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Foreign Credential Recognition Program: Evaluation Report

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List of abbreviations
ACOTRO
Association of Canadian Occupational Therapy Regulatory Organizations
ACLS
Association of Canada Lands Surveyors
CAASPR
Canadian Alliance of Audiology and Speech-Language Pathology Regulators
COPR
Canadian Organization of Paramedic Regulators
CSGC
Common System for Grants and Contributions
CWE
Canadian Work Experience
ESDC
Employment and Social Development Canada
FCR
Foreign Credential Recognition
FCRP
Foreign Credential Recognition Program
FPT
Federal-Provincial-Territorial
GBA plus
Gender-Based Analysis Plus
GCInfoBase
Government of Canada Information Base
IENs
Internationally Educated Nurses
IEHP
Internationally Educated Health Professional
IRCC
Immigration, Refugees and Citizenship Canada
ISANS
Immigrant Services Association of Nova Scotia
ITPs
Internationally Trained Professionals
MQRWG
Mobility and Qualification Recognition Working Group
NNAS
National Nursing Assessment Service
PIP
Performance Information Profile
PT
Provinces and territories
RNs
Registered Nurses

List of figures

List of tables

1. Introduction

This report presents the findings of the evaluation of the Foreign Credential Recognition Program (FCRP), hereafter referred to as the Program, administered by Employment and Social Development Canada (ESDC). The purpose of the Program is to help skilled newcomers participate fully in Canada's labour market and society.

The Program seeks to contribute to the Government of Canada's priorities of attracting and retaining the best talent, including those with international education, training and work experience, and ensuring that all Canadians can reach their full potential. The objectives of the Program are to develop and strengthen Canada's foreign credential assessment and recognition capacity. The Program also seeks to contribute to improve labour market integration outcomes of skilled newcomers and enhance labour mobility in targeted occupations and sectors.

The evaluation covers the period from April 2019 to March 2024 and was completed in compliance with the Financial Administration Act and the 2016 Treasury Board Policy on Results.

The Program was previously evaluated in June 2020. It consisted of a summative evaluation focused on assessing how the support provided contributed to improving foreign credential recognition processes, including direct individual support components. Building on insights from the previous evaluation, this evaluation focuses on assessing the program's evolution, including emerging priorities such as increased support for internationally educated health professionals (IEHPs). It uses an outcome-focused approach to examine how well the Program achieves its objectives across the three main areas:

This evaluation employs a mixed-methods approach. It integrates evidence from multiple sources including:

A COVID-19 lens is adopted to evaluate how the program pivoted in response to the pandemic. Details on the methodology and its limitations are outlined in Annex C.

A list of evaluation questions and sub-questions along with their corresponding lines of evidence can also be found in Annex C.

2. Executive Summary

2.1 Key Findings

  1. There is an ongoing need in Canada for a federal role in the FCR space, in helping address systemic labour shortages, enhancing collaboration among jurisdictions, and providing financial, employment and some pre-arrival support to internationally trained professionals.
  2. The Program's convening efforts have improved communication among provinces and territories by facilitating the sharing of resources and strategies, particularly in addressing healthcare workforce shortages. There is, however, a need for improved collaboration.
  3. While there is room for improvement, the share of participants completing the credential recognition process and securing employment in their field of expertise following the intervention has been increasing.
  4. Foreign Credential Loans and Canadian Work Experience projects have reduced barriers to employment for participating internationally trained professionals.
  5. System improvement projects have advanced more consistent and transparent credential recognition processes with national reach, but evidence of their impact on timeliness and overall effectiveness remains limited.
  6. The Skilled Newcomer Training Incentive Bond Pilot appears as a promising way to incentivize hiring skilled newcomers. Final takeaways will be clear after completion in 2025.
  7. Jurisdictional differences, varying licensure processes, and complex regulatory requirements continue to hinder progress.

2.2 Recommendations

The following recommendations were developed based on key findings and evidence gathered during the evaluation. Each recommendation is mapped to the corresponding key findings to ensure transparency and traceability of the evidence base.

Recommendation 1: Expand complementary support for pre-arrival services for newcomers by providing more support for initiatives facilitating centralized and accessible pre-arrival resources. Recognizing IRCC as the primary lead for pre-arrival initiatives, this could be achieved through a collaborative effort with IRCC.

Alignment of findings to recommendation 1: The FCRP already provides some complementary pre-arrival services to internationally trained professionals. These pre-arrival services help them understand credential recognition requirements, licensing processes, and employment pathways. These services also reduce delays and facilitate faster workforce integration (Key Finding 1.3). Self-assessment tools and competency evaluations, such as those provided by Canadian Organization of Paramedic Regulators (COPR) and Association of Canada Lands Surveyors (ACLS), enhance newcomers' preparedness before arrival (Key Finding 1.3). Key informants emphasized the need for more centralized and accessible pre-arrival resources, including information on licensing requirements, language proficiency expectations, and funding supports (Key Finding 1.3).

Recommendation 2: The program should continue providing and enhancing support for alternative pathways for licensure. Examples include:

Alignment of findings to recommendation 2: The Program has taken steps to support alternative pathways for licensure through initiatives like the Government of New Brunswick Bridging Program and the National Nursing Assessment Service (NNAS). These initiatives streamline credential recognition for internationally educated health professionals (Key Finding 1.1). Provisional licensing and bridging initiatives are key strategies supported by the program, with efforts to improve coordination between the immigration system and regulatory bodies to clarify licensure requirements for newcomers (Key Finding 1.2). The pandemic underscored the need for such alternatives, as COVID-19 disruptions delayed credential recognition and increased demand for expedited pathways (Key Finding 1.1). System improvement projects funded by the Program, such as competency-based licensure documents in Nova Scotia and the standardization efforts of the NNAS, have demonstrated success in streamlining licensure while reducing costs and processing times (Key Finding 5.1). However, regulatory barriers remain, including varying licensure processes and complex regulatory requirements. These barriers hinder newcomers' ability to obtain credentials efficiently (Key Finding 7). Bridging initiatives have been particularly effective. Projects like the Internationally Educated Health Professional (IEHP) Pathway to Employment Program provide mentorship, job readiness training, and licensing guidance to support internationally educated professionals (Key Finding 1.3).

Recommendation 3: Strengthen Federal-Provincial-Territorial (FPT) governance in Foreign Credential Recognition (FCR) by enhancing collaboration with provinces and territories.

Alignment of findings to recommendation 3: The Program plays a role in addressing systemic labour shortages by supporting credential recognition and workforce integration for internationally educated professionals. This is particularly the case in healthcare, where vacancies remain high. Strengthening FPT governance may help coordinate efforts to streamline licensure and ensure better alignment between labour market needs and credentialing processes (Key Finding 1.1).

The program has fostered interjurisdictional collaboration, with key informants emphasizing the need for enhanced coordination between immigration systems and regulatory bodies. Improving FPT governance may enable clearer communication of licensing requirements and professional standards to skilled newcomers, reducing delays in labour market integration (Key Finding 1.2).

Some focus group participants noted that while the FPT forum has improved communication among provinces and territories, the forum has had a limited impact on broader collaboration. Enhancing governance structures will provide clearer mandates, strategic direction, consistent coordination mechanisms, and accountability to drive collective action in foreign credential recognition.

3. Program Background

The Foreign Credential Recognition Program (FCRP) is a contributions program that helps internationally trained professionals join the labour market. It provides funding to provinces and territories, regulatory authorities and other organizations to:

The Program aims to support collaboration among provinces, territories, and other partners. The goal is to improve the mobility of Canadian workers in regulated occupations as they seek jobs across Canada. This process is called labour mobility.

The objectives of the FCRP are to:

The program tracks and collects information on several indicators based on their logic model (Annex A). A crosswalk between Program Output, Outcome and Associated Performance Indicators outlined in the PIP can be found in Annex B.

