CIMM Committee Report

Supplementary Report by the New Democratic Party of Canada

Preface

The Standing Committee on Citizenship and Immigration (CIMM) first moved to study the atrocities committed against the Yazidi people by ISIS in July of 2016, which was undertaken as an emergency study during the summer. That study was broadened to examine how Canada can best support vulnerable groups in inaccessible areas in order to acknowledge that tragically, other groups face similar existential threats globally, but it is clear from the minutes of the 21^st meeting of CIMM[i] that this study was initiated as a result of the United Nations report, They came to destroy: ISIS Crimes Against the Yazidis. Released on June 16, 2016, that report declares that ISIS has attempted to commit the crime of genocide against the Yazidi people[ii].

The Committee’s report, Distress Call: How Canada’s Immigration Program can Respond to Reach the Displaced and Most Vulnerable, provided five broad recommendations for how Canada better engage with our global partners on ensuring the most vulnerable and displaced people are resettled[iii]. Additionally, the New Democratic Party provided a supplementary opinion urging the government to undertake a special measure utilizing credible, on the ground organizations to identify and select victims of genocide for resettlement in Canada. These measures are to be above and beyond any pre-existing initiatives and/or policies[iv].

New Democrats were deeply disappointed that coming out of that study the government took no such initiative. To further pursue this, on October 20, 2016, the Conservative Party of Canada tabled the following motion:

That the House (a) recognize that ISIS is committing genocide against the Yazidi people; (b) acknowledge that many Yazidi women and girls are still being held captive by ISIS as sexual slaves; (c) recognize that the government has neglected to provide this House with an appropriate plan and the corresponding action required to respond to this humanitarian crisis; (d) support recommendations found in the June 15, 2016 report issued by United Nations Commission of Inquiry on Syria entitled, “They came to destroy: ISIS Crimes Against the Yazidis”; and (e) call on the government to (i) take immediate action upon all the recommendations found in section 210, 212, and 213 of said report, (ii) use its full authority to provide asylum to Yazidi women and girls within 30 days.[v]

Following the passing of this motion unanimously in House of Commons, New Democrats moved a motion at the 35^th meeting of CIMM, October 27, 2016. With amendments by the committee, it was ultimately agreed upon that:

Pursuant to Standing 108(2) and in light of the House of Commons unanimously voting in favour of the motion for the Canadian government to use its full authority to provide asylum to Yazidi women and girls who are escaping genocide within 120 days, the Committee undertake a study and invite officials from the German government that led the German initiative to expeditiously resettle 1,000 Yazidi women and girls so that Canada could learn from their experiences; that departmental officials who travelled to Iraq brief the Committee on their experience at an in camera meeting; that this study be comprised of one meeting to be held as soon as possible; that the Committee report its finding to the House; and that pursuant to Standing Order 109, the government table a comprehensive response thereto.[vi]

The committee then sent a private letter to the Minister of Immigration, Refugees and Citizenship coming out of a three meeting study which occurred over November 17, 22, and December 1, 2016. The New Democratic and Conservative Party members of CIMM then jointly sent then Minister, the Hon. John McCallum, P.C., an additional, open letter on December 20, 2016. 

Introduction

It is the firm belief of New Democrats that when there is an exceptional crisis, an exceptional response is required. The crime of genocide is such a crisis. In November 2017, the government announced that Canada will resettle 1,200 Yazidi people by end of 2017. While any action taken by Canada is commendable; New Democrats are disappointed that this was not undertaken as a special measure above and beyond what was stipulated in the immigration level plan target for Government Assisted Refugees (GARs).  In fact, the 1,200 Yazidi was folded into the 25,000 GARs under the Syrian Refugee Initiative.  As of 29 January 2017, the government reports that 21,876 GARs from Syrian have arrived in Canada, 3,124 short of the 25,000 commitment[vii].  On January 16, 2018, it was reported that the government did not reach its goal of resettling 1,200 Yazidi. By the end of 2017, only 981 government sponsored refugees (GARs) had arrived in Canada, 795 of them Yazidi[viii]. 

From this study, we also learned that there were significant issues in the Yazidi resettlement efforts. New Democrats believe that the recommendations stemming from the main report and this supplementary report should be undertaken immediately to ensure Yazidi people resettled in Canada can effectively rebuild their lives here in safety.  As this study builds on the work of previous studies, New Democrats believe that the series of studies undertaken by CIMM on this subject should be taken together and the recommendations should be used as a blueprint to improve upon the resettlement process for refugees that are in Canada now and for future initiatives. This is the approach that New Democrats have brought to these studies and this initiative from the outset.  Witnesses appearing before the committee also supported this broad approach.  It is with this in mind that New Democrats, while supporting the recommendations in the main report, submit this supplementary report.

