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3 The Shifting Landscape of Contemporary Canadian Immigration Policy: The Rise of Temporary Migration and Employer-Driven Immigration

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3



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


   


         
   






   


        



        



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
Permanent Migration and Family Reunication: 1940–1970


  

      
        

       






   






     
        






Material Shift, 1980s: From Permanent Migration to Temporary
Labour Migration
     
     



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

        












Table 3.1. Permanent Migration and Family Reunification, 1966–1979
Immigrant Workers* Immigrant Non-workers**
1966 99,210 95,533
1967 119,539 103,337
1968 95,446 88,528
1969 84,349 77,182
1970 77,723 69,990
1971 61,282 60,618
1972 59,432 62,574
1973 92,228 91,972
1974 106,083 112,382
1975 81,189 106,692
1976 61,461 87,968
1977 47,625 67,289
1978 35,211 51,102
1979 48,234 63,862
Source: Department of Manpower and Immigration Canada (2005);
Employment and Immigration Canada (2005)
*Counted by “intended occupational groups.”
**Includes spouses, children, students, and others.
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









       
         

Table 3.2. The Rise of Temporary Migration: Immigrant Workers and Temporary Migrant
Workers Compared, 1980–1989
Immigrant Workers*
Employment Authorizations,
Long-Term**
1980 63,745 29,181
1981 56,969 44,990
1982 55,472 n/a***
1983 37,109 n/a
1984 38,500 n/a
1985 38,453 69,953
1986 48,200 78,244
1987 76,712 97,624
1988 76,350 126,313
1989 98,227 n/a****
Source: Employment and Immigration Canada (2005)
*Counted by “intended occupational groups.”
**Includes workers employed in Canada on temporary work authorizations for more
than one year (as defined in Immigration Regulations, 1978 and Immigration Act,
Government of Canada, 1976, cited in Employment and Immigration Canada, 2005).
***For the years 1982–1984, only aggregated figures are available: long-term and
short-term employment authorizations combined. They are excluded here due to the
extremely high number of short-term (i.e., less than one year) work authorizations.
****Without explanation, from 1989 to 1996, data on temporary residents cease to be
included in immigration statistic archives.
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










Table 3.3. Skilled Workers and Temporary Migrant Workers Compared, 1999–2009*
Skilled Workers, Principal
Applicants
Employment Authorizations,
Short and Long Term**
1999 41,544 107,139
2000 52,123 116,565
2001 58,911 119,714
2002 52,974 110,915
2003 45,377 103,239
2004 47,894 112,553
2005 52,269 122,723
2006 44,161 139,103
2007 41,251 164,905
2008 43,360 192,519
2009 40,729 178,640
Source: Citizenship and Immigration Canada (CIC) (2009b, 2010d)
*In the most recent official statistical compilations available, for the years 1984–1998,
skilled workers are counted as part of the “economic immigrant” category rather than
as a distinct category. In order to maintain a consistent pattern of comparison with the
earlier period featured in Table 3.2, Table 3.3 begins with the year 1999, from which
time disaggregated figures for skilled workers as principal applicants are available.
**Unlike in the earlier period, disaggregated figures are unavailable for short- and long-
term temporary work authorizations. The figures included here represent initial entries
and re-entries of temporary migrant workers on both long- and short-term employment
authorizations. Given the lack of disaggregation, these numbers risk overstating, to a
certain extent, the proportion of temporary migrant workers employed in Canada for
one year or more.
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



      
  

   


  
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

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
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
    
         

     



       
      
       



   





   
     
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  



    
  



  
    
 
      



        




          
   




        
 
 






     
   

6208-098_Goldring-4082_01Pages.indd 61 2/1/2013 11:39:56 AM

The Early-Twenty-First-Century Policy Shift: From Public to Private
Decision Making around Permanent Residency
    

     
        
    


 



  






   
    

     


   
        




         




      
6208-098_Goldring-4082_01Pages.indd 62 2/1/2013 11:39:56 AM

  with signi-
cant skilled work experienceshown that they can succeed in Canada, that
they have overcome many of the traditional barriers to integration
have formed aachments to theirjobs


    

     
      
         
  

    


  

        


 


  
         



         


   



    

          
6208-098_Goldring-4082_01Pages.indd 63 2/1/2013 11:39:56 AM






Unheeded Lessons of Canada’s First Employer-Driven Immigration
Program






     