3.1 The Complex Ecosystem of Foreign Credential Recognition

About 20% of jobs in Canada are regulated occupations (for example, doctors, nurses, engineers, plumbers). For these occupations, the law requires that an individual obtain a certificate, licence, and/or register to use the reserved title for the occupation or to obtain the exclusive right to practice the occupation. Internationally trained professionals (ITPs) must have their foreign credentials verified. ITPs must also apply for licensure. Only then can they practice or use the title for their regulated occupation. FCR aims to protect the health and safety of Canadians and verify that the knowledge and skills are comparable to Canadian standards.

FCR is a provincial or territorial responsibility often delegated to regulatory authorities through legislation. Each jurisdiction establishes education, training and licensing standards and these vary from one jurisdiction to another. In most cases, provinces and territories further delegate this authority in legislation to regulatory authorities. There are approximately 600 regulatory authorities in Canada. The number of regulated occupations and compulsory trades varies widely. It can be anywhere from 65 to 275 per jurisdiction.

Both FCR and licensure are provincial or territorial responsibilities. However, the Government of Canada has an interest in advancing labour market efficiency to support productivity and economic growth.

As the federal lead for FCR, the Program:

The Program also aims to play a convening role to foster multilateral collaboration on FCR. Other federal departments also play an important role in FCR. IRCC leads immigration, pre-arrival and settlement programming. Health Canada is the federal lead in health human resources.

Program activities at the federal level need to be considered in a context where FCR is a shared responsibility. FCR and licensure are primarily provincial/territorial responsibilities, often delegated to regulatory authorities. Addressing FCR challenges requires collaboration across federal, provincial, and territorial governments. Collaboration is also required among other key stakeholders in the FCR ecosystem, including regulatory authorities, Fairness CommissionersFootnote 1, national professional associations, educational institutions, third party service providers, and employers.

Figure 1 below illustrates the FCRP ecosystem. It highlights key stakeholders, roles and their connections. A brief explanation of each stakeholder is available in Annex D. The objective of this figure is to provide readers with a high-level understanding of FCRP's position, role, and key challenges (for example, no direct access to end-users) within the shared ecosystem. However, it does not offer an exhaustive depiction of all stakeholders and their complex roles. This context may also help ensure that the results are understood correctly within the program landscape.

Figure 1: FCRP ecosystem: key stakeholders, roles, and connections
Figure 1: FCRP ecosystem: key stakeholders, roles, and connections - Text description follows
Figure 1: Text description

This infographic illustrates the network of organizations involved in the journey of Foreign Credential Recognition (FCR) applicants toward licensure and employment in Canada. At the center are key government bodies—Provincial/Territorial Governments, the Federal Government (including the FCR Program, IRCC, and Health Canada), and Registration Oversight/Fairness Commissioners. These central entities are connected to various stakeholders such as regulators, national professional associations, educational institutions (including bridging programs and training providers), unions, employers, internationally trained professionals, and third-party service providers. The diagram highlights how these groups interact through funding, oversight, and partnerships to support FCR applicants.

3.2 Program Expenditure

The Program operates through a contribution funding mechanism, providing project funding to provinces, territories, regulatory bodies, and other organizationsFootnote 2. These funds support projects to improve FCR systems and processes and to enhance labour mobility in targeted occupations and sectors. Additionally, the program offers direct supports to skilled newcomers through recipient organizations. These organizations provide Canadian work experience, provide loans, and support services. The Program also plays a coordination role by fostering collaboration among stakeholders to advance FCR and share best practices.

The program's budget has increased over the evaluation period. New investments were provided through Fall Economic Statement 2020 ($15 million in the fiscal year 2021 to 2022) and Budget 2022 ($115 million over five years starting in the fiscal year 2022 to 2023 and $30 million ongoing). In the fiscal yearFootnote 3 2019 to 2020, actual program expenditures were approximately $23.71 million. In the fiscal year 2023 to 2024, expenditures increased to about $38.43 million.

Figure 2: The program's expenditures (in million CAD) increased during the evaluation period
Figure 2: The program's expenditures (in million CAD) increased during the evaluation period - Text description follows
Figure 2: Text description
Fiscal Year Planned Expenditures (in million CAD) Actual Expenditures (in million CAD)
2019 to 2020 26.66 23.71
2020 to 2021 26.65 21.66
2021 to 2022 26.83 27.21
2022 to 2023 26.76 37.64
2023 to 2024 45.33 38.43

3.3 Program activities over the Evaluation Period

As part of Program description, this sub-section presents PIP indicator data related to the program activities over the evaluation period, where available.

Increased Coordination Efforts: The number of meetings and events supporting national coordination on FCR exceeded targets by 2 meetings in the fiscal year 2020 to 2021 (16 versus 14, +14%) and 5 meetings in the fiscal year 2021 to 2022 (19 versus 14, + 36%). However, the number of meetings was below targets in the fiscal year 2022 to 2023 by 2 meetings (12 versus 14, -14%) and in 2023 to 2024 by 5 meetings (9 versus 14, -36%).

Figure 3: Number of meetings and events that support national coordination and information sharing related to FCR
Figure 3: Number of meetings and events that support national coordination and information sharing related to FCR - Text description follows
Figure 3: Text description
Fiscal Year Target Actual
2019 to 2020 14 14
2020 to 2021 14 16
2021 to 2022 14 19
2022 to 2023 14 12
2023 to 2024 14 9
  • Source: FCRP Performance Information Profile, 2022, Approved Version (Updated) and 2024 Draft Version

Expansion of New Projects: The number of new projects implemented exceeded targets by 9 projects in the fiscal year 2020 to 2021 (19 versus 10, +90%) and 7 projects in the fiscal year 2021 to 2022 (17 versus 10, +70%). This dropped to 1 project below the target in the fiscal year 2022 to 2023 (9 versus 10, -10%) but increased to 6 projects above target in the fiscal year 2023 to 2024 (16 versus 10, +60%).

Figure 4: Number of new projects implemented
Figure 4: Number of new projects implemented - Text description follows
Figure 4: Text description
Fiscal Year Target Actual
2019 to 2020 10 10
2020 to 2021 10 19
2021 to 2022 10 17
2022 to 2023 10 9
2023 to 2024 10 16
  • Source: FCRP Performance Information Profile, 2022, Approved Version (Updated) and 2024 Draft Version

Growth in Active Projects: In the fiscal year 2020 to 2021, active projects surpassed the target by 16 (56 versus 40, +40%). This increased further in the fiscal year 2021 to 2022 and in the fiscal year of 2022 to 2023 with 24 more projects than targeted (64 versus 40, +60%). The highest growth occurred in the fiscal year 2023 to 2024, where active projects exceeded the target by 34 (74 versus 40, +85%).

Figure 5: Number of active projects
Figure 5: Number of active projects - Text description follows
Figure 5: Text description
Fiscal Year Target Actual
2019 to 2020 40 39
2020 to 2021 40 56
2021 to 2022 40 64
2022 to 2023 40 64
2023 to 2024 40 74
  • Source: FCRP Performance Information Profile, 2022, Approved Version (Updated) and 2024 Draft Version

FCR Loan Support Exceeded Expectations: The number of skilled newcomers receiving support through FCR loans significantly exceeded targets by 3,192 newcomers in the fiscal year 2020 to 2021 (5,192 versus 2,000, +160%) and 4,395 newcomers in the fiscal year 2021 to 2022 (6,395 versus 2,000, +220%). Participation dropped 614 below target in the fiscal year 2022 to 2023Footnote 5 (1,386 versus 2,000, -31%) as new contribution agreements were under negotiation but climbed 722 above target in the fiscal year 2023 to 2024 (2,722 versus 2,000, +36%).

