Snapshot of Credential Recognition Foreign credential recognition (FCR) in Canada and the labour market integration of immigrants became a major public policy issue in the 1990s. This was largely due to the release of a number of studies and reports exposing the difficulties of highly skilled newcomers in securing work in their fields despite a shortage of skilled workers. The need for better recognition of international academic credentials and prior work experience has been identified as a central immigration issue for Canada and significant resources and efforts have been put towards resolving FCR. Comprehensive programs and policies to address FCR and immigrant integration have been woven into many arenas in Canadian society – including the business community. While meaningful improvements have been made, immigrants continue to face significant barriers in the labour market and data shows that unemployment and underemployment are persistent problems for recent immigrants and cost the Canadian economy $2.4 billion yearly.i The current federal government has placed a great deal of emphasis on improving processes for the selection of skilled worker immigrants. CIC has focussed on language proficiency, credential assessment, priority occupations and arranged employment, and is considering requiring pre‐departure assessment for those applying under the federal skilled worker program. These changes, among others, are intended to avoid many of the problems caused by lack of FCR within Canada. At the same time, many immigrants arrive in Canada under other categories such as temporary workers, students, family reunification and refugees, and also possess advanced qualifications and skills. We should ensure that they also have the opportunity to have their qualifications recognized and are able to access employment and education opportunities in Canada. Accomplishments Over the past ten years, issues related to FCR have been at the forefront of public policy dialogue in Canada and great strides have been made to improve the systems which support the full utilization of immigrants’ qualifications. Frameworks for action among and within governments and licensing bodies, and a well‐
developed immigrant settlement sector in Canada work to support FCR and the education and career integration of immigrants have been developed. Two federal government departments have played a significant role in publicly promoting issues and solution building related to FCR. Citizenship and Immigration Canada (CIC) has promoted FCR through its Foreign Credential Referral Office [FCRO] and Human Resources and Social Development Canada (HRSDC) through its Foreign Credential Recognition Program [FCRP]). Since 2007, $27.6 million has been allocated to the FCRO for information dissemination and FCRP received $96.9 million since 2003 to provide support to 123 projects in 27 different occupations. According to the 2009 Report of the Auditor General of Canada to the House of Commons, FCR effort in government have been “consistent with federal priorities and has contributed to a greater understanding and awareness of foreign credential recognition issues among stakeholders.”ii Provincial and territorial leaders also supported the creation and development of HRSDC’s Pan‐Canadian Qualifications Framework for the Assessment and Recognition of Foreign Credentials in 2009. This Framework outlines how government envisions “a fair and competitive labour market environment where immigrants have the opportunity to fully use their education, skills and work experience for their benefit and for Canada’s collective prosperity”.iii In the 2009 Budget, the federal government committed $50‐
million over two years to support the development and the implementation of The Framework. Additionally, in 2009, Chapter 7 (Labour Mobility) in the Agreement on Internal Trade (AIT) was amended to Credential
Recognition
Milestones
in
Canada
1989, Access! Report of the Task Force on Access to Professions and Trades in Ontario released 1990, Canadian Information Centre for International Credentials (CICIC) established 1994, Canadian Association of Prior Learning Assessment (CAPLA) established 1995, Access to Professions and Trades unit created by Government of Ontario 1996‐1999, Provincial Assessment Committee (PAC) 1997, Lisbon Recognition Convention signed 1999, Bologna Declaration signed 1999, Alliance of Credential Evaluation Services of Canada (ACESC) created 2000, World Education Services begins operations in Ontario 2000, Formal mentoring programs for immigrants started 2001, Creating Access to Regulated Employment (CARE) for Nurses, the first bridging program in Ontario, begins operations 2001, Ontario Regulators for Access Consortium created improve qualifications recognition for interprovincial mobility of professionals in Canada. Because they are required to recognize the qualifications of individuals licensed outside their own jurisdiction (even though it is another Canadian jurisdiction), this change has created a framework that facilitates