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HARRY CUMMINGS AND ASSOCIATES INC.
Executive Summary
While the majority of recently arrived immigrants locate in large metropolitan areas in Southern Ontario, newcomers also settle in small towns and rural areas across the province. The delivery of settlement services in small towns and isolated areas can be challenging given the varying frequency of the service demand and the large geographical distances between small towns. As well, communities in rural areas are unlikely to have the established ethnocultural communities that are sometimes found in metropolitan areas and which are sufficiently organized to assist newcomers in the settlement process.
This report was produced in response to the interest of Citizenship and Immigration Canada, Ontario Administration of Settlement and Integration Services (CIC, OASIS) in gaining a better understanding of the types of settlement services and information being accessed by newcomers in rural and remote areas of Ontario. A further area of interest was to determine the way in which services and information are being accessed by newcomers. The research was also concerned with identifying alternative methods/models of service delivery as they relate to meeting the needs of newcomers.
The study was completed using a variety of information sources and methodologies, including:
· A review of literature that examines immigration policy and settlement programs and funding in Canada and Ontario.
· An analysis of the Research Area using data from Statistics Canada.
· Interviews and focus groups with 27 service providers representing 22 different organizations in Timmins, Dryden, Kenora, Sault Ste. Marie and Cornwall.
· Interviews with 43 newcomers in Timmins, Dryden, Kenora, Sault Ste. Marie and Cornwall
Canada’s history is linked closely to immigration and net migration is set to take on an increasingly important role in Canada’s future. In its immigration plan for 1995-2000, the federal government policy moved to assert a greater emphasis on economic over family immigrants and refugees. The recent increase in business immigration and the efforts of the federal government to actively recruit this type of immigrant has implications for economic and social policies as well as cultural and linguistic programmes in light of the multicultural composition of family dependents, business and entrepreneurial immigrants and refugee movements.
Settlement services in Ontario are provided by a diverse group of community organizations, government agencies and individuals. In larger urban centres some services are offered through established ethnic community organizations or multicultural centres. In smaller communities, the range of settlement services and the availability of training for service providers may be more limited. Settlement service organizations typically have a range of partnerships that cut across the public, private, and voluntary or social service sectors. Some of the more common types of settlement services include:
• interpretation and translation
• English or French language classes
• assistance with finding a job or employment training
• short-term para-professional counselling
• assistance with filling forms and applications
• referrals to other resources in the community
Beyond offering information and referrals some organizations work to develop programs and policies that respond to the needs of immigrants, represent community interests, engage the government and media, speak on behalf of immigrants and help nurture formal and informal leadership in emerging communities.
Different levels of government and government departments have taken responsibility for funding various settlement programs. The federal government through the Department of Citizenship and Immigration offers a nationwide program known as the Immigrant Settlement and Adaptation Program (ISAP). The aim of ISAP is to assist newcomers in the settlement process by providing reception and orientation programs and making referrals to mainstream agencies such as Human Resources Development Canada. ISAP also funds projects that are designed to compliment or improve the delivery of settlement services. Although the Program is mainly for newcomers, other eligible immigrants may qualify, regardless of how long they have been in Canada, as long as they have not yet acquired Canadian citizenship.
Citizenship and Immigration Canada (CIC) also funds the Language Instruction for Newcomers to Canada (LINC) program. This is a free service that provides basic language instruction in English or French to adult immigrants. As well, CIC provides funding for the HOST program, which places immigrants with volunteers to help immigrants overcome the stress of moving to a new country.
The Ontario government, represented by the Ministry of Citizenship, Culture and Recreation, funds the Newcomer Settlement Program (NSP). The program supports direct core services including assessing newcomers’ settlement needs, providing information, orientation and referrals, and filling out forms and applications. A second service category relates to recruiting, coordinating and training volunteers to assist in providing settlement services to newcomers.
Results
Based on the research findings it is evident that there is considerable variation in the types of settlement services being offered in rural and remote areas of Ontario. The study indicates that some communities have a greater number and variety of service organizations than others. As well, some settlement service providers appear to be better linked to other service organizations in their community.
None of the four Northern Ontario communities in this study possess an agency or organization whose sole purpose is to provide settlement services to immigrants and refugees. Services being accessed by newcomers in Northern Ontario are typically provided through an organization offering services to newcomers as part of a larger operational mandate directed at the general public.
The organizations providing settlement services in this study typically derive their funding through a combination of sources. Some of the more common agency funders include Human Resources Development Canada, the Ontario Ministry of Training, Colleges and Universities, and the Ontario Ministry of Citizenship, Culture and Recreation. Some service organizations are also receiving support from local school boards.
Important sources of information and services identified by newcomers include literacy training centres, adult education centres, employment centres, multicultural associations, volunteer centres, libraries, health centres and church groups.
Many of the immigrants interviewed in this study received personal assistance from friends, family members, co-workers, and sponsors in accessing information. The assistance provided by these individuals often helps to address initial settlement needs such as finding accommodation, learning about job opportunities, and finding a family doctor.
Where there is an absence or limited range of formal settlement services, volunteers represent a key alternative source of assistance. Volunteers help newcomers find their way around the community and access information. In some cases volunteers are able to act as interpreters/translators. Volunteers also play a role in providing one-on-one English language instruction. However, relying on volunteers as service providers is problematic. In providing English language training and other settlement related services, volunteers may lack the time and materials as well as the training and experience to deliver the types of services that will foster long-term benefits for the newcomer.
