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2022-2023 consultations on enhancing Express Entry through category-based selection – final report

Contents

Overview and context

Canada’s immigration system is critical to supporting our economic recovery and building a stronger Canada for all. With this in mind, Immigration, Refugees and Citizenship Canada (IRCC) is looking at ways to transform how we serve Canadians and clients, positioning our immigration system for the future. As part of this broader strategic immigration review, we are committed to making our immigration system more responsive to changing economic and labour market needs. We also want to build on the human capital approach that has been a hallmark of Canada’s successful economic immigration system. This includes enhancing Express Entry, the online system that IRCC uses to manage immigration applications from skilled workers, such as those with work experience in managerial, professional and technical or trades occupations.

IRCC is working to implement a new way of selecting candidates through Express Entry to better help meet specific economic goals. This selection will be done by creating “categories” – in other words, by selecting immigrants with particular qualifications such as education, work experience, or language skills to support identified economic needs and priorities. As part of this process, IRCC conducted consultations to inform immigration selection priorities and categories, with first implementation of category–based selection targeted for the spring of 2023.

The engagement process involved gathering feedback and suggestions from a broad range of stakeholders and the public. Participants could provide input through an online questionnaire or by sending a written submission to IRCC. Additionally, IRCC engaged with provincial and territorial representatives, and invited their written input on potential priorities, needs and categories. This request was part of broader ongoing federal–provincial/territorial collaboration to enhance the economic immigration system through the Forum of Ministers Responsible for Immigration (FMRI).

This consultation was a requirement of the Immigration and Refugee Protection Act (IRPA). Specifically, the authorities for category–based selection in Express Entry require that public consultations be held with provinces and territories, members of industry, unions, employers, workers, worker advocacy groups, settlement provider organizations and immigration researchers and practitioners, prior to the Minister establishing a new category.

The findings summarized in this report reflect the views of only those who participated in the consultations. Results should not be projected as representative of all IRCC stakeholders, or the Canadian population. Furthermore, percentages have been rounded to whole numbers, and as a result, totals may not add up to 100.

Consultation process

From November 29, 2022 to January 16, 2023, IRCC held a public consultation on enhancing Express Entry through category–based selection. A website page with background information on enhancements being considered was made public, which linked to an online questionnaire (see Annex A). As part of this process, a total of 2,960 organizations were also directly invited by email to provide feedback by completing the questionnaire or sending a written submission via email. IRCC received 263 responses through the online questionnaire, and 26 written submissions via email, for a total of 289 contributions. See Annex B for the list of all participating organizations.

Survey response distribution

Region of operation
Province/Territory Response % Count #
National organizationFootnote 1 16% 44
Atlantic Canada (New Brunswick, Nova Scotia, Prince Edward Island, Newfoundland and Labrador) 14% 37
Alberta 13% 34
British Columbia 17% 45
Manitoba and Saskatchewan 6% 18
Northern Canada (Yukon, Northwest Territories, Nunavut) 3% 8
Ontario 48% 130
Organization type
Focus of stakeholder organizationFootnote 2 Response % Count #
Academia, research foundation/institution, or think tank 6% 16
Business 19% 52
Chamber of commerce or board of trade 1% 4
Economic development organization 8% 21
Educational institution or school board 5% 14
Educational credential assessment organization 1% 4
Employment services 6% 17
Faith–based organization 0% 0
First Nations/Inuit/Métis organization <1% 1
Francophone or official language minority community organization 3% 9
Government – Federal <1% 1
Government – Municipal or regional administration 3% 7
Government – Provincial or territorial 2% 6
Government – Arm’s–length agency/Crown corporation 1% 2
Healthcare organization or other care service 3% 7
Immigration consultant or lawyer 9% 25
Industry or sector council 9% 25
Labour organization 1% 3
2SLGBTQI+ organization 0% 0
Member of a Local Immigration Partnership (LIP) or Réseau en immigration francophone (RIF) 5% 14
Multicultural or ethno–cultural association 1% 4
Not–for–profit/non–governmental organization 17% 47
Settlement or resettlement organization 8% 21
Other 11% 31
Does not represent an organization 11% 29

A number of stakeholders were also invited to attend a virtual information session that offered an overview of category–based selection in Express Entry, as well as IRCC’s proposed priorities and categories for implementation in 2023. Invitations were issued to the range of stakeholders referenced in the legislation, while prioritizing criteria such as national organizational mandate, geographic or multi–sectoral reach, sectors or occupations that primarily employ skilled workers, and representatives speaking on behalf of frequent users of Express Entry. These sessions, which were 60 minutes in length and conducted by departmental officials, were held in English and French on December 13 and December 15, 2022, and had a total of 25 participants for both.