the recognition of qualifications earned outside of Canada. In 2006, Ontario passed Bill 124, the Fair Access to Regulated Professions Act to advance equitable access to 35 regulated professions in Ontario. As part of the Act, the Office of the Fairness Commissioner was established in 2008, with two access centers for regulated professions created: the Global Experience Ontario (GEO) centre and Health Force Ontario. Since The Office was opened, audits of regulatory bodies have demonstrated areas for improvement and a number of changes have been made. Similar fairness regulations have been passed in Manitoba, Quebec and Nova Scotia. To help prepare immigrants for success in Canada, services such as credential evaluation, skills and language assessments, job search and résumé building training, workplace orientation and counselling for options to bridge skills are critical. Such services and information provided in‐person and through many website portals and publications, has been tailored over the years to the evolving needs of immigrants. Many new and innovative programs and service delivery models have been developed to meet the changing needs of immigrant communities, including the Settlement Workers in Schools program and many of the Welcome Centres for Immigrants. In addition, the Canadian Immigrant Integration Program (CIIP) has shown the importance of effective information and preparation for immigrants at the pre‐arrival stage. New approaches to addressing FCR and meeting the needs of immigrants that have been particularly successful include bridging programs, mentorship and internship programs, and employer engagement initiatives. These approaches recognize the importance of connecting immigrants to employment and help provide access to Canadian experience, education and networks and are most effective when funding possibilities or payment is provided. Bridging programs are run by settlement organizations, government agencies and regulatory bodies and exist both independently or are integrated into college and university programs. The Ontario government led the way in developing these programs, but they are being replicated across the country. The Toronto Region Immigrant Employment Council (TRIEC) has played a critical role in engaging employers on immigrant integration, providing leadership and resources for other organizations, and engaging with the public. TRIEC has also helped underscore the importance of mentoring programs (Mentoring Partnership Program) and internship opportunities (Career Bridge) for immigrants. These have proven helpful in bringing employers on board with immigrant labour market integration and helping skilled immigrants get professional experience and access to job networks. Since TRIEC’s start, a number of similar organizations and programs have been developed across the country. 2
2003, Foreign Credential Recognition Program (FCRP) established 2003‐2011, Colleges Integrating Immigrants to Employment (CIITE) Project 2003, Toronto Region Immigrant Employment Council (TRIEC) established 2003, Career Bridge Internship programs for immigrants launched 2006, Adoption of the Fair Access to Regulated Professions Act in Ontario 2006, Canadian Immigrant Integration Project (CIIP) 2007, Foreign Credentials Referral Office (FCRO) established 2008, Office of the Ontario Fairness Commissioner opens 2009, Adoption of the Fair Registration Practices in Regulated Professions Act in Manitoba 2009, Changes to Chapter 7 (Labour Mobility) in the Agreement on Internal Trade (AIT) 2009, Pan‐Canadian Framework for the Assessment and Recognition of Foreign Qualifications agreement 2009, Pan Canadian Quality Standards in International Credential Recognition 2011, International Qualifications Network (IQN) launched The Colleges Integrating Immigrants to Employment (CIITE) initiative, launched in 2003 but which has now ended was a unique initiative which brought Ontario colleges together to better support credential and competency assessment and recognition, information provision and employment support to immigrants exploring college education. Through CIITE, steps were taken to provide advisement services and support better credential and qualifications recognition for immigrants seeking a college education. CIITE ended in 2011, although some colleges maintain aspects of the supports developed through the project for immigrants and international students. There has been progress over the past fifteen years to support FCR in Canada. The investment and the focus on creating fairer practices, providing better information and opportunities for immigrants as early as possible, and bringing employers, educational institutions and regulators into the solution building have had much success. Some of the initiatives in Canada have been modeled and replicated in other countries and many of those who access these programs are succeeding. However, skilled immigrants still face substantial barriers in the labour market and it takes them longer to integrate into the labour market than