Figure 6: Total number of skilled newcomers receiving support services from the FCR loans projects
Figure 6: Total number of skilled newcomers receiving support services from the FCR loans projects - Text description follows
Figure 6: Text description
Fiscal Year Target Actual
2019 to 2020 2000 4347
2020 to 2021 2000 5192
2021 to 2022 2000 6395
2022 to 2023 2000 1386
2023 to 2024 2000 2722
  • Source: FCRP Performance Information Profile, 2022, Approved Version (Updated) and 2024 Draft Version

Loan Issuance Below Target: The number of loans issued to skilled newcomers consistently fell short of the 1,000 targets. In the fiscal year 2019 to 2020, 534 loans were issued (466 below target, -47%) and in the fiscal year 2020 to 2021, 504 loans were issued (496 below target, -50%). In the fiscal year 2021 to 2022, 530 loans were issued (470 below target, -47%) and in the fiscal year 2022 to 2023, only 257 loans were issued (743 below target, -74%), before slightly recovering in the fiscal year 2023 to 2024 with 507 loans issued (493 below target, -49%).

Figure 7: Total numbers of loans issued to skilled newcomers
Figure 7: Total numbers of loans issued to skilled newcomers - Text description follows
Figure 7: Text description
Fiscal Year Target Actual
2019 to 2020 1000 534
2020 to 2021 1000 504
2021 to 2022 1000 530
2022 to 2023 1000 257
2023 to 2024 1000 507
  • Source: FCRP Performance Information Profile, 2022, Approved Version (Updated) and 2024 Draft Version

Employment Support Participation IncreasedFootnote 6: Employment support projects exceeded targets. Participation peaked at 3,617 participants in the fiscal year 2022 to 2023, surpassing the 1,800 target by 1,817 participants (+101%). In the fiscal year 2021 to 2022, participation exceeded the target by 505 participants (2,305 versus 1,800, +28%). In the fiscal year 2023 to 2024, participation remained above target by 19 participants (1,819 versus 1,800, +1%). Employment supports provided include facilitation of Canadian work experience via work placements and wage subsidies, as well as training, mentoring, and coaching.

Figure 8: Total number of skilled newcomers participating in employment support projects (excluding FCR loans)
Figure 8: Total number of skilled newcomers participating in employment support projects (excluding FCR loans) - Text description follows
Figure 8: Text description
Fiscal Year Target Actual
2021-2022 1800 2305
2022-2023 1800 3617
2023-2024 1800 1819
  • Source: FCRP Performance Information Profile, 2022, Approved Version (Updated) and 2024 Draft Version

4. Key Evaluation Findings

This evaluation examines program relevance and the recent increased focus on internationally educated health professionals. It also examines federal/provincial/territorial relations, and project outcomes as they relate to employment outcomes for skilled newcomers.

Part A: Program Relevance

Key Finding 1

There is an ongoing need in Canada for a federal role in the FCR space, in helping address systemic labour shortages, enhancing collaboration among jurisdictions, and providing financial, employment and some pre-arrival support to internationally trained professionals.

1.1 The Program addresses systemic labour shortages, particularly in healthcare

Healthcare vacancies in Canada grew by 59.9% between 2019 and 2021. This increase was driven by an aging population and pandemic-related pressures (Statistics Canada, 2021). The overall unemployment rate declined from 9.5% in July 2020 (Trading Economics, 2024) to 5.8% by December 2023 (Statistics Canada, 2023b). However, the healthcare sector was an exception, with job vacancies consistently outpacing available workers (Statistics Canada, 2023d; Canadian Institute for Health Information, 2023).

Several key informants (7/17) emphasized the necessity of skilled newcomer recruitment to sustain labour force growth. This was given in the context that immigration was expected to account for 100% of labour force growth due to declining birth rates and increasing retirements.

The program seeks to address these shortages by supporting improvements to foreign credential recognition and supporting labour market integration of internationally educated health professionals (IEHPs). Of the 61 FCRP-funded projects during the evaluation period, 41% (25 projects) targeted healthcare occupations. These projects prioritized high-demand roles such as nurses, physicians, paramedics, and medical laboratory technologists. Key initiatives include:

Both have played a crucial role in supporting IEHPs by streamlining credential recognition and improving access to the Canadian healthcare workforce.

National Nursing Assessment Service - On-going Success Story

Established in 2012, the National Nursing Assessment Service (NNAS) has emerged as a transformative force in Canada's healthcare landscape. This service plays a vital role in addressing the country's growing demand for qualified nursing professionals. Since 2012, strategic support and funding from the Foreign Credential Recognition Program (FCRP) enabled NNAS to significantly advance its mission to streamline and improve the assessment process for internationally educated nurses (IENs) seeking to practice in Canada. As a result, thousands of IENs from around the world have been able to begin their professional journey in Canada with greater efficiency and confidence.

The collaboration between NNAS and the FCRP serves as an example of how targeted investments in credential recognition can unlock human potential, drive systemic change, and strengthen critical sectors of the economy.

The Fall Economic Statement 2020 allocated $15 million to the Foreign Credential Recognition Program (FCRP) for the fiscal year 2021 to 2022. This was followed by $115 million over five years and $30 million ongoing in Budget 2022, prioritizing labour market integration for Internationally Educated Health Professionals (IEHPs)Footnote 7. Over the evaluation period, $121.4 million was invested in 39 health sector projects. $88.7 million of these funds were allocated to 16 projects in the fiscal year 2023 to 2024, aimed at supporting 6,600 IEHPs through employment programs and several thousand more through systemic improvements.

Program representatives (N=3) reported that FCR Loans provided nearly $17 million to over 1,900 skilled newcomers between the fiscal years of 2018 to 2019 and 2022 to 2023. Two-thirds of these skilled newcomers work in healthcare with loans assisting with licensure and training costs. From April 2021 to March 2024, over 7,700 Internationally Trained Professionals (ITPs) have participated in Canadian Work Experience (CWE) projects. The majority of these participations were in healthcare, reinforcing the Program's strategic response to labour shortages.

During the evaluation period, 41% of funded projects focused on integrating skilled newcomers into healthcare roles, aligning with sector needs. All key informants delivering healthcare-specific projects (7/7) confirmed this alignment. Some stakeholders highlighted the Program's ability to identify high-demand occupations and collaborate with entities like Health Canada to prioritize funding.

The majority (16/17) of key informants reported that program funded projects effectively support skilled newcomers. Most (14/16) emphasized that these projects facilitate community connections and career planning, aiding newcomers in navigating the labour market. Some (7/16) highlighted the importance of bridging programs and manageable loans in credential recognition and workforce integration. A few (4/16) noted that mental wellness support was a key aspect of these initiatives. Others (2/16) stressed the need for language assistance and support in completing the FCR process. Among health sector employers surveyed, 40% indicated that projects funded by the Program aligned with sector needs.

The COVID-19 pandemic exacerbated the challenges relating to shortages of health professionals. The pandemic disrupted some FCRP-funded projects due to administrative backlogs, reduced employer capacity, and shifting regulatory requirements. Some organizations, such as the Progress Career Planning Institute, had to move IENs training online. Other projects including the Government of Saskatchewan's Immigration and Career Training project faced setbacks as employers scaled back operations and halted work placements.

Despite these disruptions, FCRP funded organizations adapted to sustain service delivery, with many leveraging hybrid models and virtual platforms. Programs like IEHP Pathway to Employment (IEHP-PEP) and YWCA Health Connect expanded mentorship and job readiness training. Job Skills and the West Joint Electrical Training Society pivoted to career counseling and transferrable skills development.

These adaptations helped mitigate barriers caused by the pandemic, ensuring continued support for skilled newcomers. However, the crisis exposed deep-rooted inefficiencies in Canada's credential recognition system. These inefficiencies reinforce the urgent need for more streamlined, consistent, and responsive regulatory processes to facilitate faster workforce integration (ActiveHistory, 2021).

