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Opinion

The repair job at Immigration

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17 minute read

PAUL WELLS

The department’s top bureaucrat answers a critical report, with rare candour

Seven months ago Neil Yeates, a retired former deputy minister of immigration, submitted a report on the organization of the department of Immigration, Refugees and Citizenship Canada to the current deputy minister, Christiane Fox.

Yeates’s 28-page report was blunt, plainspoken, critical but constructive. It said “the current organizational model at IRCC is broken.” At a time of global upheaval and dizzying growth in immigration levels, the department that decides who gets into Canada was no longer “fit for purpose,” he wrote. It was time for “major change.” When? “[T]he advice is to proceed now.”

On Thursday, a copy of Yeates’s report landed in my email inbox.

On Thursday night, Christiane Fox told me she is implementing many of Yeates’s recommendations, and described for me her plans for the department with a level of detail and candour I almost never see in today’s Ottawa.


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Copies of Yeates’s February IRCC Organizational Review Report have been floating around Ottawa because the department began implementing big changes this week. Some of the nearly 13,000 people who work in the department have asked for the rationale behind the changes. Yeates’s 28-page report makes the case succinctly.

Yeates was a top civil servant in Saskatchewan before moving to Ottawa in 2004. He held senior positions in three other departments before becoming deputy minister at Citizenship and Immigration Canada, the department now known as IRCC, where he served from 2009 to his retirement in 2013. That means he was Jason Kenney’s deputy minister for all of Kenney’s time at Immigration, but he was also a Trudeau Foundation mentor if you want to get excited about that instead.

His report’s purpose, he wrote, “is to provide strategic advice to the Deputy Minister on how the department can become a more efficient and effective organization.” After interviewing 36 people inside and outside the department, he decided it was a mess.

‘“[T]he current organizational model at IRCC is broken but is being held together by the hard work and dedication of staff,” he wrote. “At IRCC today department-wide planning is limited and some interviewees suggested it has in fact disappeared completely . There is no multi-year strategic plan, annual plans are not in place consistently across the department and consequently reporting is seen by many as haphazard.”

What the department did have going for it was a decent work environment: “In talking to senior managers at IRCC the culture was universally seen as ‘committed,’ ‘collaborative,’ ‘supportive’ and so on.” The senior managers Yeates interviewed saw this culture as “helping to overcome the shortcomings of the current organizational structure and of the weakness of the governance and management systems.”

The immigration department has always been the main portal between a messy world and an anxious nation. Lately the world had grown messier, Yeates noted, and the demands on the department were starting to hurt. “[T]he operating environment, both nationally and internationally, has grown ever more complex, unstable and frenetic,” he wrote.

In response, “the department has grown exponentially,” from 5,217 staff when Yeates left it in 2013 to12,721 this year, an expansion of 144%. The “Ex complement,” the department’s management cadre, grew from 135 to 227 over the same period, a smaller increase of 68%. That might explain why the department’s managers are so stressed, Yeates speculated. At any rate, the department’s structure was conceived for a much smaller staff and caseload.

To catch up, Yeates proposed big reform in four areas: Organizational Structure, Governance, Management Systems and Culture. He cautioned that tinkering with only one or a couple of those areas wouldn’t have the effect that a “Big Bang,” however difficult, would achieve.

The big problem in Organizational Structure was that the department isn’t organized along business lines: that one of the world’s leading destinations for asylum and humanitarian immigration doesn’t have an assistant deputy minister for asylum, for instance. The obvious challenge was that in a hectic world there will certainly be more crises, like those of recent years. “Should IRCC have a permanent ‘response team’ in place? The short answer is no.” Between crises that team of experienced trouble-shooters would just be twirling their thumbs. Instead Yeates proposed better contingency planning, including lessons learned from other crisis-management departments such as National Defence.

Under Governance, Yeates found a proliferation of over-large committees sitting through endless presentations and not really sure, at the end of each, whether they had decided anything. “Most of the actual decision-making occurs in DMO/ADM bilats,” he wrote, referring to meetings between the Deputy Minister’s office and a given Assistant Deputy Minister.

The section of Yeates’s report that deals with Management Systems reads like a parable of contemporary Ottawa: a “series of periodic crises” that somehow nobody anticipated, “descend[ing] into ‘issues management.’” What’s needed is much better planning and reporting, he wrote. When he was running the department barely a decade ago, every part of the department was reporting on progress against targets every three months. That system has fallen by the wayside. A department that’s obsessed with its “priorities” or with the to-do items in “a minister’s mandate letters” is “inherently limited” and guaranteed to be side-swiped by events intruding from the real world, he wrote.

The upshot of all this tunnel vision was that the department was expecting to “lapse,” or leave unspent, $368 million in projected spending for the year underway, even as passport-related spending was projecting a $238 million deficit.

Yeates’s report closed with the sort of plea that’s traditional in this sort of exercise, essentially pleading not to be ignored. “IRCC is at a crossroads and as Yogi Berra famously quipped ‘when you come to a fork in the road, take it,’” he wrote. Change is hard, but a “substantial majority” of the people he interviewed told him it was overdue.

Neil Yeates and Christiane Fox.

And that’s where the report ends. I had to decide what to do with it. First, always consider the possibility that you’ve been handed a fake report, or the first draft of something that was later amended beyond recognition. I emailed the office of Immigration Minister Marc Miller looking for comment. They handed me off to the civil servants in the department’s communications staff. But I also emailed Christiane Fox, the deputy minister, offering her a chance to comment. This is the sort of chance that people in Ottawa usually don’t touch with a barge pole.