previous cohorts of immigrants. Canadian (Im)migration Changes Effectively addressing issues related to credential recognition for immigrants requires an understanding of the current immigration system and the profile of immigrants. Immigration policies have changed substantially in the past ten years, and subsequently the challenges and needs of immigrants have evolved. Despite much progress and success during this period, programs, policies and initiatives related to credential recognition and immigrant integration have not always kept pace. The focus of much of this change has been on economic immigration (as distinct from Family and Humanitarian immigrants). There is a major growth of Provincial Nominee Programs (PNPs) and temporary migration programs, and increased importance of two‐
step processes to gain permanent residence from within Canada through the Canadian Experience Class (CEC) and some PNPs. This has changed the composition of permanent residents in Canada as employers, academic institutions and provinces have more control over the selection of immigrants and there is less focus on the assessment and recognition of international academic credentials under the points system. Between 2002 and 2011, the number of economic immigrants grew by about 13%; however the composition of economic immigrants changed as principal applicants selected under the FSWP decreased by over 30%, the number of principal applicants coming under the PNP became nearly twenty three times larger and the CEC doubled its principal applicant pool since its launch in 2008. In 2011, approximately 250,000 permanent residents settled in Canada (including provincial nominees) and 190,000+ temporary workers and 98,000+ international students entered Canada.iv The top three source countries for Canada’s permanent residents are the Philippines (13%), India (11%) and China (11%). The UK, which is the fourth highest source country for permanent residents to Canada accounts for only 4% of all permanent residents.v Today’s immigrants are highly educated. In 2007, 37% of immigrants aged 25 to 54 had a university degree, compared with only 22% of their Canadian born counterparts. Twenty percent of immigrants have a graduate degree, compared with only 5% of 3
Canadian born individuals.vi For recent immigrants, arriving between 2001 and 2006, 51% had a university degree; compared with 20% of the Canadian born population and 28% for those immigrants who arrived in Canada before 2001.vii For Ontario and especially Toronto, where the majority of immigrants to Ontario continue to settle, the issue of effective labour market integration continues to be a pressing one; especially for those with post‐
secondary credentials. Toronto data shows that the unemployment rates for Canadian‐born and immigrants differ most between university graduates (3.8% vs. 6.5%).viii In addition, the underemployment of immigrants is persistent. In Toronto, recent immigrants with at least one university degree earn $25,000 to $67,000 less than Canadian‐born adults of the same age with the same educational characteristics.ix These facts point to a substantial disconnect between immigrants’ education and skill‐levels and their subsequent levels of employment and success. Credential Recognition The changing immigration context has brought new issues and needs for migrants related to credential assessment, recognition and their overall integration. For example, the ability to have ones qualifications recognized is increasingly important for migrants with temporary or conditional status in Canada whose ability to stay in Canada is tied to their capacity to gain skilled employment. Many services, funding, programs and supports are not currently available to those with this status. Research has identified a number of barriers for immigrants in the labour market, including lack of Canadian work experience, poor recognition of foreign credentials or work experience, language barriers, and employment discrimination.x Immigrants require their academic credentials to be assessed and recognized for a number of immediate purposes – employment, licensure, education and immigration – with the ultimate goal for most being appropriate skilled employment in Canada. Issues related to FCR vary by purpose and whether the immigrant is intending to enter a regulated or unregulated occupation in Canada. To date, much of the focus on FCR in Canada has been on regulated occupations. These account for 20% of Canadian jobs, but nearly 41% of university‐educated working‐age immigrants have studied in fields geared towards these occupations.xi Focusing attention on FCR in regulated occupations has been a national priority. While numerous challenges persist in regulated occupations, it appears that immigrants in Canada for four years who intended to work in regulated occupations are more likely to find employment related to their training or field of study than other immigrants.xii At the same time, about 40% of immigrants have difficulties in getting their credentials accepted