develop a plan to implement an expanded global service delivery network of VACs, which will enhance service delivery by providing visa applicants easier access to services closer to home.


Management Priority Type Links to Strategic Outcome(s)
Global Case Management System Previously committed to Strategic Outcomes 1, 2, 3 (enabling)

The Global Case Management System (GCMS) [note 5] is CIC's secure electronic business platform that will integrate citizenship and immigration data worldwide. It is integral to improving citizenship and immigration services, maintaining program integrity and strengthening the security of Canada. First introduced in September 2004, GCMS is already being used to process 200,000 applications annually for Canadian citizenship and proof of citizenship. The GCMS project is now in its second phase, focusing on visa offices overseas, where the vast majority of applicants first seek CIC services. An independent review, completed in June 2009, confirmed that the technology is sound, the schedule is achievable and the initiative is on track.

GCMS is helping CIC move toward an increasingly integrated and virtual business model. Once GCMS is fully in place, CIC can move to a modern, flexible service delivery network, allowing for informed decisions to be made regardless of where an applicant applies or where the paper application is located. The system will enhance CIC's reporting capability to assist in detecting fraud. GCMS also lays the foundation to support future business improvements and technology innovation, such as the introduction of e-services and improved identity management through biometrics. In June 2010, the first visa office overseas will begin using the new version of GCMS. Once fully implemented in March 2011, GCMS will provide a single integrated processing capability for all citizenship and overseas immigration applications.


Management Priority Type Links to Strategic Outcome(s)
People Management Ongoing Strategic Outcomes 1, 2, 3 (enabling)

Description
Building the work force of the future remains a key departmental priority. In keeping with the Clerk of the Privy Council's Public Service Renewal agenda and the Deputy Minister's accountability for people management, CIC will focus on effective, efficient and prudent management of its people through integrated planning, recruitment, employee development and an enabling infrastructure. In support of this priority, some of CIC's commitments for 2010–2011 are to:

  • improve the integration of human resources with business and financial planning, including providing managers with a demographic analysis and identifying trends and recommendations for the recruitment, development and advancement of employees;
  • implement targeted recruitment of post-secondary graduates, as well as recruitment and retention strategies, to increase representation of employment equity groups;
  • develop and implement an integrated and coordinated approach to the assessment, development and delivery of training to support CIC's business requirements and employee development; and
  • develop and implement a departmental change management strategy to ensure that employees are prepared to help the Department achieve its strategic objectives.

Management Priority Type Links to Strategic Outcome(s)
Integrated decision-making processes New Strategic Outcomes 1, 2, 3 (enabling)

Description
CIC is integrating its decision-making processes to ensure greater emphasis on the outcomes the Department is trying to achieve. CIC will:

  • realign its programs and activities to strengthen the contributions they make to achieving intended outcomes, by developing an outcomes-focused vision and a strategic plan to help ensure programs and activities work together to deliver on Canada's immigration, refugee, citizenship and multiculturalism objectives;
  • implement a sustainable development framework and policy that will include economic, social, environmental and equity considerations; and
  • strengthen the risk management aspects of departmental decision making through an updated Integrated Risk Management Framework and a new Policy on Integrated Risk Management.

Risk Analysis

In the face of a global economic downturn, CIC has focused on modernizing the immigration system to maximize its contribution to Canada's economic growth. At the same time, the Department must balance its long-standing commitments to unite families, uphold Canada's international humanitarian obligations, and protect the health, safety and security of Canadians. CIC must meet these demands while ensuring public and international confidence in the integrity of Canada's immigration and refugee programs. To achieve these objectives, CIC must manage a number of known and emerging risks.

Given Canada's aging population, economic growth will require that Canada admit new immigrants to meet labour market demand. The challenge, however, is getting the right immigrants with the right skills, including language skills, which is a strong predictor of successful integration. Increased competition from other countries with managed migration systems is making it even more challenging to attract the highly skilled immigrants Canada wants and needs. To maintain Canada's competitive edge, CIC must ensure its selection process is responsive to labour market realities and promotes better economic outcomes for newcomers. The Department must also work with provinces and territories to develop communities that are welcoming to newcomers and to ensure that eligible students and skilled temporary workers are aware of permanent immigration opportunities in Canada.

Growing international migration has increased the possibility of Canadians being exposed to disease outbreaks, infectious diseases, acts of terrorism and transnational organized crime. A range of mitigating strategies has been adopted across government and with international partners to reduce the possibility of these threats impacting the Canadian population.

