IRCC Minister Transition Binder 2025-05

Federal, Provincial and Territorial Relations

Context

Immigration is a shared jurisdiction between the federal and provincial governments under Section 95 of the Constitution Act, 1867. Both orders of government can legislate on immigration matters, with federal paramountcy.

The federal government engages provinces and territories on an ongoing basis multilaterally through the Forum of Ministers Responsible for Immigration (FMRI). The Minister chairs this body with a provincial counterpart (currently Saskatchewan).

Engagement with Quebec takes place bilaterally on shared priorities.

Background

Bilateral Immigration Agreements

• Bilateral engagement with provinces and territories is guided by legally-binding bilateral agreements that outline broad immigration objectives and roles and responsibilities between both orders of government.
• All provinces and territories, except for Quebec and Nunavut, have Canada-Provincial/Territorial Immigration Agreements in place. Most importantly, bilateral immigration agreements provide authority to provinces and territories to operate what are known as provincial and territorial nominee programs, which jurisdictions use to select permanent immigrants to fill key labour market needs.
• These agreements also include program-specific annexes that set out key federal and provincial objectives in certain domains (e.g., foreign workers, international students, Francophone immigration).
• Immigration in Quebec is governed by the Canada-Quebec Accord, which gives Quebec authority to select most permanent immigrants to Quebec, as well as a say over certain temporary residents. Quebec is also compensated annually by Canada for settlement services it provides.

Multilateral Relations

• The FMRI is a joint federal-provincial-territorial decision-making body with the goal of supporting a flexible, timely and effective immigration system for Canada. The FMRI’s mission is to advance joint immigration priorities and to enhance Canada’s immigration policies and programs.
• The FMRI has decision-making tables at the ministerial, deputy ministerial, assistant deputy ministerial and director general levels. Quebec is an observer of the FMRI tables.
• The last ministerial meeting of the FMRI took place in May 2024, with a focus on levels planning.

Key Issues in Federal-Provincial-Territorial Relations

• The Department has had active engagement with provinces and territories over the past few years as adjustments were made to federal immigration policies and programs. Key issues are highlighted below:

Immigration Levels

• Most provinces are supportive of measures for sustainable population growth. However, provinces and territories objected to the reduction in the number of spaces in the 2025–2027 federal Levels Plan for provincial and territorial nominee programs, which they use to meet regional labour needs.
• With a reduction in immigration levels has come a reduction in federal settlement funding; provinces and territories are particularly concerned about funding for language training programs. IRCC is continuously reviewing funding priorities for settlement language training and will continue to work with provinces and territories and the settlement sector on language priorities.

International Students

• A number of measures have been implemented recently to address volumes and integrity in the International Student Program. This includes the introduction of an intake cap on most study permit applications to manage the number of international students arriving in Canada.
• A shared priority of both orders of government is to protect international students. However, provincial and territorial governments do not always agree on how to do this, with some provinces noting that education is a provincial responsibility. Provinces and territories continue to advocate for an increased role in decision making concerning the International Student Program.

Regional Immigration Programming

• A shared priority for both orders of government is to grow immigration outside of major urban centres. There are federal regional permanent resident programs, such as the Atlantic Immigration Program, the Rural Community Immigration Pilot, and the Francophone Community Immigration Pilot.
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International Crises and Asylum

• Canada’s international commitments and humanitarian responses to various crises (e.g. Gaza, Ukraine, Sudan) have resulted in a significant number of arrivals. Both orders of government have collaborated to provide support to these newcomers (e.g. federal government has provided income support, fee waivers in some circumstances, and health care coverage through the Interim Federal Health Program, while provinces and territories have provided education and additional social supports).
• However, provinces and territories have asked for additional financial compensation in providing social service supports and increased federal investment to support vulnerable populations, including housing for asylum claimants and additional immigration pathways for some humanitarian arrivals (e.g. Ukrainians).

Francophone Immigration

• IRCC has increased Francophone Immigration targets under the Immigration Levels Plan and is working with provinces and territories to advance this priority, and meet our obligations under the new Official Languages Act.
• While provinces and territories underline their support for federal objectives regarding Francophone immigration, they emphasize the need for flexibility (e.g. in setting provincial targets and pathways given varying regional contexts and capacity). Joint efforts are needed to help ensure retention in jurisdictions outside Quebec.

Key Takeaways

• Engagement with provincial and territorial governments is frequent, both multilaterally and bilaterally, and is key to the effective delivery of the Department’s mandate and priorities.
• Federal, provincial and territorial governments are committed to using immigration to grow the economy sustainably, spreading the benefits of immigration to smaller and rural regions, maintaining program integrity, and to the promotion of diversity (including Francophone immigration).
• A strong federal-provincial-territorial partnership helps build immigration system resiliency to maintain public confidence.