Refugee Sponsorship

The humanitarian spirit amongst Canadians is something that we can all be proud of. This was truly put on display during the Syrian refugee crisis, which as of 29 January 2017, saw Canadians sponsor 14,274 refugees through IRCC’s Privately Sponsored Refugee (PSR) program.  While the desire of Canadians to engage in this program has not waned, the government’s targets for PSR have artificially limited Canadians abilities to act. The immigration levels plan allocations for PSRs have dropped from 17,800 in 2016[ix] to 16,000 in 2017[x].  While the increase over the 2018-2020 levels plans of 18,000 in 2018 to 20,000 in 2020 are welcomed[xi], the sponsorship community has been vocal throughout many CIMM studies relating to refugees, and specifically Yazidi’s, that there is a capacity and desire to do more.

Mr. Lorne Weiss of Operation Ezra explained:

“One of our problems in terms of logistics is that we spend a lot of time looking for sponsorship agreement holders who have available quota to allow us to sponsor private families. That is a bigger challenge to us than raising the required funds to provide them with the year’s support that’s necessary. We need more sponsorship agreement holders in major centres where there are already Yazidi communities in existence. We need more quota as well.”[xii]

Lifting the cap on the number of Yazidi people that could be sponsored to come to Canada was an idea supported by Mr. Omar Khoudeida and Ms. Shannon Smith[xiii].  Ms. Nafiya Naso, Mr. Hadji Hesso, Ms. Dala Abdallah, and Mr. Weiss[xiv] noted that this should go beyond just Yazidi populations.  Further, Mr. Weiss believes, “the cap will be self-monitoring in essence because of the ability to raise funds”[xv]. This is because sponsorship agreement holders must demonstrate that they have the funds to be eligible to sponsor an additional refugee, and therefore would not be able to over-extend in their resettlement efforts.

New Democrats continue to be proud of the humanitarian spirit of Canadians in their efforts to help resettle refugees and believe that the government should not be artificially limiting Canadians’ ability to do more.  It is with this in mind that New Democrats recommend:

Recommendation One:

The Immigration, Refugees, and Citizenship Canada lift the cap on Privately Sponsored Refugees (PSRs).

Family Reunification

In the main report there is a recommendation to expand the timeline indefinitely for resettled Yazidi refugees to sponsor immediate family members through the One-Year Window of Opportunity program (OYW). While New Democrats support this recommendation, it has been brought to the Committee’s attention during this study that the OYW program has other limitations that should be addressed.  As well, witnesses from other studies and stakeholder organizations have echoed the same view.

The OYW offers reunification only of immediate family members. That is, spouses/common-law partners; dependent children; and dependent children of dependent children. Given the violence and conflict that many refugees are fleeing, especially in the case of Yazidis, it is possible that all members of a principal applicant’s immediate family are deceased. However, they may come to find out that a sibling, an uncle or aunt, a cousin, or a niece or nephew is still alive. In some cases it could be that the only other surviving members of the family are extended family members.

Ms. Debbie Rose of Project Abraham recommended that the government:

“Extend the one-year window of opportunity provision for victims of genocide to include family members who are discovered to be alive after the refugee families have immigrated to Canada. In addition, for the special needs of this community, extend this provision to siblings and parents.”[xvi]  

During the CIMM study of family reunification, members of the committee were informed that by immigration lawyer Chantal Desloges that:

“The concept of the nuclear family being just two parents with children is largely a western European construct. It is not the norm in most of the world and particularly in areas of the world from which most of our newcomers in Canada originate. However, it’s exactly on that construct that we’ve built our definition of family in the immigration and refugee protection regulations. Maybe it’s time to rethink that.”[xvii]

In her appearance before the committee, Ms. Lobat Sadrehashemi spoke of the importance of family reunification in the resettlement process, as well as its impact on healing from trauma:

“You have heard from survivors and those who work with them in Canada that family separation is particularly devastating to those who have experienced severe trauma and been resettled. Family reunification has been recognized by the UNHCR and by the government as an essential step in refugee resettlement. The UNHCR has recognized the family as ‘an essential right of the refugee’ in its 1983 ‘Guidelines on Reunification of Refugee Families’….

For refugees who survive trauma, separation from family can be especially difficult. Having the family together is absolutely critical to feeling safe and protected in one’s new home.”[xviii]

While the following recommendation is one that the New Democratic Party provided in its supplementary report on the family reunification study, the NDP is once again making this recommendation given the high level of importance witnesses from this study placed on family reunification for the resettlement process.

Recommendation Two:

That Immigration, Refugees, and Citizenship Canada expand the definition of family under the family reunification program and the one-year window of opportunity sponsorship program for refugee claimants, so as to include siblings, cousins, uncles, aunts, nieces and nephews.  