1.2 The Program fosters collaboration and addresses interjurisdictional challenges

Some key informants from the FPT Multilateral on Foreign Credential Recognition Forum (N=6/14) felt that the federal government should play a central role in collaborating with provinces and territories on shared foreign credential recognition initiatives. They emphasized the need for better coordination between the immigration system and regulatory bodies to communicate to prospective immigrants and skilled newcomers the specific requirements for working in various occupations in Canada.

A majority of key informants (e.g., funding recipients, program representatives and FCR expert) (N=11/17) highlighted the Program's role in fostering partnerships among provinces, territories, and regulatory bodies. These partnerships could help align credential recognition practices and improve outcomes.

Key informants reported that the Program is effective in convening stakeholders and partners to share best practices and information regarding foreign credential recognition. The Program also provides project funding to support the integration of skilled newcomers into the Canadian labour force. Key informants including program representatives, project recipients, and one FCR expert recommended continued work in this space at a higher systems-level to enhance international and national labour mobility, and foster harmonization and alignment of practices. It was recommended that the federal government work with provinces and territories and regulatory bodies to simplify the foreign credential recognition processes across occupations.

1.3 The Program offers some complementary pre-arrival supports to internationally trained professionals, while key informants emphasized the need for more

The program supports pre-arrival services by funding initiatives that help skilled newcomers understand credential recognition requirements, licensing processes, and employment pathways before arriving in Canada. These initiatives aim to reduce delays in credential recognition and job placement. This way, newcomers can enter their fields more quickly. Bow Valley College's IEHP Pathway to Employment Program is an example of a pre-arrival support initiative. The project provides mentorship, job readiness training, and career pathway guidance to IEHPs.

A review of final project progress reports during the evaluation period found that self-assessment tools and pre-arrival competency evaluations were important. These tools, such as those provided by the Canadian Organization of Paramedic Regulators (COPR) and the Association of Canada Lands Surveyors (ACLS), helped internationally trained professionals assess their qualifications before immigrating. This support improved their preparedness for licensing and minimized delays in credential recognition upon arrival.

Some key informants (for example, funding recipients, program representatives and FCR expert) (N=7/17) emphasized the importance of systems-level pre-arrival supports to expedite the FCR process and enhance skilled newcomers' readiness for the Canadian labour market. They highlighted the need for centralized and accessible resources that provide clear and comprehensive information before newcomers arrive in Canada. These resources should include:

Table 1: Pre-arrival support: existing versus suggested improvement by key stakeholders
Pre-Arrival Initiatives that FCRP currently supports Suggestion from Key Stakeholders
The program funds pre-arrival initiatives to help skilled newcomers navigate credential recognition, licensing, and employment pathways before arriving in Canada. Support for centralized & Accessible Resources, focusing on:
  • Licensing requirements
  • Language Proficiency Guidance
  • Comprehensive career transition Pathways
  • Comprehensive funding options information
  • Better system level co-ordination
Table 1: Text description

This table is divided into two columns.

The first column, titled “Pre-Arrival Initiatives that FCRP currently supports”, explains that the Foreign Credential Recognition Program (FCRP) funds initiatives to help skilled newcomers navigate credential recognition, licensing, and employment pathways before arriving in Canada.

The second column, titled “Suggestion from Key Stakeholders”, outlines recommendations for centralized and accessible resources. These include support focused on licensing requirements, language proficiency guidance, comprehensive career transition pathways, comprehensive funding options information and better system level co-ordination.

IRCC is the lead in pre-arrival and settlement programming. Health Canada is the federal lead in health human resources. In that context, ESDC coordinates and works closely with IRCC and Health Canada to advance shared priorities and ensure complementarity. ESDC, IRCC and Health Canada meet regularly to consult and share information on:

This approach helps facilitate alignment of program priorities and complementarity of funding. Additionally, key informants stressed the value of outlining career pathways that present alternative employment opportunities aligned with newcomers' skills and qualifications. This ensures newcomers have a clear understanding of available options upon arrival.

Part B: FPT Relations

Key Finding 2

The Program's convening efforts have improved communication among provinces and territories by facilitating the sharing of resources and strategies. This was particularly the case in addressing healthcare workforce shortages. There is, however, a need for improved collaboration.

Convened by the Program, the FPT Multilateral Forum is a coalition of willing Provinces and Territories (PTs) to share information and best practices on foreign credential recognition. This supports greater collaboration between federal, provincial and territorial governments with a view to improve foreign credential recognition across Canada.

Over the evaluation period, the Program has held contribution agreements with the Governments of Alberta, Saskatchewan, Quebec, New Brunswick, Price Edward Island, Newfoundland and Labrador, Nova Scotia, and Yukon for specific projects. While this includes most PTs, incorporating projects from all PTs, especially larger ones like British Columbia and Ontario, could significantly enhance the Program's impact. The Program's ability to support PTs depends on their willingness to submit project proposals and the Program's evaluation of those proposals.

Some focus group discussants (N=5/14) noted that the forum has improved communication. However, they did not see a significant impact on broader collaboration. These key informants felt there could be greater involvement from provinces and territories in establishing priorities for the forum. It was also suggested that more structured information be provided to forum members (for example, jurisdictional scans, participatory agreements, terms of reference). One key informant provided the example that there is no guidance or information anywhere on how to expedite licensure pathways. There was a suggestion by one forum member to explore opportunities to include non-health occupations more in the forum discussions (for example, engineering, teachers, and skilled trades).

"I think the last couple of years, particularly the post pandemic era, led to a lot of experimentation to deal with FCR challenges and in that manner, I think the forum helped us to stay on top of what's happening in other jurisdictions…"

-Key informant respondent

A majority (N=10/14) of the focus group discussants noted several barriers to collaboration, including:

Part C: Program Contribution in Supporting Skilled Newcomers in Labour Market Participation

Key Finding 3

While there is room for improvement, the share of participants completing the credential recognition process and securing employment in their field of expertise following the intervention has been increasing.

A number of factors other than the Program are affecting participants' ability to complete a credential recognition process. These include the newcomer's country of origin, immigration category, level of education, prior work experiences in Canada and the occupation. The evaluation points to some progress in helping skilled newcomers achieve credential recognition and secure employment in Canada.

Program PIP data indicates that the proportion of participants in FCR loan projects who successfully completed their foreign credential recognition has increased over the evaluation period, with a cumulative target of 25% by January 1st, 2026, to March 31st, 2026. In the fiscal year 2023 to 2024, the cumulative completion rate was 18.7% when considering both loan recipients (as shown in Figure 9) and those who only received support services (as shown in Figure 6). However, when looking exclusively at borrowers, the cumulative completion rate was significantly higher at 46.6%.

Figure 9: Proportion of participants in FCR loans projects who complete their foreign credential recognition
Figure 9: Proportion of participants in FCR loans projects who complete their foreign credential recognition - Text description follows
Figure 9: Text description
Year Actual Completion Rate (FCR loans projects) of Foreign Credential Recognition
2019 to 2020 12.7%
2020 to 2021 11.5%
2021 to 2022 15.2%
2022 to 2023 16.9%
2023 to 2024 18.7%
  • Source: FCRP Performance Information Profile, 2022, Approved Version (Updated) and 2024 Draft Version
  • Note: Completion rates are calculated on a cumulative basis since 2018 to 2019. For example, in 2023 to 2024, 18.7% is the ratio of the total number of participants who completed their certification from 2018 to 2019 to 2023 to 2024 divided by the total number of participants in FCR loan projects over the same period.

Beyond credential recognition, labour market integration of participants who took part in employment support projects (as shown in Figure 8) has also improved in recent years. The cumulative proportion of participants who found employment in their intended or related occupation increased from 17.6% in the fiscal year 2021 to 2022 to 27.5% in the fiscal year 2023 to 2024, exceeding the 20% target in both fiscal years 2022 to 2023 and 2023 to 2024 (Figure 10). As shown in previous sections, employment supports provided include facilitation of Canadian Work Experience via work placements and wage subsidies, as well as training, mentoring, and coaching.

