Canada's Immigration Policy: A Historical Overview

Canadian Immigration Policy: A Historical Overview

Canadian immigration policy has gone through several changes in the last 120 years, some of them permanent, some of them temporary. Canadian immigration policy is flexible, and thus continually changing to meet social and economic conditions. In addition to temporary policy adjustments, some permanent changes to the immigration system have occurred. We will examine the history of Canadian immigration policy and chart the changes in the last century, both temporary and permanent.

Late 1800’s-1930

The goal of Canadian immigration policy up until World War I was to attract farmers and farm workers to build an agricultural base in the West. The countries that Canada sought immigrants from were Britain the U.S and Northwestern Europe. However, when demand for labour exceeded supply of immigrants, policy shifted to allow immigration from other countries to address the shortcoming.

The first official regulatory structure for immigration was established in 1910, focusing on the prospective immigrant’s country of origin. This act was written in broad terms and delegated complete control over immigration policy to the cabinet. Since the cabinet can create regulations through Orders in Council, which are not brought before the house, they could make changes in policy without public scrutiny. This autonomy was justified by the necessity for flexibility in immigration policies in response to economic fluctuations. The regulatory structure established in 1910 delineated countries into two groups: preferred and non-preferred. Admission to immigrants in preferred countries was based solely on country of origin. Preferred countries included: Britain, the U.S, the Irish Free State, New Zealand and South Africa. Prospective immigrants from non-preferred countries were taken in certain conditions. Some countries in Northern and Western Europe were given almost the same status as the official preferred countries and immigrants were often admitted from these countries, whereas potential immigrants from other countries required sponsorship by someone who was already a legal Canadian resident.

Although these regulations evolved significantly up until the great depression, Canadian immigration policy was still focused on securing farmers and farm workers to build an agricultural base.

1930-1946

During the great depression, Canada closed its doors to new immigrants. A passage of Order in Council in 1931 brought Canadian immigration to a halt, and it remained near zero as a percentage of population until after World War II. The country-building phase of Canadian immigration policy was complete and by the 1930’s, and with the severe economic downturn of the great depression, the emphasis was on preserving the nation. After the great depression, the fear of another depression, made Canadians wary of reopening the border to immigration even after the economy picked up.

The only exceptions to the rule of zero immigration applied to British subjects and U.S citizens with the means to maintain themselves until they found employment, a wife or child under 18 of a legal resident of Canada who had the means to care for them, or an agriculturalist with the means to farm in Canada. These exceptions only applied if the prospective immigrants destination province did not object. The exceptions also did not apply to any Asiatic race. They were prohibited from entry.

1946-1960

Post-war economic prosperity created a shortage of workers. Canadians were wary of increased immigration with the memory of great depression fresh, but in 1947 William Lyon McKenzie King re-opened immigration with a selective immigration policy. McKenzie King didn’t want a “fundamental alteration in the character of our population… Canada is perfectly within her rights in selecting the persons whom we regard as desirable future citizens” (Troper p260) Accordingly Ottawa opened the border to those races and nationalities with a ‘proven track record of assimilation’, predominantly Western and Northern Europeans. In concession to the business lobby who wanted workers willing to do the low wage, low status work that these ‘preferred’ immigrants and native Canadians weren’t willing to, the government also allowed entry to some Slavic and Jewish immigrants.

In addition to addressing the labour shortage, Canadian immigration policy had a stated aim of population growth, ensuring, as McKenzie King put it; “the careful selection and permanent settlement of such numbers of immigrants as can advantageously be absorbed.” Canada was seen as an under-populated country. The official labour policy also allowed for enough flexibility to address future labour shortages and surpluses effectively. The official labour policy in this era did not explicitly state how many immigrants Canada sought or from which countries; it left these determinations up to the government to handle through Order-in- Council directives – again attempting to preserve flexibility.

Labour shortages continued into the 1950’s and restrictions on race and nationality were loosened to keep up. In 1952 a new immigration policy was enacted to attract a continuing stream of immigrants, and boost population growth, without opening the door too wide to certain races and nationalities. The act continued to bar against non-whites, especially Asians. Canada did however allow a small number of non-white immigrants from Pakistan, India and Ceylon. This had the effect of setting a precedent for admission of any non-white immigrants. The main source of increased immigrant flow however was Italy. Hundreds of thousands of Italian immigrants came into Canada by the mid 1960’s, most of them unskilled.

1960-1975

In the early 1960’s economic slowdown capped the demand for labour and immigration numbers fell by half. At the same time, immigration policy revision was the new focus: this period was subject to the most change in the regulatory environment since 1910. The goal was to keep immigration policy in line with new human rights initiatives at the federal and provincial level. The result of these policy changes were the lifting of racial and ethnic restrictions on independent applicants, although for some time after these changes occurred, administrative procedures allowed discrimination to continue. For example, almost all the resources of the immigration offices were concentrated in areas traditionally considered ‘preferred’. Little resources were directed at recruiting from the developing world. In 1960, Canada operated 27 immigration offices. Twenty-four were in Europe, One in Israel, and two in Asia. None existed in Africa or South America. Harold Troper puts it like this: “It was as if Ottawa was inviting the world to a party but did not expect anyone to accept the invitation.” (Troper p 268)

Further policy reforms in the mid 1960’s finally removed all racial and ethnic discrimination from the formal immigration policy in Canada.

