A Proposal by Howard Adelman, Naomi Alboim, and Mike Molloy March 2014 New Directions for Refugee Resettlement

Purpose 2 To look at the past to inform the present and future, recognizing differences in context To stimulate discussion in government, voluntary and private sectors about potential new directions in refugee resettlement To recommend bold new directions for refugee resettlement to meet Canada’s humanitarian goals in innovative and cost-effective ways

Background 3 Conference on the Indochinese refugee program held in November 2013 Co-sponsored by York University’s Centre for Refugee Studies, Canadian Immigration Historical Society, and Sponsorship Agreement Holders Association Attended by former refugees, refugee sponsors, officials from all levels of government, UNHCR reps, academics

…Background 4 Draft paper by Howard Adelman and Naomi Alboim on lessons learned from that movement and possible new directions for refugee resettlement and sponsorship Post conference meeting in January at York University Second draft paper circulated to SAH council, National Settlement council, other key informants, and presented at CCR working group Iterative process: next version soon

Assumptions 5 1. Canada will be better able to expand and improve its humanitarian commitments in a cost effective manner by making adjustments to its refugee resettlement program 2. Meaningful change will depend on action by both civil society and government. A multi-pronged approach will be necessary 3. Refugees in need of protection and resettlement span the continuum of complexity, health/social needs, and skill levels Some are job-ready while others are far more vulnerable and need comprehensive health and social interventions. All need protection and resettlement in order to be safe. Family reunification is fundamental to the refugee settlement and integration process.

…Assumptions 6 3. A focus on refugee resettlement does not imply that refugees resettled from overseas are more worthy than refugees selected as Convention Refugees through an inland asylum process. 4. The involvement of ordinary people committed to the plight of refugees is of enormous benefit to Canada in meeting its humanitarian goals and obligations. In addition to creating public support for refugees and bearing some costs, sponsors provide personal support for refugees in need, inter-cultural learning, and improved integration outcomes. 5. A revitalization of the Private Sponsorship program should aim to make sponsorship an integral and broadly supported aspect of our civil society and not limited to faith communities and ethno-cultural groups.

…Assumptions 7 6. Principles of “additionality”, named refugees, and freedom of choice by sponsors must remain as key features of private sponsorship.

New Directions 8 We recommend new directions in the following areas: 1. Government Assisted Refugees 2. Refugee Family Reunification 3. Revitalized Private Sponsorship 4. Job – ready refugee pilots 5. Syrian refugees

1. Government Assisted Refugees 9 This category should continue to focus on the most vulnerable refugees. Government should honour the commitment made to the number of GARS admitted. Attempts should be made to select whole family/kinship groupings in need of protection (as with Bhutanese). The expertise of RAP providers should be complemented by a revitalized host program. The RAP should be enhanced to take into account the special needs of the most vulnerable.

2. Refugee Family Reunification 10 Approximately 90% of sponsorship applications submitted by SAHs are for relatives already in Canada because no other channel exists. In most cases, family members assume financial and human responsibility for settlement and SAH sponsors become administrators and passive guarantors. As this is a relatively low cost activity, a new refugee family reunification program should be developed so refugees in Canada can sponsor parents, children and siblings in need of protection. A privately funded national guarantee fund should be established (similar to the Winnipeg and ISISNS ones) to back up family sponsors. This would free up sponsor groups to use their energies and resources elsewhere for urgent protection cases.

3. Revitalized Private Sponsorship 11 A national charitable organization like Operation Lifeline should be established by civil society to actively promote and support new sponsorship activity. Sponsors should be encouraged to become more involved in VORs and BVORs, while retaining the option of submitting named referrals or specific country preferences. Sponsor groups should be encouraged to assist RAP providers in the settlement of GARs. Sponsor groups should be encouraged to participate in particular pilots designed to test new resettlement options. To encourage new sponsors, every sponsored refugee over the initial targeted allocation should be matched by an additional GAR.

… Revitalized Private Sponsorship 12 The new national charity would: Organize a media campaign to inform Canadians about the plight of refugees and the opportunities for small groups of private individuals to become involved in the sponsorship of refugees Recruit and support the organization of community-based sponsorship groups to become involved with refugees to provide an outlet for their humanitarian concerns Operate as a charity through which local groups can raise funds and funnel them through a charity while enabling the local groups to use those funds to assist the refugees Raise funds to backstop local sponsorship groups and to facilitate networking and local initiatives Possibly administer the refugee family reunification national guarantee fund

4. Job-Ready Pilot 13 Pilots should be launched to increase the number of refugees admitted to Canada by selecting (in addition to GARs and PSRs) a number of refugees in need of protection and resettlement who are job ready, to fill jobs otherwise filled by TFWs in the low skilled pilot. Pilots would require multi-stakeholder involvement of governments, employers, sponsors, SPOs in pilot locations (Nova Scotia? Alberta?) The Canada Orientation Abroad program should be expanded to include basic orientation to the labour market and language training.

… Job-Ready Pilot 14 Benefits: Increases humanitarian class without increasing number of total entrants to Canada (more refugees but fewer TFWs) Provides employment for job-ready refugees soon after arrival - minimizes economic support required Addresses concerns about Canada’s reliance on low-skilled temporary foreign workers Employers receive loyal, upwardly mobile workers who would not have to be replaced when temporary permits expire Refugee workers would be permanent residents, eligible for services and at less risk of exploitation

… Job-Ready Pilot - Benefits 15 Sponsors and settlement agencies can work with employers to support cultural integration in the workplace Resources used by government to process TFWs could be reallocated to the processing of refugees Canada would receive more permanent residents with a stake in building this country

5. Syrian Refugees 16 Focus on Syrian refugees in need of protection and resettlement for initial implementation of the proposed new strategy in light of: Urgent need of that refugee population UNHCR’s request for Canada’s increased involvement Public awareness of the situation in Syria and neighbouring countries

Cautions 17 Interconnectedness of components SAHs filling real need for family reunification will not redirect their efforts unless new RFRP established and working Definition of family will be important Need for protection/resettlement should continue to be the paramount selection criteria for all refugees selected abroad; job-readiness an additional factor for the pilot only Supports to employers and refugee employees will be important Challenges in managing focus on Syria Devil is in the details

Next steps 18 Feedback today and ongoing Meetings with CIC Next version of paper for circulation and comment Focus group with employers Possible presentation at SAHA and CCR meetings in Halifax in May Preliminary discussions with stakeholders in possible pilot sites

Conclusion 19 All feedback welcome Concept paper still at 20,000 feet Opportunity to transform Canada’s refugee resettlement policy and substantially increase the numbers of refugees resettled Civil society will have to lead on some aspects to make this work and partnership with government will be essential