Figure 10: Proportion of participants in employment support projects (excluding FCR loans) who found employment in their intended or related occupation
Figure 10: Proportion of participants in employment support projects (excluding FCR loans) who found employment in their intended or related occupation - Text description follows
Figure 10: Text description
Year Target Employment Rate in Intended/Related Occupation Actual Employment Rate in Intended/Related Occupation
2019 to 2020 30% n.a.
2020 to 2021 30% n.a.
2021 to 2022 20% 17.6%
2022 to 2023 20% 20.8%
2023 to 2024 20% 27.5%
  • Source: FCRP Performance Information Profile, 2022, Approved Version (Updated) and 2024 Draft Version
  • Note: Completion rates are calculated on a cumulative basis since 2021 to 2022. For example, in 2023 to 2024, 27.5% is the ratio of the total number of participants who found employment in their intended or related occupation from 2021 to 2022 to 2023 to 2024 divided by the total number of participants in employment support projects over the same period.

Key Finding 4

Foreign Credential Loans and Canadian Work Experience projects have reduced barriers to employment for internationally trained professionals.

Some key informants (for example, funding recipients, program representatives and FCR expert) (N=7/17) emphasized that FCR loans directly alleviated financial burdens, enabling newcomers to manage high credentialing costs and successfully complete their FCR process. Some funding recipients (N=5/13) further identified these loans as a critical resource, particularly in high-cost professions like healthcare and dentistry.

Employers in the Health Care and Social Assistance sector, as well as the Professional, Scientific, and Technical Services sector, were the most likely to report that the program reduced employment barriers.

Some employers who participated in the survey (39%, N=12/31) reported that CWE projects significantly reduced barriers to employment. 32% (N=10/31) indicated they reduced barriers to some extent. Most key informants (for example, funding recipients, program representatives and FCR expert) (N=13/17) emphasized the significance of CWE projects in facilitating initial Canadian work experience. Additionally, CWE projects can help skilled newcomers navigate cultural differences in the workplace.

Key Finding 5

System improvement projectsFootnote 8 have advanced more consistent and transparent credential recognition processes with national reach, but evidence of their impact on timeliness and overall effectiveness remains limited.

5.1 System improvement projects have demonstrated national reach and notable successes in streamlining credential recognition processes across Canada

A review of final project progress reports during the evaluation period found that the Program contributed to system improvements by streamlining credential recognition processes. Notable initiatives include:

These efforts reflect broader systemic advancements by removing certification barriers and enhancing the efficiency of the FCR process, enabling skilled newcomers to obtain licensure more quickly.

All interviewed program representatives (N=3/3) identified the NNAS as a particularly successful systems-improvement project. This initiative, first established in 2012, has received strategic support and funding from the Program. As a result, the credential assessment process was significantly streamlined, reducing the time required from 12 months to six weeks and lowering costs from $1,250 to $750 per applicant. These improvements exemplify the long-term impacts of funded projects in enhancing the efficiency and accessibility of credential recognition for skilled newcomers.

One of the key themes that emerged from key informants' feedback on system-level improvements, however, was the need for an increased government focus on immigration pathways. Key informants emphasized the importance of educating skilled newcomers on the specific requirements needed to work in their field of expertise upon arrival in Canada. They also highlighted the necessity of addressing ongoing barriers that internationally educated healthcare professionals face. These barriers include Canadian cultural differences, patient rights, and billing practices. These challenges can hinder their ability to integrate fully into the workforce, making targeted support and resources critical for their success.

5.2 The diverse scope and complexity of FCRP-funded system projects make measuring their impact challenging

All interviewed Program representatives (N=3/3) noted that assessing the impact of program-funded system improvement projects is challenging. It is challenging not only to measure individual project outcomes but also to consolidate results. For instance, projects may range from developing a website to reformatting an exam, requiring evaluation on a project-by-project basis. While measuring impact is challenging, the significance of these projects cannot be overlooked. The evaluation provides some observations to capture this impact, as outlined in Annex E, for the Program's consideration.

Key Finding 6

The Skilled Newcomer Training Incentive Bond Pilot appears as a promising way to incentivize hiring skilled newcomers. Final takeaways will be clear after completion in 2025.

During the evaluation period, the Bond Pilot engaged 120 employers. Participation was divided between Achēv (formerly COSTI Immigrant Services) and the Immigrant Services Association of Nova Scotia (ISANS). Specifically, 50 employers from Achēv and 70 from ISANS were expected to participate. However, final employer engagement and hiring outcomes will be confirmed following the project's completion in June 2025.

The pilot aims to support 200 skilled newcomers with 100 participants from each organization. Final participation numbers will be determined at the conclusion of the project. The program sets a target of 100% employment for participants in their intended or related occupations. These outcomes remain projected until verified post-completion.

Program representatives (N=3/3) reported that preliminary results are promising. To date, over 67 employers have been engaged, and 131 skilled newcomer clients have participated in the initiative. Among these participants, 62 skilled newcomers have successfully obtained permanent employment.

Employer perspectives on the pilot's effectiveness varied. Among employers who participated in the survey, 29% reported that the Skilled Newcomer Training Incentive Bond Pilot helped reduce barriers to employment for skilled newcomers to some extent. Additionally, 32% of responding employers indicated that the pilot incentivized them to hire skilled newcomers to some extent. The initiative shows early signs of success. Further evaluation will be necessary to determine its overall impact on employment outcomes and employer engagement.

Key Finding 7

Jurisdictional differences, varying licensure processes, and complex regulatory requirements continue to hinder progress.

Most of the funding recipients (N=11/13) reported that one of the biggest barriers to skilled newcomers entering the labour market is challenges created by the regulatory bodies. Examples include lengthy application process for licensure and the differences in licensure requirements across provinces and territories. Specifically, it was reported that regulatory college and third-party exam schedules are a barrier as exam offerings and number of seats are limited. Funding recipients reported efforts to support their skilled newcomer participants by helping them to:

A few key informants (N=2/17: 1 expert and 1 program representative) emphasized that a skilled newcomer's success in the labour market depends significantly on their chosen profession. Regulated healthcare professionals benefit from high labour market demand and targeted initiatives meant to streamline the FCR process and integrate IEHPs into the Canadian workforce. However, individuals in other regulated occupations continue to face licensure delays including complex certification requirements and limited exam availability. These challenges have led some skilled newcomers to explore alternative career pathways to secure employment.

Survey data further highlights these employment barriers. Among skilled newcomers who completed the evaluation survey, 39% (N=23/59) were not employed in a field corresponding to their foreign-acquired professional credentials. The primary obstacles they identified included:

"I have entered Canada as an Health Care skilled worker applicant (Physician), in 2014, and with the many many obstacles in front of me, I have not yet started work as a Physician. Passed all the exams of Medical Council of Canada, but still jobless. I entered when I was 48 and now I am 58 years old."

- Evaluation survey respondent

5. Program Performance Reporting Challenges

The evaluation identified gaps in program performance reporting that limit its ability to fully assess effectiveness. These include a heavy reliance on output-focused indicators, challenges in measuring the contribution of system improvement projects, difficulties in attributing outcomes to the program, and limited data disaggregation.

The Program's performance reporting could be strengthened to better assess its effectiveness by adopting a couple of strategies such as:

  1. shifting from output-based measures to indicators that assess outcomes and progress toward program objectives
  2. drawing on international best practices to enhance the measurement of system improvement projects
  3. developing specific indicators to measure system-level impacts and refining ultimate outcome indicators
  4. collecting and analyzing program outcome data by key socio-economic and demographic variables

A detailed presentation of Program Performance and Reporting Challenges as well as proposed improvements can be found in Annex E.

6. Overall Management Response

Recommendation 1

The program should expand complementary support for pre-arrival services for newcomers, by providing more support for initiatives facilitating centralized and accessible pre-arrival resources. This could be achieved through a collaborative effort with IRCC, recognizing IRCC as the primary lead for broader pre-arrival initiatives.