In addition to these advances in racial equality in the immigration system, the overall immigration policy shifted to place an emphasis on skilled labour. A points system was introduced to screen candidates based on merit, removing discretionary powers of immigration officials and allowing immigration to be adjusted more easily with economic fluctuations – the points system could be quickly and easily adjusted as needed. The points system also shifted the basis of selectivity from country of origin to the individual immigrant. These changes were described by Ellen Fairclough, Minister of Immigration and Citizenship:

We shall do our best to admit as immigrants individuals and families who are personally suitable and who have the required background and training to become worthwhile citizens. The key to our immigration policy will be the consistent application of proper selection standards designed to bring the best possible settlers to Canada. I am sure all Canadians agree that once these standards are established they should be applied consistently to all who seek admission to this country, except where the admission of the immigrant is based on compassionate grounds [refugees] or on close relationships [family sponsorship by members already admitted] (Green p37).

In effect, Fairclough was placing emphasis on individual merit, and removing race and nationality from the selection criteria in Canadian immigration policy.

1975-1985

There were many economic fluctuations in this period, testing the flexibility of the immigration system for the first time. This also tested the efficacy of the points system, which proved to be insufficient to screen candidates with the skills necessary to consistently find employment in their field. The points system did prove successful in reducing the number of unskilled immigrants.

In 1978 an all-new immigration act was enacted, to replace the much-amended immigration act of 1952 that was still in place. The 1952 legislation had been amended to meet modern social issues but still reflected outdated aims of attracting unskilled and agricultural labour, which were out of place in an increasingly urbanized society. The Canadian government felt that the immigration laws in the 1952 Act could no longer be amended beyond recognition and needed to be completely reinvented. The stated goals of the 1978 Immigration Act were as follows:

1) To facilitate the reunion in Canada of Canadian residents with close family members from abroad;
2) To fulfill Canada’s legal obligations with respect to refugees and uphold its humanitarian traditions;
3) To foster the development of a strong and viable economy in all regions of Canada.

The act then aimed to allow easier family sponsorship, recognize refugees for the first time as a distinct class of immigrants eligible for sanctuary and tailor Canadian immigration policy to labour shortages and surpluses. The act gave top processing priority to refugees and family members.

The 1978 immigration act set targets for immigration, including for refugees and family sponsorships and aimed to attract skilled labour. The act also targeted a new ‘entrepreneurial immigrant’ class who had the capital to build a business in Canada and provide jobs.

1985-1993

A government review of immigration policy in 1985 determined that fertility in Canada had fallen below replacement levels, and that Canada’s population was projected to decline after year 2000. The result of this review was to increase immigration through removal of the prerequisite of prearranged employment. This had the effect of increasing immigration levels from roughly 80,000 in 1985 to 250,000 in 1993.

The new immigration policy set stable targets of 1% of the population for immigration, despite a poor labour market. This policy was intended to provide for long-term population growth, and was the first time the Canadian government had kept immigration flows consistent despite high levels of unemployment. This signaled the first time population growth had taken precedence over economic concerns in immigration policy.

By 1985, non-European immigration topped 60 percent, and while Canadians rejected racism, it was clear that the ethno cultural composition of Canada was changing fast.

1993 – Present

In 1995 the Liberal government implemented a new strategy in immigration policy, maintaining total immigration levels at a consistent 1%, adjusting target ranges for different groups, including refugees, individuals and families.

The point system was drastically revamped, placing emphasis on individual skills relevant to given careers, rather than on education levels, as the system did previously. This put trades workers and other low-education high-skill workers at a disadvantage.

The revisions to the immigration policy were intended to contribute to the goal of “ensuring that newcomers to Canada can integrate and contribute to Canada as quickly as possible, without adding to the burden on social programs” (Hawkins, p80).

The revisions were intended in broad terms to minimize the costs of immigration programs while ensuring large inflows of the right type of immigrants to stimulate economic growth and fill gaps in the labour market.

Changes have occurred in the race, economic standing of the immigrants Canada allows to enter the country. The policy directing these changes have been based on economic concerns mostly, but also adapted to keep pace with human right. Now the focus of Canada’s immigration policy is still economic but also shifting to population perpetuation.

Bibliography:

Green, A.G and D.A Green. 1995 Canadian Immigration Policy: The Effectiveness of the Point System and Other Instruments. Canadian Journal of Economics 1006-41.

Green, A. G and D.A Green. The Goal’s of Canada’s Immigration Policy: A Historical Perspective. Canadian Journal of Urban Research 13-1.

Hawkins 91 Hawkins, F. 1972. Canada and Immigration: Public Policy and Public Concern. Montreal: McGill-Queen’s Press.

Troper, Harold. Canada’s Immigration Policy Since 1945. International Journal 181-2.