Table 3.4. Permanent Residents Nominated through Provincial and Territorial Nominee
Programs, 1997–2009
Year
Provincial/Territorial Nominees
(Principal Applicants)
1997 23
1998 0
1999 151
2000 368
2001 411
2002 680
2003 1, 417
2004 2, 086
2005 2, 643
2006 4, 672
2007 6, 329
2008 8,343
2009 11,801
Source: CIC (2008b, 2010d).
6208-098_Goldring-4082_01Pages.indd 64 2/1/2013 11:39:56 AM



   






    



   




 




   
    
    


      





    





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

  


        


















    

Table 3.5. Initial Entry and Permanent Residency of Live-in Caregivers, 2003–2007
(Raw Data)
Year
Initial Entry, Live-in Caregivers
(all Canada)
Permanent Residency, Live-in
Caregivers, Principal Applicants
(all Canada)
2003 5,110 2,230
2004 6,741 2,496
2005 7,221 3,063
2006 9,387 3,547
2007 13,840 3,433
Source: CIC (2008b). Reproduced from Valiani (2009, p. 11)
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
       
         
 














      
        
 

Table 3.6. Estimated Retention Rates (ERR) over Time, Live-in
Caregiver Program, 2003–2007
ERR 2003* 60%
ERR 2004** 40%
ERR 2005*** 28%
Source: Reproduced from Valiani (2009, p. 12)
* This ratio is based on the assumption that all live-in caregivers entering in
2003 attained permanent resident status in 2005, as per the official expectations
underlying the LCP design. Given the weaknesses of this assumption, this ratio is an
overestimation.
** This ratio allows for the widely known fact that not all live-in caregivers are able to
fulfil the twenty-four-month requirement within two years.
*** This ratio allows for the possibility that some live-in caregivers complete the twenty-
four-month requirement over a period of three to four years.
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
Figure 3.1. Family Reunification, Labour Force Expansion, Live-in Caregivers
Source: CIC (2008b)
         



Conclusion

  
        
   
        

6208-098_Goldring-4082_01Pages.indd 68 2/1/2013 11:39:57 AM

Figure 3.2. Family Reunification, Labour Force Expansion, Skilled and Self-
Employed Workers
Source: CIC (2009b)
    
         


   
    


   


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
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 


Home Economics.
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

 
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


 




 

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
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

 