Management Response

Management agrees with this recommendation. The Program, in collaboration with IRCC as the primary lead for immigration and pre-arrival initiatives, is taking steps to identify and implement new approaches earlier in the FCR continuum that will set up immigrants, who are intending to work in regulated occupations, for success. To this end, the Program is collaborating with IRCC, as well as Health Canada, to explore opportunities to better inform applicants of FCR requirements, including during recruitment, and encourage internationally trained professionals to begin the FCR process pre-arrival. For instance, the Program launched a new FCR website in March 2025 that provides a centralized, reliable source of FCR information to prospective and new immigrants. The new centralized site helps to better inform applicants of FCR requirements pre-arrival, support navigation to the correct regulatory authority for their profession where they intend to work and promote available services, such as the Program's FCR Loans. The Program will continue to work with IRCC and Health Canada to increase awareness of FCR requirements and services and encourage internationally trained professionals to begin the FCR process pre-arrival.

Table 2: Management action plan recommendation 1
Required Fields Optional Fields
Management Action Plan Estimated completion date Status [In progress, Yet to commence, or Complete] Accountable lead(s)
1.1 Launch Government of Canada FCR website, providing centralized and accessible pre-arrival resources to internationally trained professionals.
Canada.ca/foreign-credential-recognition
Canada.ca/reconnaissance-titres		 March 2025 Complete FCRP Policy
1.2 Collaborate with IRCC and Health Canada to promote the new website and identify opportunities to better inform prospective immigrants about FCR requirements and encourage beginning the FCR process pre-arrival. April 2026 In progress FCRP Policy
1.3 Explore options with IRCC to pilot additional supports and pathways for immigrants who intend to work in regulated occupations in Canada. March 2027 Yet to commence FCRP Policy
1.4 Continue to fund projects via the FCRP that complement pre-arrival services delivered by IRCC. March 2029 In progress (ongoing) FCRP & Program Operations Branch

Recommendation 2

The program should continue providing and enhancing support for alternative pathways for licensure, such as fast-tracked recognition for high-demand professions, streamlined processes for provisional licensing, and bridging initiatives for international certifications.

Management Response

Management supports this recommendation. The Program supports a vision for systemic transformation of FCR through coordinated efforts across the entire FCR continuum, including in recruitment, pre-arrival, immigration, settlement, and labour market integration. In support of more streamlined processes, ESDC is working with IRCC to advance alignment of requirements in federal immigration levers and provincial FCR processes to reduce duplicative processes for immigrants wishing to work in regulated occupations. ESDC will continue to work with IRCC to explore opportunities to further streamline processes using federal levers. The Program will also scale-up and strengthen collaboration with provincial and territorial governments, regulatory authorities, and provincial Fairness Commissioners and Leads, to inform and guide actions to improve FCR across Canada, including investments through the FCRP. Beyond governance structures, the Program will also explore the use of incentives and outcome-based financing to drive innovation and alignment of processes across jurisdictions.

Table 3: Management action plan recommendation 2
Required Fields Optional Fields
Management Action Plan Estimated completion date Status [In progress, Yet to commence, or complete] Accountable lead(s)
2.1 Strengthen collaboration with provinces and territories, regulatory authorities and provincial Fairness Commissioners and Leads to identify and scale-up best practices and align federal efforts with shared priorities across the FCR continuum, including in recruitment, pre-arrival, immigration, settlement, and labour market integration. March 2027 Yet to commence Executive Director, FCRP
2.2 Fund sustainable initiatives through the FCRP that improve FCR systems and processes and support the timely labour market integration of internationally trained professionals, with a focus on priority occupations in key sectors (e.g., health care, education, construction) and as aligned with recommendations of provincial Fairness Commissioners and Leads, including through possible incentives and outcome-based financing models to drive innovation and alignment of processes across jurisdictions. March 2029 In progress (ongoing) FCRP & Program Operations Branch

Recommendation 3

The Program should strengthen Federal-Provincial-Territorial (FPT) governance in foreign credential recognition (FCR) by enhancing collaboration with provinces and territories.

Management Response

Management agrees with this recommendation and acknowledges that improving FCR in Canada requires a coordinated and collaborative effort across the entire FCR continuum and ecosystem. To this end, the Program will work to strengthen interdepartmental governance structures within ESDC, IRCC and Health Canada to support a coordinated federal effort to advance FCR. The Program will also work to strengthen governance in multilateral fora (e.g., Forum of Labour Market Ministers and the Forum of Ministers Responsible for Immigration) to support coordinated FPT actions that address well known bottlenecks and issues across the entire FCR continuum, including within recruitment, pre-arrival, immigration, settlement and labour market integration.

Table 4: Management action plan recommendation 3
Required Fields Optional Fields
Management Action Plan Estimated completion date Status [In progress, Yet to commence, or complete] Accountable lead(s)
3.1 Strengthen governance by creating a coordinated federal FCR workplan with clear deliverables accountable to Deputy Ministers of ESDC, Health Canada, and IRCC to advance a continuum approach to FCR. September 2025 Yet to commence FCRP Policy
3.2 Advance a systematic and coordinated FPT approach through a strengthened multilateral governance structure (e.g., Joint Forum of Labour Market Ministers and the Forum of Ministers Responsible for Immigration table) to advance coordinated FPT efforts across the entire immigration continuum. December 2025 Yet to commence FCRP Policy

7. Annex

Annex A: Logic Model for the Foreign Credential Recognition Program

Figure 11: Logic model for the foreign credential recognition program
Figure 11: Logic model for the foreign credential recognition program - Text description follows
Figure 11: Text description

This flowchart presents a logic model outlining how federal activities support skilled newcomers in accessing education, training, and employment. It begins with key activities such as providing financial support, collaborating with credential recognition bodies, and leading national coordination efforts. These lead to outputs like the implementation of Foreign Credential Recognition (FCR) projects and newcomer participation. Immediate outcomes include streamlined credential recognition processes and improved access to work experience and employment support. The model progresses to an intermediate outcome—newcomers get easier access to skilled/regulated occupations. It culminates in the ultimate outcome: skilled newcomers have improved employment outcomes.

  • Source: FCRP Performance Information Profile, 2022, approved version

Annex B: Crosswalk between Program Output/Outcome and Associated Performance Indicator as outlined in PIP

Table 5: Crosswalk between program output/outcome and associated performance indicators
Program outputs and/or Outcomes Program Indicators in PIP
Output 2.1: Facilitation of National Coordination Number of meetings and events that support national coordination and information-sharing related to FCR (in-person and teleconference)
Output 2.2: Implementation of FCR contribution agreement Number of new projects implemented
Number of active projects
Output 2.3: Participation of skilled newcomers in FCR projects Total number of skilled newcomers receiving support services from the FCR loans projects
Total number of loans issued to skilled newcomers
Total number of skilled newcomers participating in employment support projects (excluding FCR loans)
Immediate Outcome 3.1: Skilled newcomers benefit from FCR systems improvements and are directly supported in their labour market integration Proportion of participants in FCR loans projects who complete their Foreign Credential Recognition
Proportion of participants in employment support projects (excluding FCR loans) who gain Canadian work experience relevant to their profession or field of study
Proportion of skilled newcomers in regulated occupations targeted by systemic foreign credential recognition intervention
Intermediate Outcome 4.1: Skilled newcomers are working in occupations in their field of expertise Proportion of participants in FCR loans projects who found employment in their intended or related occupation
Proportion of participants in employment support projects (excluding FCR loans) who found employment in their intended or related occupation
Ultimate Outcome: 5.1: Skilled newcomers have improved employment outcomes Gap between the employment rate of landed immigrants and of Canadian-born aged 25 to 54 with post-secondary certificate or diploma

Annex C: Methodology

The evaluation used a mixed-method approach that included several lines of evidence. This approach ensured adequate data triangulation to support the robust evidence-based findings, conclusions and recommendations.

