Citizenship & Multiculturalism Building an Inclusive Canada

Andrew Griffith

Conference Board Immigration Summit May 2017

Agenda

• Context and framework

• From British subjects to Canadian citizens

• Recent and planned changes

• Naturalization data

• Challenges

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Canadian Model of Integration

Canadian History, Identity and Values

Multiculturalism

Selection

Immigration (Permanent Residents) Foreign Workers (Temporary Residents)

Short-term Integration

LanguageOrientationEmployment

RequirementsCeremonies and Awareness

Citizenship

3

Immigration-Based Culture of Accommodation

• Canada built by successive waves of immigration

• Accommodation (imperfect) among Indigenous, French, and British

• Immigrant to citizen expectation

• Context for later later group arrivals and multiculturalism

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“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.

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Citizenship-related Policies• 1960s — Discrimination removed from immigrant

selection (1962); points system introduced (1967)

• 1971 — Multiculturalism Policy

• 1982 — Charter of Rights and Freedoms

• 1988 — Multiculturalism Act

• 1995 — Employment Equity Act

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Citizenship — General• Birthright or ‘blood’ citizenship

• Residency: length, physical or legal presence

• Language and knowledge requirements

• Values

• Dual nationality

• Retention and subsequent generations

• Revocation

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Evolving Citizenship

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Aspect Pre-1947 1947 Act 1977 Act 2014 Act C-24 2017 Bill C-6Birthright Yes Yes Yes Yes YesResidence (years)

5 after 1919 (shorter earlier)

5 3 4 3

Language Yes Yes Yes Yes YesKnowledge Yes Yes Yes YesTest 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 before age 22

Declaration before age 25

Declaration before age 28

First generation limit

Revocation (fraud)

Yes Yes Yes Yes Yes

Revocation (terrorism)

Yes Yes No Yes No

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 official languages

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Immigrants and Citizens 1915-2016

75,000

150,000

225,000

300,000

1915 1920 1925 1930 1935 1940 1945 1950 1955 1960 1965 1970 1975 1980 1985 1990 1995 2000 2005 2010 2015

New Citizens Immigrants

British Subject Canadian Citizen

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Changes 2010 Administrative and Operational

• Emphasis on history, military, responsibilities

• More difficult test (from 60 to 75 percent)

• Language “pre-assessment”

• Anti-fraud

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2014 Citizenship Act Residency and Testing

• Longer residency (4 out of 6) and physical presence • From “honour system” to residency questionnaire

• “Intent to reside”

• Knowledge and language required 14-65

• Eliminate pre-permanent residency time 50 percent credit

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2014 Citizenship Act Integrity

• Physical presence, not just legal residency

• Knowledge requirement met in English or French, not through an interpreter

• Bar granting citizenship to those with foreign criminal charges and convictions

• Regulations for citizenship consultants

• Increased fines and penalties for fraud

• Requirement for adult applicants to file Canadian income taxes

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2014 Citizenship Act Efficiency and Business Processes

• Ministerial authority to revoke citizenship for fraud, misrepresentation (previously, GiC)

• Ministerial authority on discretionary grants of citizenship (previously, GiC)

• Ability to cancel incomplete applications

• Single-step processing (previously three-step), ceremonial role for citizenship judges

• Electronic means to verify citizenship.

• “Soft” commitment one year processing

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2014 Citizenship Act Fairness

• “Lost Canadians” fix

• Fees based on full cost recovery — from $100 to $530, plus language testing (~ $200)

• Revocation for Fraud: Ministerial discretion

• Revocation for “Terror or Treason” for dual nationals

• Other • Fast-track mechanism for Permanent Residents serving in the

Canadian Forces

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Liberal Changes 2017 (C-6) Adjustments, not full repeal

• Principle: “A Canadian is a Canadian is a Canadian” • Repeal revocation for dual nationals for terror or treason

• Remove barriers • Restore the previous age limits for knowledge and language

testing to 18-54 (~ 10 percent of applicants) • Repeal the “intent to reside”

• Restore pre-permanent residency time 50 percent credit

• Maintain physical presence but reduce time required to 3 out of 5 years

• New citizenship study guide (replace Discover Canada)

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2017 C-6 Citizenship Act Integrity, Due Process

• Maintain C-24 integrity measures plus: • No longer counting time spent under a conditional sentence

order towards meeting physical presence

• Retroactive application of prohibition of applicants from taking oath if never met/no longer meet requirements

• Authority to seize fraudulent documents of those used fraudulently

• Restoration of procedural protections for those accused of fraud or misrepresentation • Amendment in Senate

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Other planned changes

• C-33 Elections Act amendment proposes unlimited voting rights for expatriates

• Ministerial mandate letter includes TRC recommendation for new oath: • “I swear (or affirm) that I will be faithful and bear true allegiance

to Her Majesty Queen Elizabeth II, Queen of Canada, her heirs and successors, and that I will faithfully observe the laws of Canada, including treaties with Indigenous peoples, and fulfil my duties as a Canadian citizen.”

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Multiculturalism Changes

• Program weakened following transfer to IRCC and return to PCH

• Broader government diversity and inclusion agenda seen in appointments and hiring processes

• Current priorities • work toward the elimination of discrimination, racism and

prejudice; • provide opportunities for youth community engagement; and • bring people together through art, culture and/or sport.