Key findings

Proposed priorities and categories for category–based selection

Priority: Addressing chronic labour market shortages and positioning for the future

Possible category: Selecting candidates based on work experience in a particular occupation or sector

When asked about using category–based selection to fill chronic labour market shortages in particular occupations or sectors, participating stakeholders were generally supportive, and the majority provided specific suggestions. According to respondents, the following areas are experiencing the greatest needs: trades, transport and equipment operations and related occupations (including agriculture); occupations in healthcare; natural and applied sciences and related occupations (including IT); and occupations in hospitality. Generally, respondents spoke to needs in areas related to the focus of their organizations. Of the areas mentioned, trades, transport and equipment operations and related occupations was viewed as the sector experiencing the greatest needs by around 16% of respondents, which reflected the high proportion of respondents representing this sector. However, healthcare was mentioned as the sector experiencing the greatest needs irrespective of stakeholder type and organizational focus. Respondents spoke to the impacts of current shortages on businesses and communities, as well as Canada’s economic prosperity and global competitiveness. IRCC also heard recommendations, including from representatives of government and business, to more closely involve provinces and territories as well as employers, in the process of determining categories in order to account for their insights into labour market needs.

Possible category: Transitioning temporary foreign workers to permanent residence

Participating stakeholders were asked about whether increasing transitions of temporary foreign workers to permanent residence through Express Entry would help respond to current economic needs and priorities. An overwhelming majority (93%) noted that they expected a positive impact (strongly or somewhat positive). Stakeholders in Alberta were the most likely to see increasing temporary–to–permanent transitions through Express Entry as having a strongly positive impact (94%), with national organizations being the least likely to say the same (67%).

Question: To what extent would increasing the number of temporary foreign workers that transition to permanent residence through Express Entry help respond to current economic needs and priorities?

  Response %
Strongly positive impact 76%
Somewhat positive impact 17%
No impact 2%
Somewhat negative impact 1%
Strongly negative impact 0%
I don’t know 4%

Respondents emphasized that temporary workers will more easily integrate, due to their Canadian work experience and proficiency in Canada’s official languages. A number of participating employers raised additional considerations, indicating that there could be opportunities to avoid the burdensome process associated with recruiting temporary foreign workers. When commenting on how to design such a category, participants also voiced support for prioritizing workers already in Canada and those with recent Canadian work experience.

Possible category: Transitioning international student graduates to permanent residence

A similarly high proportion of respondents (89%) indicated support for transitioning more international student graduates to permanent residence as a way of responding to current economic needs.

Question: To what extent would increasing the number of international students that transition to permanent residence through Express Entry help respond to current economic needs and priorities?

  Response %
Strongly positive impact 69%
Somewhat positive impact 20%
No impact 7%
Somewhat negative impact 2%
Strongly negative impact <1%
I don’t know 2%

For those supportive of such a category, international student graduates were perceived as well–placed to work, integrate, and stay in Canada. The main reasons given by respondents were international student graduates’ familiarity with Canada’s official languages, as well as their possession of Canadian educational credentials and work experience. Nevertheless, there were divergences around the importance given to Canadian work experience, with a number of participating stakeholders suggesting that the focus be on the potential transferability of skills and experience rather than where they were acquired. Respondents from educational institutions and educational credential assessment organizations also raised concerns with prioritizing work experience given existing restrictions for working in Canada while on a study permit.

Priority: Supporting Francophone immigration and economic growth in Francophone minority communities

Possible category: Selecting Francophone and bilingual candidates

When asked whether the further promotion of Francophone immigration through Express Entry would help address economic needs or labour shortages, a slim majority of respondents (54%) indicated their agreement with this proposition. A considerable proportion indicated that either the category would have no impact (20%), or that they were unsure (22%).

Question: To what extent would the further promotion of Francophone immigration through Express Entry help address economic needs or labour shortages?

  Response %
Strongly positive impact 30%
Somewhat positive impact 24%
No impact 20%
Somewhat negative impact 3%
Strongly negative impact 1%
I don’t know 22%

An even smaller proportion of participating stakeholders from Alberta (42%) and British Columbia (36%) indicated that this category would have either strongly or somewhat positive impacts. Similarly, we heard from respondents that needs for French–speaking or bilingual workers vary across Canada. Those supportive of increasing Francophone immigration through Express Entry viewed category–based selection as a means of strengthening economic growth in Francophone minority communities. Respondents also pointed to opportunities to maintain the vitality of Francophone minority communities across Canada, as well as to ensure the provision of services to Francophones in their first language.