6208-098_Goldring-4082_01Pages.indd 70 2/1/2013 11:39:57 AM
... Canadian demand for temporary workers outside of the SAWP increased dramatically in the early 2000s in sectors including agriculture, construction, and food services. The rise came with little public debate, partly in response to genuine labour shortages but also to employers' preference for flexible, inexpensive migrant labour (Valiani, 2013). Employers' addiction to temporary work [Hildebrandt, (2004), n.p.] and demands to match work permits to seasonal labour cycles feeds the construction of low-skilled labour shortages as permanently temporary (Faraday, 2012). ...
... This context consciously and unconsciously shapes the behaviours and disposition of workers, who embody precarity in an effort to be 'named' (specifically requested) by employers in order to return as an employee the following season. Workers' 'institutionalised deportability' [Vosko, (2018), p.1] increases pressure to accept employer demands and challenging work conditions (Preibisch and Grez, 2010;McLaughlin and Hennebry, 2013), leading workers to accept longer hours, harsher working conditions, and sacrifice social interactions (Valiani, 2013;Preibisch and Grez, 2010). Evidence of employees forgoing medical attention in order to avoid halting work and leaving the workplace also abounds. ...
... Canadian demand for temporary workers outside of the SAWP increased dramatically in the early 2000s in sectors including agriculture, construction, and food services. The rise came with little public debate, partly in response to genuine labour shortages but also to employers' preference for flexible, inexpensive migrant labour (Valiani, 2013). Employers' addiction to temporary work [Hildebrandt, (2004), n.p.] and demands to match work permits to seasonal labour cycles feeds the construction of low-skilled labour shortages as permanently temporary (Faraday, 2012). ...
... This context consciously and unconsciously shapes the behaviours and disposition of workers, who embody precarity in an effort to be 'named' (specifically requested) by employers in order to return as an employee the following season. Workers' 'institutionalised deportability' [Vosko, (2018), p.1] increases pressure to accept employer demands and challenging work conditions (Preibisch and Grez, 2010;McLaughlin and Hennebry, 2013), leading workers to accept longer hours, harsher working conditions, and sacrifice social interactions (Valiani, 2013;Preibisch and Grez, 2010). Evidence of employees forgoing medical attention in order to avoid halting work and leaving the workplace also abounds. ...
... Temporary migration programs have grown around women's migration and today represent one of the more efficient ways in which states can recruit labour for short periods without granting citizenship rights to workers once they arrive. In this way, states 'instrumentalize' women migrants' economic potential while leaving them outside the formal arrangements of citizen-government (Valiani, 2013). Semi-regulated domestic care worker programs, such as Canada's live-in caregiver program, are a good example and represent an overall movement toward temporary migration programs in the world (Valiani, 2013;Bourgeault et al., 2010). ...
... In this way, states 'instrumentalize' women migrants' economic potential while leaving them outside the formal arrangements of citizen-government (Valiani, 2013). Semi-regulated domestic care worker programs, such as Canada's live-in caregiver program, are a good example and represent an overall movement toward temporary migration programs in the world (Valiani, 2013;Bourgeault et al., 2010). The rise in temporary worker programs is being accompanied and complemented by a proliferation of private actors that have increasingly taken the economic reigns of labour force participation and dominated the mechanisms by which migrants are controlled (Geiger and Pecoud, 2010;Gammeltoft-Hansen and Sorensen, 2013). ...
Technical Report
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This report is produced by UN Women’s Economic Empowerment Section for the ‘Promoting and Protecting Women Migrant Workers’ Labour and Human Rights’ Project, supported by the European Union. This report is the first of three designed to build on the growing body of scholarship pertaining to gender and migration, and is a resource for the creation of gender-sensitive policies and practices aimed at empowering women migrant workers. This report draws from the cases of Moldova, Philippines and Mexico to provide a comprehensive analysis that accounts for differences and similarities between migration systems. Specifically, through the use of legal reviews and legislative comparison, the report provides an analysis of existing mechanisms, frameworks, legislation and policies vis-à-vis women migrant workers, with particular attention paid to the alignment of national legislation with international frameworks, like CEDAW. Finally, the report concludes by providing a set of recommendations aimed at global and regional actors, including the ratification of international treaties, enforcement of CEDAW and the creation of a new international instrument to promote and protect the rights of women migrant workers.
... This policy is borne out by the numbers: 'Between the early 1980s and the early 2010s, the proportion of family immigrants dropped from 47 percent to 26 percent, whilst the proportion of economic immigrants increased from 36 percent to 63 percent' (Ellermann 2020(Ellermann , 2523. The shift towards economic migrants also meant there was a huge increase in the number of temporary migrants -for work and for study -over permanent residents (Valiani 2013). ...
Book
This book brings an intersectional perspective to border studies, drawing on case studies from across the world to consider the ways in which notably gender and race dynamics change the ways in which people cross international borders, and how diffuse and virtual borders impact on migrants' experiences. By bringing together 11 ethnographies, the book demonstrates the necessity for in-depth empirical research to understand the class, gender and race inequalities that shape contemporary borders. In doing so the volume sheds light on how migration control produces gendered violence at physical borders but also through the politics of vulnerability across borders and social boundaries. It places embodied narratives at the heart of the analysis which sheds light on the agency and the many patterns of resistance of migrants themselves.
... Moreover, there is no deadline for international students to complete the Express Entry profile and enter the Express Entry pool. Under Canada's previous immigration policy, applications were processed on a "first come, first serve" basis (Valiani, 2013). Applications received after the cap had been reached would be returned to the applicant; this fact has been proven by historical records. ...