The three most requested service needs identified by newcomers were:
· English language training
· finding employment
· finding a doctor
Acquiring English language skills was viewed by almost all of the respondents as an important step in integrating into Canadian society. Immigrants recognize that the greater their proficiency in English, the greater their chances of securing better jobs and accessing a wider range of services. Little reference was made to the provision of French language services throughout the research process from the perspective of service providers and newcomers.
Alternative Methods of Service Delivery
A number of alternative methods of service delivery were examined in the study including Internet based resources such as VolNet, Settlement.org, and AlphaRoute; distance education programs; and a pilot project for enhancing communications in Thunder Bay. These methods were presented during the focus groups and interviews with service providers and discussed with newcomers. Respondents were asked to comment on their appropriateness in meeting the needs of newcomers.
Internet
The Internet is not an appropriate information resource for every newcomer. While service providers and newcomers acknowledged that the Internet can provide valuable information, not every newcomer can easily access the information. Some newcomers are more limited than others in their English language and computer skills and not every newcomer has access to a home computer or lives in a community that provides public access to computers or technical assistance. Thus an important consideration in promoting Internet based service delivery is ensuring that some form of public access is available with technical assistance.
Distance Education
Service providers are largely unaware of distant education opportunities for newcomers. Some service providers are uncertain if distant education programs such as English language training can adequately address the different language training needs of all newcomers. Very few newcomers expressed an interest in taking distant education courses. There is a strong interest among newcomers in receiving English language training in a classroom setting with an English language instructor.
Enhancing Linkages between Communities and between Service Organizations
A pilot project being undertaken by the Thunder Bay Multicultural Association is attempting to improve the delivery of settlement services and information by enhancing the linkages between towns and service organizations and establishing access points in communities where newcomers can access the Internet and obtain referrals to other service providers. A primary interest of the project is to deliver services through existing organizations and facilities as a means of reducing costs. The project is a three phase initiative that begins with an assessment of services currently available. The second phase of the project is directed at building up linkages between communities and establishing access points where information and Internet service could be accessed. The third phase involves project evaluation and planning maintenance for the program.
None of the communities in this study have initiated a similar project although it is clear from the findings that communities would benefit from adopting a similar strategy. Conducting a community wide assessment of service organizations and their settlement related activities would enable service organizations to become more knowledgeable of the types of services and information the community has to offer newcomers and where it can be accessed.
The assessment process would also serve to highlight gaps in service delivery and enable organizations to identify service providers in other communities that could receive referrals. Few of the service organizations in this study have developed formal referral protocols. Findings from the interviews with newcomers and service providers revealed cases where newcomers were not referred to services that were available locally. A referral protocol for service providers in rural and remote areas should be developed as part of the community assessment process to ensure that the information provided to newcomers is accurate and comprehensive.
Multicultural Festivals
A number of communities in Northern Ontario feature annual Multicultural Festivals. A number of newcomers in this study indicated that they attend these festivals whenever possible. These events could serve as a venue for disseminating information on services available to newcomers. They could also provide service organizations with an opportunity to collect feedback from newcomers on how services and service delivery could be improved.
Settlement Information at Entry Points into Canada
Newcomers in this study indicated that the settlement information being provided at Canada’s major entry points does not describe the services being offered in smaller communities. Newcomers would like to be better informed about the types of services available in rural and remote areas of the province and the specific organizations that are providing the service prior to arriving.
Job Sharing
The low number of newcomers in some rural and remote communities often does not support the position of a full-time settlement service provider. Service organizations in these communities should consider establishing a part-time settlement service position. Working on a demand basis with newcomers, the service provider could conduct an initial assessment of the newcomers needs and provide information and referrals to other service providers either locally or outside the area. Ideally, this position would be partnered with another service organization where it would become a full-time position with duties being split between the organizations. Administering the position through an established organization would enable the service provider to share office resources such a phones, photocopier, fax, computers, etc.
The partnership approach to service delivery may also have applications for the provision of English language programs. Communities in rural and remote areas that have literacy training programs but not English language programs should explore opportunities for partnering with the local business community, school boards and CIC, OASIS. This is the approach taken by the Prince of Wales Adult Education Centre in Sault Ste. Marie, which partnered with the local school board to develop an English language program for international students. The fees charged to international students cover the operating costs of the program and immigrants are allowed to attend the classes free of charge. A shortcoming of the program is that it only remains operational while the program attracts a regular number of international students. Securing partial funding through CIC, OASIS when there are a low number of international students enrolled in the program would ensure that the service remains accessible to newcomers.
The partnership approach described above is consistent with the Thunder Bay service delivery model, which promotes the use of existing organizations and facilities for delivering services as a means of reducing costs.
As a further measure of aiding service organizations in maintaining or establishing English language programs for newcomers, government departments and ministries should cover the costs associated with English language materials and professional development workshops that are used by agencies that are not funded to deliver the LINC/ISAP/HOST program in isolated areas across Ontario.
Recommendations
Based on the findings reported in this study, the Consultant recommends that CIC, OASIS consider the following recommendations for delivering services in the North.
1. Organizations/agencies responsible for providing settlement services in Northern Ontario communities should be promoted at major points of entry into Canada.
2. Settlement service agencies in Northern Ontario should undertake annual community outreach activities in order to increase their profile in the community for the sake of informing newcomers and other service organizations of what the agency has to offer.