In your words – reactions to proposed priorities and categories

Some of the comments submitted by participants on proposed priorities and categories are shared below as examples, edited for length and clarity.

"77% of our members are affected by labour shortages, with 40% unable to fill vacancies to meet their existing operational needs and 19% unable to find the staff to grow their business. Another 17% have been able to attract or retain the staff they need but at a significantly higher cost, teetering at the point of affecting their business’ viability and competitiveness. (…) Immigration can help them address their staffing needs to keep their doors open and even grow."

Canadian Federation of Independent Business

"Temporary foreign workers are already responding to existing needs, and increasing transitions through Express Entry would facilitate better access to community and social supports."

Anonymized contribution

"Language proficiency is a pervasive factor in international students’ success, both inside and outside the classroom. There is also a strong link between international student graduates’ language proficiency and their capacity to integrate into Canadian society, participate in Canada’s job market actively, and contribute to its economy."

TESL (Teachers of English as a Second Language) Ontario

[translation]

"The increased promotion of Francophone immigration through a reform to Express Entry is essential to meeting the needs of Acadian and Francophone communities. In effect, such reform would help reverse the decline of Francophone Canada’s demographic weight, and re–establish the level of the 1971 census, when Francophones represented 6.6% of the population. This reform would also help fill the most important labour market shortages within the Canadian Francophonie."

Fédération des communautés francophones et acadienne (FCFA) du Canada

Other economic needs and considerations

Beyond expressing support for a category focused on labour market needs, participating stakeholders consistently emphasized that work experience in in–demand fields should be prioritized when designing categories. Respondents also raised a number of other considerations, such as the importance of working with provincial and territorial governments, as well as regulatory bodies, to help ensure skilled newcomers can practice in their intended professions. They also indicated that thresholds for official language proficiency should be set to align with job requirements. For instance, while immigration consultants and lawyers, as well as representatives of not–for–profit organizations, businesses and clients expressed concerns with high French proficiency requirements, others, such as those speaking on behalf of Francophone minority communities, were supportive of them, especially in contexts such as healthcare.

Many respondents also underlined that category–based selection should function as a complement to provincial and territorial selection efforts to meet regional labour market needs, and as a result generally saw more potential for the use of category–based selection to further advance Francophone immigration or to meet critical occupational shortages. Likewise, some cautioned against using category–based selection where other immigration levers (such as temporary immigration programs) would be more appropriate.

Participating stakeholders also raised a number of concerns related to Express Entry or economic immigration more generally. These included barriers and issues around foreign credential recognition, processing times for applicants, clarity around immigration processes and channels of communication with IRCC, as well as settlement supports for newcomers, especially for Francophone newcomers. Concerns with processing times frequently emerged from business representatives and individual respondents.

Improving equitable access to permanent residence

Participants were also asked to reflect on equity considerations. The most common suggestion for improving equitable access to opportunities for permanent residence, across stakeholder types, was to expand the focus of the Express Entry system, which is currently designed to manage immigration applications from skilled workers. Many also raised issues with the weighting of the Comprehensive Ranking System. For instance, respondents described the barriers the current age assessment presents for older candidates – many of whom may have more experience in their given fields – to receive an invitation to apply. A number of participating stakeholders shared concerns that Francophone talent from countries in Africa and the Caribbean face additional barriers when applying for permanent residence. Specifically, some described persistent racism and discrimination, pointing to examples such as high refusal rates and French testing that is biased towards European French speakers. Other issues raised related to family reunification, as well as some of the particular barriers faced by temporary foreign workers and international student graduates, such as their inability to access settlement supports.

In your words – feedback on other economic needs and considerations

A selection of comments submitted by participants on other needs and considerations is shared below, edited for length and clarity.

“A focus on essential skills helps build a more inclusive and equitable immigration system by expanding the eligibility to candidates in all training, education, experience, and responsibilities (TEER) categories. If eligibility for category–based selections is restricted to the candidates who meet the requirements of the economic programs managed under the Express Entry system, the system will continue to deny equitable access to critical migrant workers employed in jobs that are deemed ‘low–skilled’.”

World Education Services

“The healthcare sector faces labour shortages dating back from before the pandemic, even if Canada’s supply of healthcare workers has been increasing significantly in most major occupations. (…) While improving working conditions is necessary to address shortages in some areas, immigration can also help address gaps related to the lack of sufficient health workers in other areas. But it would not be helpful without addressing the challenges foreign–trained health professionals face to work in Canada.”