Article
Full-text available
This research critically analyzes the introduction of the Express Entry system in Canada, requiring foreign nationals to submit an Expression of Interest (EOI) and wait for an invitation before being allowed to apply for permanent residence. Drawing on available empirical data, I argue that this reform jeopardized international students’ chance to become permanent residents. Despite recent modifications that intended to improve their situation, the pathways to permanent residence of international students are still restricted. Particularly, international PhD students are negatively impacted as the previously existing PhD stream under the Federal Skilled Worker Program covertly disappeared from the current regime. This research concludes with suggestions on how to further modify the current immigration system to facilitate international students’ transitions into Canada.
... At the same time, temporary migrant worker programmes, such as the Foreign Temporary Worker Programme (FTWP) and the Live In Caregiver Programme (LICP), have grown tremendously. The impact of these changes has been to shift more and more power into the hands of employers to determine who is 'valuable' to the Canadian nation-state (Valiani, 2013). Similarly, recent changes in the Immigrant and Refugee Protection Act produced similar effects, and gave more power to ministerial authorities to arbitrarily change rules for refugee claimant processes. ...
Article
This paper examines experiences of labour market exploitation and precarity amongst migrating young adults in Canada. It analyses a specific case of hyper-exploitation and wage theft as experienced by a group of refugee young adults. Utilizing feminist materialist conceptions of knowledge and learning, this analysis seeks to move beyond an individualized conception of learning and experience by illuminating the inter-constitutive relations of social experiences. This paper seeks to demonstrate how attending to the social organization of migratory experiences allows for ruptures of individualized conceptions of self and society. Further, the case serves to demonstrate the complexity of experiences that influences the ‘learning’ associated with migration for refugee young adults.
... Finally, pressures coming from private employers demanding a structuring of immigration according to supply and demand have brought about a radical transformation of the immigration regime by allowing a dazzling growth of temporary worker programmes (Piché, 2012;Valiani, 2013). A turning point was reached in 2008 when the number of annual admissions of temporary workers exceeded that of permanent residents for the first time. ...
Article
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A vast range of recent academic scholarships seek to theorize the recent convergence of neoliberal, anti-immigration, xenophobic and populist measures and practices since the Crisis of 2008. This paper analyses recent changes to the Canadian citizenship regime and it compares this changes to neoliberal and neoconservative trends in Europe. The authors argue that although it did not explicitly renounce its pluralistic orientation, the Canadian Conservative Party had already started its neoliberal and neoconservative reorientation of the Citizenship in Canada prior to the Crisis of 2008. Despite several similarities with European trajectories, the Conservative Party needs to deal with structural factors that are specific to the Canadian context: the electoral system; demographic trends; and a public opinion which, unlike in Europe, remains optimistic with regards to the economic contribution of immigration.
Article
Cet article présente des résultats préliminaires et exploratoires d’une étude en cours examinant les visions du monde des militants travaillant au sein des organisations pour la défense des droits au Canada. Sont décrits le contexte néolibéral d’hyper-précarité vécu par les membres des groupes ainsi que la méthodologie de recherche utilisée. Les thèmes qui émergent lors de l’analyse sont ensuite analysés. Une attention particulière est portée au contexte légal et social qui donne lieu à cette condition d’hyper-précarité. L’article se termine par une discussion exploratoire autour des inégalités, des actions, de l’organisation et de l’existence d’un lien paradoxal entre la résilience et la combativité, lien dans lequel la première dépend en grande partie de la seconde.
Article
This article elucidates how social work is not only constituted by cross-border processes but also constitutes the transnational processes of bordering within the territorial boundary of the nation-state. The analysis is drawn from a qualitative study of social workers who have worked with migrants without full immigration status in Toronto, Canada. Building on critical border scholarship that reconceptualizes borders as processes, I examine border narratives – a discursive-level operation of border making. I highlight how neoliberalism, one of the key technologies of contemporary transnational bordering processes, intersects and works together with nationalistic citizenship discourse, governing the discursive constructing of “citizen/Self” and “non-citizen/Other.” I call this governance at play neoliberal nationalism and demonstrate some of the ways that neoliberal nationalism works on, through, and within social workers to make sense of exclusionary and inclusionary practices towards migrants without full immigration status as they struggle to navigate a highly complex immigration system and funding structure as well as the effects of neoliberalism in their workplace. I demonstrate how social workers reproduce neoliberal logic and the hegemony of national citizenship even as they critique them, rendering it challenging to see their own complicity in the internal border making of the Canadian nation-state.
Thesearethemostrecentofficialdataavailableanddifferconsiderablyfromthosepresentedin NanditaSharma's(2006)Home Economics
  • Thefigurespresentedherearefromthecitizenshipandimmigrationsta-Tisticsarchives
ThefigurespresentedherearefromtheCitizenshipandImmigrationSta-tisticsArchives(1966-1996),dated12April2005.Thesearethemostrecentofficialdataavailableanddifferconsiderablyfromthosepresentedin NanditaSharma's(2006)Home Economics.Thediscrepanciesarelikelydue tochangesandimprovementsincountingmethods.
Theretentionrates calculatedheremustthereforebetakenasanestimate.SeetheAppendix inValiani(2009)forthecalculationsandrationaleunderlyingtheseestimatedrates
  • Itisimpossibletomatchinitialentryfigureswith Duetoprivacylaws
  • Thoseofpermanentresidentsbyindividualapplicant
Duetoprivacylaws,itisimpossibletomatchinitialentryfigureswith thoseofpermanentresidentsbyindividualapplicant.Theretentionrates calculatedheremustthereforebetakenasanestimate.SeetheAppendix inValiani(2009)forthecalculationsandrationaleunderlyingtheseestimatedrates.