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What the data shows

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Citizenship Take-up Foreign-born by Place of Birth, NHS 2011

Europe

Eastern & SE Asia

Southern Asia

Latin America

West Asia & ME

Caribbean

United States

Africa

Oceania

0% 25% 50% 75% 100%

31%

40%

40%

22%

30%

25%

31%

31%

18%

56%

46%

42%

70%

54%

64%

63%

64%

67%

Canadian Only Dual Nationals Non-Citizens

Number

2,226,100

1,826,205

927,775

676,855

484,985

368,465

316,465

314,890

63,630

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New Citizens 2007-16 Top 10 by Place of Birth, “Other” 832,000 or 48.5 percent

India

Philippines

China

Pakistan

Iran

USA

England

Korea

Colombia

Sri Lanka

55,000 110,000 165,000 220,000

31,981

41,360

43,240

45,240

47,752

51,925

81,340

163,416

171,908

205,433

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New Citizens 2012-16 Province of Residence

Ontario

Quebec

BC

Alberta

Manitoba

Saskatchewan

Atlantic

North

Other

12.5% 25% 37.5% 50%

0.3%

0.1%

1.6%

2.1%

4.0%

13.2%

15.5%

18.9%

44.3%

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Citizenship Applications & Citizens 2000-16 IRCC Operational Data

75,000

150,000

225,000

300,000

2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016

Applications Applications 3-Year Moving Average New CitizensPR Trendline

PR Trendline

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Citizenship Take-Up 6 Years Since Landing vs All Years Since Landing 2015

20%

40%

60%

80%

2000 2001 2002 2003 2004 2005 2006 2007 2008 2009

47%

55%61%64%

69%72%74%77%

79%80%

47%44%50%

56%

6 Years Since Landing (2014 data) All Years Since Landing25

Impact 2010 Changes Citizenship Test Percentage Decline by Country of Birth

2010-15 Compared to 2005-9Caribbean

Southern & East AfricanSouth Asian

West Asian & Mid-EastLatin American

East & Southeast AsianCentral & West African

South EuropeanNorth African

East EuropeanOceania

West EuropeanFrenchBritish

North AmericanNorth European

-16% -12% -7% -3% 2%-0.9%

-1.1%-1.5%

-1.8%-2.1%

-5.2%-6.5%

-8.3%-9.2%-9.3%

-9.5%-10%

-12.7%-12.7%

-14.5%-14.7%

Overall Pass Rates

2005-9 96.3%

2010-13 82.7%

2014-15 90.0%

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Language Assessment Type of Assessment 2013-15

Diploma in Eng/Fr

Private testing

LINC, Prov Certificate

Other

Special needs

No evidence

18% 35% 53% 70%

0%

0.2%

0.4%

16.5%

20.4%

62.4%

2013 2014 2015 TotalDiploma 58,910 78,007 54,491 191,408Private 15,278 28,722 18,601 62,601LINC, Prov 12,330 22,069 16,129 50,528

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Impact by Immigrant Class Percentage Change New Citizens

2010-15 Compared to 2005-9

-23%

-15%

-8%

0%

8%

Economic Family Class Protected Persons Other

-17%

-24.9%

-19.6%

0.9%

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Fees — Major barrier

• User fees exemption to reduce scrutiny

• $100 to $300 (Feb 2014) to $530 (Jan 2015)

• Language pre-assessment costs (~ $200) for 20 percent of applicants

• Dramatic decline in applications — 50 %

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Adult Processing Fee Revenues IRCC assumes no decline — 182,400 adult applications

(Canada Gazette)

25$ M

50$ M

75$ M

100$ M

Pre-2014 $100 2014 $300 2015 $530 2016 $530

$48,864,410

$96,672,000

$54,720,000

$18,240,000

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Competitiveness

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Country Residency Fee CAD Rate MIPEX

UK 5 years $2,024 66% 60

Netherlands 5 years $1,190 78% 66

USA 5 years $950 60% 61

Canada 3 of 5 years $630 92% 67

New Zealand 5 years $441 78% 71

Germany 8 years $355 61% 72

Australia 3 of 4 years $285 83% 69

France 5 years $76 62% 61MIPEX 2015 Indicator is ‘Access to Nationality’ Naturalization Rate OECD 2015 Integration Report (10 years plus, NZ 2012 Report) Fees as of Feb 2017

Observations & Policy Questions

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Concluding Observations

• Balance between facilitation and meaningfulness

• Conservative integrity improvements maintained

• Canadian citizenship competitive

• But immigrant to citizen model at risk

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Policy Questions Citizenship

• Balance between presence and mobility? Between meaningfulness and instrumental citizenship?

• Does naturalization matter?

• Should fees be based on cost recovery or mix of private and public interest considerations?

• What percent of immigrants expected to naturalize within what period of time?

• What voting rights should non-residents have?

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Policy Questions Citizenship, Integration and Multiculturalism

• Gender-based analysis be expanded to include all employment equity groups?

• Governments collect race-based data for major citizen services?

• New Ethnic Diversity Survey or alternate?

• More informative annual Multiculturalism Report?

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Andrew Griffith Email: agriffith232@gmail.comTwitter: @andrew_griffithLinkedIn: andrewlgriffithFacebook: Andrew Griffith C&MBlog: www.multiculturalmeanderings.wordpress.com

Books: lulu.com