C.D. Howe Institute

[translation]

“Issues of racism seem to persist within IRCC with respect to international Francophone students from Africa. As long as these perceptions will continue to take hold, this will impact the attraction and retention of people from this continent, who constitute the main Francophone pool for the future.”

Association canadienne–française de l’Alberta

Learning from the process

Finally, we asked participants how their understanding of category–based selection had changed as a result of these consultations, whether the online platform facilitated their engagement, and what they liked or did not like about the process.

Most respondents (67%) reported an improvement in their understanding.

Question: How has your understanding of category–based selection changed by engaging in this exercise?

  Response %
Significantly improved 21%
Improved 46%
No change 29%
Decreased <1%
Significantly decreased <1%
I don’t know 3%

There were some noticeable differences among stakeholder types, with immigration consultants and lawyers much more likely to report no change in their understanding (57%), while 79% of those identifying as settlement or resettlement organizations and 76% of not–for–profit/non–governmental organizations described an improvement (significantly improved and improved). Respondents did, however, share a number of outstanding questions on topics related to category–based selection and to the economic immigration process more generally.

The majority of respondents (84%) also agreed that the online platform (i.e. online questionnaire platform) facilitated their participation. Most described the platform as easy to use, while some recommended adding features, such as the ability to save works–in–progress, to further improve usability.

In general, participating stakeholders appreciated being involved, while stressing that it would be important for IRCC to continue the dialogue with stakeholders on a broad range of issues. Similarly, there were recommendations to explore other consultation and engagement modalities that would better support such dialogue, such as focus groups, while also expanding the ability of diverse stakeholders to voice concerns and ideas. On the latter point, many also suggested greater outreach and promotion to reach a broader audience of potential participants.

Views were mixed, however, on the complexity and clarity of the information provided, and the questions posed. While many welcomed the detailed information that was shared, others wished content was more accessible. Those recommending that IRCC pursue other means of engagement also saw potential for expanding the number of information sessions developed to educate participants on category–based selection.

With respect to the questions asked, while a number of participating stakeholders appreciated the mix of open–ended and closed questions, many nevertheless saw the process as lengthy and demanding. A few explicitly welcomed the call for suggestions to increase equity and remove barriers in the immigration process.

In your words – input on the engagement process

These quotations, again edited for length and clarity, speak to some of the input received.

“Online survey is easy to use. The ability to fill in the online form and save, for further updates at a future time, would have been a nice feature.”

Anonymized contribution

“I appreciated the opportunity to submit a lengthy submission through email as part of this engagement process. I also appreciated that the process was open to anyone to provide their feedback. It was thorough and robust. I would love to see more of these public consultation efforts.”

SJP Immigration

“Engagement with key and significant stakeholders like labour organizations should be more meaningful and substantial than a survey. These organizations should have the opportunity to speak with the Government through virtual or in–person meetings as a part of the formal consultation process. In the future, we would like to participate in small focus groups and have the opportunity to submit our recommendations to shape surveys and the process.”

Canada’s Building Trades Unions

Next steps

IRCC appreciates the detailed input shared with us on immigration selection priorities and categories, as well as on Express Entry and the economic immigration system more broadly. These valuable insights will inform the implementation of category–based selection, as well as our thinking as IRCC considers further economic immigration enhancements.

In addition to publishing this summary of consultation findings, IRCC will report to Parliament on an annual basis on the categories for Express Entry that were chosen during the previous year and the selection process, including the rationale for choosing them; the instructions establishing a category; and the numbers of invitations to apply that are issued in support of a given category. The feedback shared around how we could improve the consultation process will shape future engagement on this topic with interested individuals, organizations, and groups, and inform the Department’s broader efforts to engage stakeholders and the public.

Annexes

Annex A: Online questionnaire

Tell us about yourself

Q1 – Please provide your organization’s name:

Q2 – Which of the following best describe(s) your organization? Please select all that apply.

Q3 – In which province or territory do you mainly operate? Please select all that apply.

Q3a – [IF Q3=QUEBEC] Does your organization have a national mandate, or is your mandate limited to the province of Québec?

Selecting candidates based on work experience in a particular occupation or sector

Q4 – Selecting on the basis of work experience in occupations or sectors experiencing chronic shortages could be a way to improve the responsiveness of the economic immigration system.