This evaluation addresses the questions in the table below.

Table 6: FCRP evaluation questions
Part 1:Program Relevance

1. To what extent does the Program respond to an ongoing need in Canada for a federal role in the FCR space?

  1. To what extent did the FCRP's funded health projects align with health sector needs during the evaluation period?
  2. To what extent have the FCRP-funded health projects impacted employment outcomes for skilled newcomers?
  3. Are FCRP-funded projects aligned with the needs of newcomers across all program activity streams?
Part 2:FPT Relations

2. How and to what extent have the FCRP's efforts to convene jurisdictions affected communication and collaboration in FCR among provinces and territories?

  1. To what extent do the FCRP's convening activities respond to a demonstrable need?
Part 3:Program Impact

3. How and to what extent have the suite of funded initiatives under the Program contributed to the reduction of barriers faced by internationally trained individuals trying to enter the labour market at a level commensurate with their skills?

  1. To what extent have FCR Loans Projects and Canadian Work Experience (CWE) Projects contributed to improved employment outcomes for skilled newcomers?
  2. How have system improvement projects contributed to the development of timely, consistent, fair, and transparent FCR systems in specific occupations?
  3. Based on early results, to what extent has the Skilled Newcomer Training Incentive Bond Pilot reduced barriers to employment for skilled newcomers?
  4. To what extent has the pilot incentivized employers to hire skilled newcomers?

Lines of evidence:

  1. Literature review
  2. Document review
  3. Administrative data review
  4. Key informant interviews
  5. Focus Group
  6. Online survey with Employers and Newcomers

Scale used to report the findings:

  1. "Most" - findings reflect the views and opinions of at least 75% but less than 90% of key informants in the group.
  2. "Majority" - findings reflect the views and opinions of at least 50% but less than 75% of key informants in the group.
  3. "Some" - findings reflect the views and opinions of at least 25% but less than 50% of key informants in the group.
  4. "A few" - findings reflect the views and opinions of at least two respondents but less than 25% of key informants in the group.
  5. "One" - findings of one highly knowledgeable key informant

1. Literature review

A. Scope and Sources of the Review

The literature review was conducted to inform the role played by the Program in addressing labour market integration challenges faced by internationally trained professionals (ITPs). A targeted sampling strategy was employed, focusing on peer-reviewed journal articles, government reports, program evaluations, and policy briefs. A total of 49 sources were reviewed. Sources were selected based on their relevance to the FCRP's objectives, particularly in the healthcare sector and credential recognition.

B. Limitations

The review faced two key limitations:

  1. Sectoral Focus: The healthcare sector was overrepresented, with less evidence on other professions. However, this preference was intentional, as outlined in the evaluation plan and sub-questions.
  2. Access to Internal Reports: Restricted access to some internal program evaluations limited the comprehensiveness of the analysis.

To mitigate these gaps, the review was supplemented with findings from interviews, focus groups, and administrative data.

2. Document Review

A. Scope and Sources of the Review

The document review focused on assessing the Foreign Credential Recognition Program (FCRP) within the context of its key objectives including addressing barriers to credential recognition, improving labour mobility, and enhancing employment outcomes for internationally trained professionals (ITPs). A diverse range of documents was reviewed, including:

A total of 45 documents were reviewed.

B. Key Limitations

The document review encountered several limitations.

To mitigate these challenges, findings were triangulated with other sources of evidence, such as stakeholder interviews and administrative data. This approach ensured a more robust and nuanced evaluation.

3. Administrative data review

A. Scope and Sources of Administrative Data

The evaluation team, in collaboration with the evaluation working group, developed and tracked additional evaluation indicators. These indicators were developed to address measurement limitations related to:

Data for these indicators were manually extracted from final project reports within the evaluation period (April 1, 2019, to March 31, 2024). These reports were for projects funded and tracked in the Common System for Grants and Contributions (CSGC).

B. Data Selection and Sampling Approach

From an initial dataset of 105 active projects, filters were applied to ensure the sample aligned with the evaluation period and included projects of at least one year's duration. This resulted in a final sample of 64 projects, including two early-stage Skilled Newcomer Training Incentive Bond Pilot projects. Sixty-one projects were analyzed due to incomplete final reports for three projects.

The sample was designed to represent the program's diverse activities, including:

C. Key Limitations

Several limitations impacted the comprehensiveness of the administrative data review:

D. Mitigation Strategies

4. Key informant interviews

A. Purpose and Scope of the Interviews

The key informant interviews were conducted as part of the evaluation of the FCRP to gather qualitative insights into the program's impact, implementation challenges, and areas for improvement. The interviews aimed to assess how effectively the program supports skilled newcomers in overcoming barriers to credential recognition and labour market integration. The interviewees represented three primary stakeholder groups:

These stakeholders provided insights across various program streams, including FCR Loans, Canadian Work Experience (CWE) projects, Skilled Newcomer Training Incentive Bond Pilot Initiatives, and System Improvement Projects.

B. Key Limitations

Several challenges affected the interview process:

C. Mitigation Strategies:

5. Focus Group Discussions

A. Purpose and Scope of the Focus Groups

The focus groups were conducted as part of the evaluation of the FCRP to assess its relevance, effectiveness, and impact within Canada's regulatory ecosystem. The primary objective was to understand how the FCRP's efforts to convene jurisdictions have influenced communication and collaboration on FCR among provinces and territories. Specifically, the focus groups sought to:

Participants were members of the FPT Multilateral Forum on FCR. This forum represents provincial governments, territorial governments and local organizations in areas such as labour, immigration, adult education, and economic development.

B. Limitations

1. Participation Gaps:

2. Regional Disparities

Differences in regulatory frameworks and political priorities across regions posed challenges in identifying universally applicable findings

3. Focus on Health Professions

Discussions heavily emphasized healthcare, limiting insights into other regulated professions.

C. Mitigation Strategies

6. Online survey

The survey sample for this evaluation was based on a range of intermediaries (funding recipients), each of whom provided contact lists of employers and skilled newcomers. The goal was to gather insights from a diverse set of participants across different provinces and sectors.

This sample provided a broad geographical distribution. However, there are several concerns about the representativeness of the sample and potential biases that may affect survey outcomes.