Increase Resettlement of Yazidi Refugees

During the vulnerable groups study, Mr. Murad Ismael spoke of his desire for Canada to resettle 5,000 to 10,000 Yazidis[xix]. This recommendation was echoed by New Democrats in our supplementary opinion attached to the report on that study.[xx] It had always been the desire of New Democrats for this first 1,200 target to be done quickly, with a commitment to reach that 5,000 to 10,000 goal. New Democrats were deeply disappointed when Ms. Dawn Edlund informed the committee that, “we have not received new direction for a further number of individuals to be sought from northern Iraq.”[xxi] In addition to their support of lifting the cap on PSP applications, witnesses appearing before the committee were also clear that an additional target of resettling at least 5,000 Yazidi refugees in Canada should be sought.  Therefore, New Democrats recommend that:

Recommendation Three:

That Immigration, Refugees, and Citizenship Canada engage in a follow up special measure to resettle 5,000 Yazidi refugees in Canada.

Special Measures

There is no question that crimes against humanity in the situation of genocide require extraordinary action from the global community.  Canada joined other countries such as Germany in response to this call for action.  This is commendable. However, given that there is a global crisis where over 65 million are displaced across the globe; Canada’s Yazidi initiative should not displace the resettlement work of other refugees from different countries.

Appearing before the committee, Mr. Omar Khoudeida, Ms. Shannon Smith, Mr. Mohamed Al-Adeimi, Mr. Hesso, Ms. Naso, Mr. Weiss, Ms. Debbie Rose, Mr. Gary Rose, and Ms. Lobat Sadrehashemi all agreed that the government should engage in an additional Yazidi refugee resettlement initiative.[xxii][xxiii][xxiv] They all also agreed that this initiative should be above and beyond Canada’s current target of 7,500 GARs.

With such widespread understanding and agreement of this situation, and with the forward thinking approach in mind, New Democrats therefore recommend the following:

Recommendation Four:

That Immigration, Refugees, and Citizenship Canada prioritize genocide for selecting refugees in resettlement through the use of special measures which go above and beyond planned resettlement targets.

Internally Displaced

Over the course of studies regarding vulnerable groups, and Yazidi’s specifically at CIMM, the issue of internal displacement and the difficulty in reaching individuals in that situation have been brought up numerous times. During his appearing at CIMM for this study, Mr. Sean Boyd from the Department of Foreign Affairs outlined the situation of internal displacement in Iraq that is currently happening to the Yazidi population. “The conflict has created millions of internally displaced persons with estimates of approximately 400,000 Yazidis living in IDP camps or in host communities.”[xxv] Additionally, Mr. Mirza Ismail of Yezidi Human Rights Organization-International called upon the Canadian government to:

“Send humanitarian aid on an urgent basis directly to those internally displaced in Iraq. There is a real threat of starvation, dehydration, and disease, especially in Mount Sinjar. This assistance should come from neutral, non-governmental sources to avoid the diversion of food, water, and medicine.”[xxvi]

During the study of the 2011 LGBTQ+ Refugee Pilot Project study[xxvii], and the study of vulnerable groups[xxviii], New Democrats advanced recommendations for further examination of the role that Canada could play in addressing internal displacement globally in supplementary reports. Given what we have continued to hear, now entering a third study, regarding the complexities of addressing, and urgency for aid to provide to individuals who are internally displaced, New Democrats once again call upon the government to act.

Recommendation Five:

For Canada to increase humanitarian aid levels, targeted towards populations of internally displaced persons, and to work collaboratively on the ground with established groups working in those regions to ensure that aid reaches its target.

Recommendation Six:

That the Standing Committee for Citizenship and Immigration undertake on an urgent basis, a comprehensive study of the issue of internal displacement globally, and how Canada can best respond to the unique needs of internally displaced persons.

Resettlement Services

Following the CIMM study on the federal government’s initiative to resettle Syrian refugees to Canada, the committee tabled the report, After the Warm Welcome: Ensuring that Syrian Refugees Succeed in the House of Commons. This report examined many of the difficulties encountered during the resettlement efforts and provided the government with 14 recommendations for improving resettlement efforts moving forward. At that time New Democrats included a dissenting opinion to the report as it was our opinion that the main report and its recommendations failed to adequately and thoroughly address the gaps in resettlement service funding and provision. As such, New Democrats made an additional 10 recommendations on the themes of: Transportation loans; Housing; Access to language training; Access to health services, and; Improving information provided to sponsors and refugees[xxix].