The integrity of the Immigration Program is being put at risk by sponsor or applicant misrepresentation, document or identity fraud, and the perceived abuse of the in-Canada refugee protection system. To meet this challenge, CIC must work with various stakeholders to proactively identify and act on integrity concerns. As well, the Department must continue to refine the design and use of its documents and systems, provide anti-fraud training to citizenship and immigration officers, and enhance and enforce procedures related to storage, use and handling of departmental controlled forms.

Once immigrants arrive in Canada, they must have the opportunity to integrate into the work force and society as a whole. By ensuring this integration, CIC helps them contribute to the country's social, civic, cultural and economic development. Canada faces various challenges related to integration, including concern over declining economic outcomes for newcomers. [note 6] In response, CIC must continue to work with its partners to develop and improve short- and long-term integration programs for all immigrant communities, including services that promote the rights and responsibilities of citizenship, offer language and orientation education, and support successful integration into the Canadian work force. Effective integration of newcomers lowers the risk of alienation and helps build a socially cohesive, integrated society based on equality of opportunity.

If newcomers are not able to integrate effectively, they will face increased risk of poverty, marginalization and other negative outcomes.

The Refugee Program faces a number of risks, including increasing abuse and a growing backlog. In response, CIC is working with partners to improve the asylum system to arrive at final decisions more rapidly, provide protection to those who need it, ensure faster removals to those who do not need protection, and make the system less vulnerable to abuse.

As Canada maintains high levels of immigration and its population becomes increasingly diverse, it is important to continue fostering strong social cohesion and Canadian identity. Both newcomers and Canadian society as a whole must emphasize long-term integration and improved intercultural understanding. It is vital that the country welcome newcomers into Canadian society and communities. Although Canadians' support for immigration remains high, there are concerns related to immigration levels and increasing diversity, especially in the context of a global economic downturn, continuing international terrorist threats and harmful cultural practices at home. To respond, CIC continues work on multiculturalism initiatives that focus on engagement and inclusion, instil multicultural understanding, recognize multiculturalism as a fundamental Canadian value, and support the removal of barriers that prevent full participation in Canadian society. The Department continues to lead the Welcoming Communities Initiative to help communities meet social and economic challenges in collaboration with provinces and territories.

CIC has introduced many reforms to its programs over the past few years to make them more flexible and responsive to labour market needs and to enhance operational integrity and efficiency. Nonetheless, the Department still encounters many challenges and opportunities as it moves forward with its immigration mandate. In response, CIC will continue to focus on ensuring that the appropriate human resources, training and mitigation strategies are in place to address any current and emerging issues.

Expenditure Profile

For the 2010–2011 fiscal year, CIC plans to spend $1,561.7 million to meet the expected results of its program activities. The table below illustrates CIC's spending trend from 2006–2007 to 2012–2013.

Departmental Spending Trend

Departmental Spending Trend: This graph shows the Department's spending trends for grants and contributions and operational expenditures from 2006–2007 to 2012–2013. The data represents actual spending (2006-2007 to 2008-2009), forecast spending (2009-2010) and planned spending (2010-2011 to 2012-2013). The trends are explained in the text that follows the graph.

Grants and Contributions

Total grants and contributions funding increased significantly between 2006–2007 and 2010–2011. This is primarily due to increased settlement funding for newcomers, and the transfer to the Department of funding related to the Multiculturalism Program. Grants and contributions for 2010–2011 amount to $969.3 million, or 63 percent of total planned spending. This level of spending continues into future years.

Operating Expenditures

Overall, operating funding remains relatively constant throughout the planning period. Although additional operating funding has been received for certain initiatives, any increases have been largely offset by the effects of government-wide reductions, transfers to other departments, and reductions due to foregone revenue.


Voted and Statutory Items ($ millions)
Vote # or Statutory Item (S) Current Main Estimates
2010–2011
Previous Main Estimates
2009–2010
1 Operating expenditures (Note 1) 514.8 447.4
5 Grants and contributions (Note 2) 969.3 866.9
(S) Contributions to employee benefit plans 48.2 43.9
(S) Minister of Citizenship and Immigration – Salary and motor car allowance 0.1 0.1
(S) Loans to immigrants and refugees to facilitate the arrival of newcomers pursuant to section 88 of the Immigration and Refugee Protection Act (Non-Budgetary)
Total 1,532.4 1,358.3

Note 1 – Operating expenditures in Vote 1 increase by $67 million in 2010–2011 over the previous year, primarily due to additional funding of $47 million for the imposition of a visa requirement in Mexico and additional funding of $20 million to modernize the immigration system and manage the backlog.

Note 2 – Grants and contributions in the previous Main Estimates did not include settlement and multiculturalism funding received through Supplementary Estimates in that year. Current Main Estimates also include additional funding of $20 million related to the Canada–Quebec Accord on Immigration.