Key Issues
  1. a. Selectivity and Representativeness
    • Industry Representation: The contacts provided by intermediaries do not necessarily align with broader industry distributions as defined by Statistics Canada. For example, organizations like Biotalent Canada may disproportionately represent certain sectors (for example, biotechnology), potentially skewing survey results
    • Geographical Representation: While there are contacts from multiple provinces, representation from certain regions (for example, Atlantic provinces and territories) appears limited
    • Overlap and Duplicates: Some lists contained overlapping or duplicate contacts, complicating the overall representativeness of the sample
  2. b. Selection Bias
    • Issue: Since the survey relies on funding recipients and employers for distribution, there is a risk of selection bias. Recipients may recruit participants who are more easily reachable or have specific characteristics (for example, those more engaged with the funding recipients' programs). This could lead to an unrepresentative sample.
    • Mitigation Strategy: Recipients were encouraged to randomly select participants or provide a comprehensive list to improve sample representativeness.
  3. c. Response Bias
    • Issue: Participants might have felt compelled to respond in a socially desirable way, especially since the survey was distributed by intermediaries with whom they have existing relationships.
    • Mitigation Strategy: To address this potential response bias, the survey design ensures confidentiality and anonymity. It clearly communicates to participants that their responses will not be shared with funding recipients. Additionally, the survey language was carefully crafted to be neutral and unbiased.
  4. d. Non-response Bias
    • Issue: There is a risk of non-response bias, particularly given the reliance on intermediaries for survey distribution. Participants may not feel sufficiently engaged or motivated to complete the survey.
    • Mitigation Strategy: Follow-up reminders were planned, and incentives for participation were considered to help mitigate non-response bias.
  5. e. Intermediary Influence
    • Issue: There is a risk that intermediaries may unintentionally bias participant responses based on how they present the survey.
    • Mitigation Strategy: A standardized communication template was provided to all intermediaries to ensure a consistent and neutral framing of the survey message
  6. f. Low Survey Response Rate
    • The survey targeted two groups: newcomers and employers. It was distributed to a list provided by program funding recipients, comprising 1,909 newcomers and 696 employers. A total of 203 responses were completed, including 172 from newcomers and 31 from employers.
    • The employer survey achieved a 5% response rate, which aligns with the typically low response rates observed in employer surveys related to FCR. For instance, Damelang et al. (2020) reported an overall mean response rate of 12.3% in a survey experiment among employers concerning FCR.
    • The response rate for newcomers is unknown, as employers who participated in the survey were also asked to forward it to newcomers. The total number of recipients remains unclear. Duplicate responses were identified and excluded from the final count of completed surveys. Duplicate identification involved first checking for duplicate user IDs, followed by duplicate email addresses. In cases of duplication, the entry with the most recent update was retained.
    • Employer Survey Representativeness
      • The survey responses are skewed toward small employers (80.6%) and the Health Care and Social Assistance sector (32.3%). There was limited input from medium and large employers (9.7% each)
      • Geographically, responses are concentrated in Ontario (51.6%) and British Columbia (25.8%). Other regions are underrepresented, impacting national representativeness
    • Newcomer Survey Representativeness
      • The newcomer survey responses are heavily skewed toward Health Care and Social Assistance (67%). There was limited representation from other sectors (mostly at 1-6%)
      • Geographically, responses are concentrated in Ontario (77%). There was minimal participation from other provinces
      • In terms of occupations, 46% selected "Other" and 27% left it unselected, providing limited clarity on specific roles
      • Educationally, 41% of respondents hold university degrees while 27% did not specify their education level
      • The majority of respondents are female (62%), and the age distribution is concentrated in the 35-39 age group (32%), with minimal representation of younger and older participants
    • Mitigation Strategies
    • To address the low response rate and representativeness issues, multiple sources of evidence were integrated into the evaluation. Administrative data provided some insights into program outcomes. Qualitative evidence from focus groups and interviews with employers and newcomers further complemented the survey results

Annex D: FCRP Key Multi-Stakeholder Ecosystem

Key stakeholders involved include federal, provincial, and territorial governments, regulatory bodies, employers, and immigrant-serving organizations. The federal government (FCRP) coordinates with provinces to align federal policies, fund initiatives, and support credential recognition.

Provinces and territories play a key role in:

FCRP funding recipients include provincial and territorial governments, regulatory bodies, educational institutions, non-profits, and employers. These organizations:

Community organizations and settlement agencies provide support services for internationally trained professionals, while federal departments and agencies help align services with national strategies.

Employers collaborate with funding recipients to integrate internationally trained professionals into the workforce. They may receive direct funding from the FCRP for initiatives in high-demand sectors such as healthcare, IT, and engineering. Employers play a vital role in mentorship, training, and overall workforce integration.

Newcomers/Internationally Trained Professionals are the end-users of this ecosystem. They navigate credential recognition processes and integration pathways. They benefit from supports provided by FCRP-funded organizations, provincial/territorial programs, and employer initiatives.

Annex E: Program Performance Reporting Challenges

The evaluation identified several challenges with the Program's current performance reporting, particularly regarding the usefulness and comprehensiveness of its Performance Information Profile (PIP).

Table 7: Program performance reporting challenges
Challenge Description
Output-Focused Indicators A majority of the program's data tracking/ indicators focus on program outputs (for example, number of meetings or events, number of loan applicants, number of new participants provided with support services). These indicators do not effectively capture program outcomes or demonstrate its broader effectiveness. For example, the indicator measuring national coordination tracks the number of events held but fails to inform whether coordination has improved as a result.
Tracking Challenges for System Improvement Projects While immediate and intermediate outcomes for loans and employment support projects are measured, the long-term contribution of system improvement projects is difficult to track. This is particularly the case as outcomes may materialize beyond the funding period.
Attribution Challenges for the Ultimate Outcome The program uses the employment rate gap between landed immigrants and Canadian-born individuals to measure its ultimate outcome. However, the indicator is influenced by external factors beyond the Program's control. This makes it challenging to isolate the Program's contribution.
Limited Data Disaggregation Program data lacks detailed demographic breakdowns (for example, country of origin, degree attained, occupation, education level, and age). Disaggregated data is essential for understanding how program outcomes vary across different participant groups and for informing program improvements.

To strengthen the Program’s performance reporting and better assess its effectiveness, the following strategies are suggested in the table below.

Table 8: Program performance reporting suggested improvements
Strategy Description
Development of Outcome-Focused Indicators Shift from output-based measures to indicators that assess outcomes and progress toward program objectives. For example, develop measures to assess improvements in national coordination rather than just the number of meetings held.
Strengthen Measurement of System Improvement Projects Drawing on international best practices, the following approaches can enhance the measurement of system improvement projects: Implementation Longitudinal Tracking: Develop mechanisms to monitor system-level changes over time, such as improvements in credential recognition timelines, stakeholder collaboration, or participant employment outcomes. Example: Germany has utilized longitudinal surveys, such as the German Socio-Economic Panel (SOEP), to analyze the labour market integration of immigrants. A study using SOEP data from 2013 to 2019 examined welfare benefit usage among over 4,000 immigrants, providing insights into employment trajectories post-migration (Pavlopoulos et al., 2022).
Enhanced Indicators for System Outcomes Develop specific indicators to measure system-level impacts, such as: reduced credential assessment timelines increased participation by regulatory bodies enhanced collaboration among stakeholders
Refined Ultimate Outcome Indicators Supplement the employment rate gap indicator with additional lines of evidence (for example, participant surveys, longitudinal tracking) to better contextualize and attribute program impacts on employment outcomes.
Improved Data Disaggregation Collect and analyze program outcome data by key socio-economic and demographic variables such as:
  • country of origin
  • occupation
  • education level
  • age
This will provide a clearer understanding of program impacts on diverse participant groups and inform targeted improvements

8. References

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Bow Valley College (2024). The IHEP Pathway to Employment Program (IEHP-PEP), by Bow Valley College and CRIEC. Retrieved from criec.ca

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Conference Board of Canada. (2022). Counting on Immigration: Assessing COVID-19's Impact and Planning for the Future

Damelang, A., Ebensperger, S., & Stumpf, F. (2020). Foreign Credential Recognition and Immigrants' Chances of Being Hired for Skilled Jobs: Evidence from a Survey Experiment among Employers. Social Forces, 99(2), 648-672

Employment and Social Development Canada (ESDC). (2022a). Economic Recovery in Uncertain Times and the Future of the Labour Market.

Employment and Social Development Canada. (n.d.). Foreign Credentials Recognition Program. Retrieved from cic.gc.ca/CFP

Express Employment Professionals. (2021). Survey of 510 Canadian Hiring Decision-Makers.

FCRP Loans Infographics, Results as of Q2 2022/23. Foreign Credential Recognition Program (FCRP). (2022).

FCRP Multilateral Forum and Provincial/Territorial Roundtable Agendas and Presentations on integration of Internationally Educated Health Professionals (IEHPs) in response to labour market demands and pandemic challenges.

Forum of Labour Market Ministers (FLMM) Strategic Plan 2017-2020, Mobility and Qualification Recognition Working Group (MQRWG) Terms of Reference, and foundational documents on FQR.

Germany's Recognition Act: Federal Ministry of Education and Research (2019). Report on the Recognition Act 2019. Retrieved from https://www.bmbf.de

Germany's Stakeholder Involvement: CEDEFOP (2019). Germany: New Recognition Act. Retrieved from https://www.cedefop.europa.eu

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2025-11-24