and it appears that information gaps for immigrants, both before coming to Canada and after arriving, persist. Less than a quarter of immigrants had checked whether their credentials would be accepted before coming to Canada.xiii In addition, a recent survey in Peel showed that credential assessment was the second least reported method for job search strategy but one of the most successful methods. Immigrants who had their credentials recognized were more than twice as likely to be employed.xiv Canadian employers often lack the appropriate knowledge and experience required to assess credentials earned outside of Canada. A 1998 survey found that 40% of employers screened out international trained individuals because they did not know how to assess their education.xv In addition, a large proportion of employers are generally unaware of the function and role performed by assessment agencies. In unregulated professions, employers assess credentials and experience at their discretion.xvi A 2006 survey highlighted this point as only 46% of employers had ever verified international credentials and 80% could not name a credential assessment agency.xvii Research also shows that immigrants educated in Canada and 4
other English‐speaking countries are more likely to be employed in their field of study and that they are also more likely to earn more than those educated in non‐English speaking countries.xviii These findings indicate how information gaps and how credentials are understood and valued by employers can have a profound impact on skilled immigrants. In part related to difficulty accessing the labour market, immigrants are increasingly pursuing post secondary education in Canada. In 2007, enrolment rates in postsecondary education among university graduates age 25 to 54 was higher among recent immigrants than the Canadian‐born (14% versus 6%)xix and 70% of male immigrants who undertook post secondary education in Canada already had a university degree.xx While statistics show better labour market outcomes for immigrants who pursue post secondary education in Canada,xxi there has been little examination of FCR for immigrants returning to school in Canada. There are a great number of stakeholders involved in a complex system of credential assessment, recognition and advisement in Canada. More than 50 regulated occupations, 400 regulatory bodies, 7 independent assessment agencies, 427 recognized postsecondary education institutions and thousands of employers play a role in the evaluation and recognition of credentials.xxii This can create confusion, not only for immigrants who wish to navigate the labour market, but also for those who try and help them. Greater effort at providing accurate and clear information at the earliest stage of migration is critical, as is better coordination among stakeholders, so that immigrants do not have duplicate processes and procedures they undertake at different stages in the process. Moving the Agenda Along Despite the progress that has been made and the multiple players working on these issues, a number of barriers persist and indeed, new credential recognition issues have arisen. Much of the focus of FCR initiatives and funding has been in regulated occupations and there has been less effort on improving credential recognition in unregulated occupations, which account for nearly 80% of jobs in Canada. Immigrants’ trying to find jobs in unregulated sectors do not benefit from much of the progress and work that has been put towards improving information and transparency of credential recognition practices in many of the regulated occupations. Remaining FCR problem areas include:  Difficulties in having international education assessed and recognized for advanced standing in Canadian colleges and universities.  Poor credential recognition and underemployment for internationally‐educated workers currently employed in Canadian workplaces,  Limited information and support for alternate career pathways to help internationally‐educated individuals utilize their qualifications within their profession or in a related profession.  Lack of knowledge by immigrants about credential assessment and using a credential evaluation.  Lack of information among employers about education systems in other countries. Ideally, all stakeholders should be present in discussions, planning and implementing effective solution to address FCR and support the full integration of immigrants into Canadian society.xxiii 5
i
Reitz, 2001 Auditor General of Canada, 2009 iii
HRSDC, 2009 iv
CIC, 2011 v
CIC, 2010 vi
Statistics Canada, 2007 vii
Statistics Canada, 2006 viii
TIEDI, 2011, Report #22 ix
TIEDI, 2010, Report #8 x
Zietsma, 2007: 13 xi
Zietsma, 2010 xii
TIEDI, 2010, Report #5 xiii
TIEDI, 2010, Report #15 xiv
Region of Peel, 2009 xv
Price Waterhouse, 1998 xvi
Riffel, 2006: 4 xvii
Lopes, 2004 xviii
TIEDI, 2010, Report #14 xix
Gilmore and Le Petit, 2008 xx
Rollin, 2011 xxi
Gilmore and Le Petit, 2008 xxii
Johnson, 2008 ii
*** For a list of works cited, please e‐mail Sophia (slowe@wes.org) 6