According to Statistics Canada, the most acute skilled shortages are found in construction (trades), administrative and support services, waste management and remediation services, health care and social assistance, and other services (with the exception of public administration, which is considered a separate industry as per the North American Industry Classification System).

Are these areas of concern to your organization? Are there other occupations or sectors experiencing chronic and long–term needs that you could identify, and for which permanent residence through Express Entry can complement in–Canada solutions (such as better wages and working conditions, skills upgrading and improving productivity)? For each identified occupation or sector, we would also appreciate considerations on numbers, including data. How might solutions incorporate equity considerations?

Transitioning international student graduates to permanent residence

Q5a – We are interested in your feedback on whether selecting international student graduates could help to fill labour market needs quickly. To what extent would increasing the number of international students that transition to permanent residence through Express Entry help respond to current economic needs and priorities?

Q5b – Please provide details on why increasing transitions to permanent residence through Express Entry would/would not help respond to existing needs. Are there any gaps that need to be addressed?

Q6 – What are the most important considerations to take into account when defining categories for selection for international students? In your response, you might wish to consider sectors or occupations with the most critical needs, recent work experience in Canada, or recent Canadian credentials from a designated learning institution, whether international students with limited to no Canadian work experience should be considered for eligibility, and any considerations with respect to numbers in this category, for example.

Q7 – Is there any other feedback you would like to provide about selecting international students in Express Entry?

Transitioning temporary foreign workers to permanent residence

Q8a – We are also proposing that selecting temporary foreign workers, with in–Canada experience, could address current chronic labour market needs. To what extent would increasing the number of temporary foreign workers that transition to permanent residence through Express Entry help respond to current economic needs and priorities?

Q8b – Recognizing existing provincial/territorial and federal programs that support the transition of temporary foreign workers to permanent residence, please provide details on why increasing transitions through Express Entry would/would not help respond to existing needs. Are there any gaps that need to be addressed?

Q9 – What are the most important considerations to take into account when defining categories for selection for temporary foreign workers? Are there needs in specific areas (in certain skillsets or sectors, such as healthcare or STEM) that could be met by increasing transitions of temporary foreign workers to permanent residence through Express Entry?

In your response, you may wish to comment on chronic and long–term needs that cannot be solved through in–Canada solutions, such as better wages and working conditions, or skills upgrading and improving productivity, including with capital and technological investment. You may also wish to comment on whether to focus on workers who are in–Canada versus those with recent experience who may/may not currently reside in the country, as well any implications from a diversity and anti–racism perspective. We would welcome any considerations with respect to numbers.

Q10 – Is there any other feedback you would like to provide about selecting temporary foreign workers in Express Entry?

Selecting Francophone and bilingual candidates

Q11a – We are interested in your views on whether a category designed to select on the basis of French language proficiency could help fill labour shortage demands in Francophone minority communities. To what extent would the further promotion of Francophone immigration through Express Entry help address economic needs or labour shortages?

Q11b – Please provide details on why the further promotion of Francophone immigration through Express Entry would/would not help respond to existing needs. Are there any gaps that need to be addressed?

Q12 – What are the most important considerations to take into account when defining categories for selection for Francophone immigration? In your response, you might wish to consider the level of proficiency in French, specific requirements for certain trades or professions, experience in sectors or occupations with the most critical needs, work experience in Canada, or Canadian educational credentials, for example. What are the implications of prioritizing in–Canada versus out–of–Canada French–speaking populations, including for diversity? We would also welcome your input on numbers for this priority, including relative to other selection priorities.

Q13 – Is there any other feedback you would like to provide about selecting Francophone and bilingual candidates in Express Entry?

Other priorities

Q14 – Beyond the proposed priorities, are there any other economic objectives that could be met via category–based selection under Express Entry?

Q15 – Are there any ways to improve equitable access to opportunities for permanent residence through Express Entry?

Learning from the process

Q16 – How has your understanding of category–based selection changed in engaging in this exercise? Please select one of the following options.

Q17 – Are there any aspects that remain unclear?

Q18 – The online platform facilitated my participation in this engagement process.

Q19 – What did you like about this engagement process?

Q20 – Was there anything you did not like about this engagement process?

Q21 – Do you have any changes or further recommendations that could support your participation in future years?

Q22a – Do you agree to have your written submission published in whole or in part in subsequent reports?

Q22b – [IF Q22a=YES] How would you like the material to be attributed in subsequent reports?

Annex B: Participating organizations

The list below includes all organizations that contributed to our consultations on category–based selection in Express Entry. IRCC has also received a number of anonymous and/or individual contributions that are not listed here for privacy reasons.

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