This was then followed by an Auditor General report on Settlement Service for Syrian refugees. This report found that while overall most Syrian refugees received needs assessments, language assessments, and language training; IRCC’s slow dispersion of additional funding in 2017-18 to service providers resulted in some organizations being forced to cut services for at least 3 months. The report stated, “These findings matter because for Syrian refugees to integrate into Canadian society, they must be able to access the settlement services they need when they need them.”[xxx]

The committee heard testimony from several witnesses about similar issues with access to services for Yazidi refugees. However, it was also noted that given the Yazidi’s unique culture and language; their extreme trauma at the hands of Daesh; and the small communities of Yazidi people already settled in Canada; the challenges faced by the Yazidis during the resettlement process were much more acute.

Yazidi’s encountered difficulty accessing interpretation services due to the small number of qualified interpreters versed in their language, Kurmanji. This had a broad range of impacts on access to resettlement services, including trauma counselling.  Ms. Abdallah explained, “One of the barriers is that, because these are special services and because the second language is Kurmanji, it’s very difficult to get accurate translation and have that passed on to psychiatrists and psychologists. It’s very hard.”[xxxi]  Echoing this sentiment, Ms. Smith recommended that “interpretation services be extended beyond six month, because communication is barrier to all other issues, such as transportation and mental health services”[xxxii].

Given the extreme trauma that has been experienced by many Yazidi’s in Canada, it was also noted that it would not be uncommon for it to take longer than 6 months, or even a year for individuals to be ready to discuss and deal with this trauma. It is with this in mind that New Democrats recommend:

Recommendation Seven:

That Immigration, Refugees, and Citizenship Canada work with the provinces and territories to ensure that interpretation is available to those with language barriers while accessing public services.

Recommendation Eight:

That Immigration, Refugees, and Citizenship Canada extend the eligibility period for the Interim Federal Health Program (IFHP) to ensure that resettled refugees have access to mental health supports and services when they need it

Regarding language training specifically, during his appearance for this study Mr. Hesso noted that, “Adults all love attending English classes but often struggle to learn because of the impact of trauma. They appear to learn more through conversational groups where they make connections and build relationships with others.”[xxxiii]

The recommendation of including funding for more informal conversational language training was one that was also brought to the attention of the committee during the study of Syrian refugee settlement, by Sherman Chan of the Canadian Council for Refugees[xxxiv]. The need for more access to language training, including informal classes and services that included child-care was also noted during that study by Syrian refugees that appeared before the committee: Ms. Eman Allhalaq[xxxv] and Mr. Amer Alhendawi[xxxvi].  In the report by the committee it was stated that, “A shortage of language classes that offer child minding was also raised, leading to a longer wait for women to access training, possibly resulting in extended periods of isolation.”[xxxvii]

At the time, in the New Democratic Party’s made the following recommendation:

“That Immigration, Refugees, and Citizenship Canada (IRCC) enhances program delivery by funding more adaptable language class programs. Increased funding should be given to programs which also have childcare/child-minding services, offer information conversation groups, and programs which provide resettlement help within the context of language skill building”[xxxviii]

Therefore, New Democrats similarly recommend again:

Recommendation Nine:

That Immigration, Refugees, and Citizenship Canada provide funding to resettlement services organizations to provide opportunities for conversational English/French programs and events to ensure that vulnerable refugees, especially women, do not experience isolation; and that more language training courses provide childcare/child-minding services

Finally, Mr. Ismail informed committee members that some Yazidi refugees were not receiving all of their entitled benefits; namely, the Canada Child Benefit (CCB):

“Some families, including Ms. Basema – who is supposed to be here but, unfortunately, due to personal issues, she couldn’t – have been in Canada for more than four months and still have not received their child tax benefit. Until that happens, the amount of the money allocated to families barely covers the rent, let alone food and other expenses.”[xxxix]

Many of Canada’s cities experience a high cost of living. Given that the established income support provided to resettled refugees is that of the prevailing social assistance rates in their province of resettlement, refugees, even with all the income support they can access can have difficulty making ends meets. It is therefore paramount to ensure that they immediate access to all of these benefits.   Therefore, New Democrats recommend:

Recommendation Ten:

That the Government of Canada immediately correct issues with the provision of the Canada Child Benefit (CCB) to ensure refugee families receive this income support as soon as possible.

Conclusion:

New Democrats welcomed the opportunity to examine how the efforts on the Yazidi resettlement initiative have progressed. New Democrats have been supportive of undertaking such an important issue since the UN declared genocide was ongoing against this community in early 2016. While we are disappointed that after waiting so long for action, the government did not undertake to bring in a special measure for the Yazidi’s initiative and failed to reach its target; and that many of the resettlement issues the committee brought to the attention of the government during the Syrian refugee initiative remain and are in some cases more significant for the resettlement of Yazidi people; we acknowledge that some action has been taken.  If we truly want to learn from these experiences and to improve on our approach in the resettlement process, New Democrats hope that the series of studies on this issue undertaken by this committee, and the recommendations brought forward to the government, will be used as a blue print moving forward to remedy existing challenges and to provide an improved response to future initiatives.