But Fox called me on Thursday night and responded in detail. I asked: was the conversation on the record? She thought out loud for a few seconds, working her way up to a “Yes.” I don’t want to belabour this, but that answer is very rare these days.


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Christiane Fox had been the DM at Indigenous Services for all of 22 months when she was sent to run IRCC in July of 2022. The new job “felt like crisis”: the department was sending weekly updates to an ad hoc committee of ministers whose job was to fix months of chaos in airports and passport offices.

“They felt like they were under duress,” Fox said. “Everyone was exhausted.” New staff were just “tacked on when there was a problem,” including the creation of an entirely new sector for Afghanistan. Fox talked about this with some of the most experienced public servants in town, including Yeates and Richard Dicerni, Fox’s former DM from her days as a young public servant at Industry, who passed away this summer and whose contribution to public life in Canada is hard to measure.

“I kind of said, ‘We’ve got to make some changes. And I don’t want to do it overnight. But I also don’t want to spend two years figuring out what a new model could look like.’” Yeates, whom she didn’t know well but who knew the department’s history, seemed like solid outside counsel.

While Yeates was doing his thing, Fox and the previous immigration minister, Sean Fraser, were consulting — with “business leaders, academics and clients” — about the department’s future. By June of this year, she had a plan, based on Yeates’s report and those consultations. She’s been rolling it out since then, from top managers on down, and on Wednesday, by way of explanation for the changes that are coming, she sent the Yeates report to enough people that I got a copy. A department-wide meeting is scheduled for this coming week.

What’s changing? “The model is now just more of a business-line model,” she said, reflecting Yeates’s first big recommendation.

So there’ll be a stronger crisis-planning sector. In a world that keeps producing humanitarian crises, the goal is to learn lessons for next time from Ukraine, Afghanistan and elsewhere. “Most importantly, we’ll have a group dedicated to thinking about these issues, planning for crisis.” It won’t eliminate the need to “surge,” or quickly add new staff when something flares up. “But in the past, we ended up surging so much that all of our other business lines suffered every time there was a crisis.” The goal now is to get better at anticipating so the department’s regular work doesn’t suffer.

“Asylum and Refugee. There was no Asylum ADM,” she said, reflecting another Yeates critique. “This is probably the thing that causes me the most heartache, in terms of, how are we going to deal with this as a country, globally? What are some of the tools that we have? How do we support the most vulnerable? How do we have a system that is fast and fair? So Asylum and Refugee will now be a sector within the department.”

In addition, there’ll be a sector focused on Economic Immigration and Family. “The business community didn’t really feel like we were actually talking to them about labour shortages, about skills missions, about what is the talent that the country needs.” And a sector on francophone immigration, identifying French-speaking sources of immigration and taking into account the needs of French-speaking newcomers.

“Other sectors remain kind of consistent. Like, we’ve always had a focus on border and security, but we will now have a team that’s really migration integrity, national security, fraud prevention, and looking at case management in that context.”

Fox said she’s working on more of a “client focus” in the department’s work. “When I joined the department I remember, my first few weeks, thinking, ‘Everybody talks about inventory and backlog and process.’ But I didn’t feel clients and people were at the forefront.” This may sound like a semantic difference. But anyone who’s been treated as inventory and backlog can testify to the potential value in any reform that restores a measure of humanity to recipients of government service.

I’ve been arguing for months here that simply acknowledging problems and identifying possible solutions is better communications than the happy-face sloganeering that passes for so much of strategic comms these days. Here, quite by accident, I’d stumbled across somebody who seems to have had similar thoughts. (There’s an irony here, because Fox’s CV includes a long stint as a director of strategic communications in the Privy Council Office.)

“There will be things that will come up,” Fox said, “that may not be as smooth a transition as we thought, or maybe a bit clunky, that we need to rethink. What we’ve told the employees is, it won’t be perfect. We needed to change, we’re going to change, but there’s going to be room for conversation around issues that arise as we go through this process.”

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2025 Federal Election

Will Four More Years Of Liberals Prove The West’s Tipping Point?

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The 1997 political comedy Wag The Dog featured a ruling president far behind in the polls engaging Hollywood to rescue his failing ratings. By inventing a fake war against Albania and a left-behind “hero”— nicknamed Shoe— the Hollywood producer creates a narrative that sweeps the nation.

The meme of hanging old shoes from the branches of trees and power lines catches on and re-elects the president. In a plot kicker, the vain producer is killed by the president’s handlers when he refuses to stay quiet about his handiwork. The movie’s cynicism over political spin made it a big hit in the Bill Clinton/ Monica Lewinsky days.

In the recent 2024 election the Democrats thought they’d resurrect the WTD formula to spin off senile Joe Biden at the last minute in favour of Kamala Harris. Americans saw through the obvious charade and installed Donald Trump instead.

You’d think that would be enough to dissuade Canadians who pride themselves on their hip, postmodern humour. But you’d be wrong, they don’t get the joke. Wag The Carney is the current political theatre as Liberals bury the reviled Justin Trudeau and pivot to Mark Carney. If you believe the polling it might just be working on a public besotted by ex-pat Mike Myers and “Canada’s Not For Sale”.

As opposed to Wag The Dog, few are laughing about this performative theatre, however. There are still two debates (English/ French)  and over three more weeks of campaign where anything— hello Paul Chiang—can happen. But with Laurentian media bribed by the Libs— Carney is threatening those who stray— people are already projecting what another four years of Liberals in office will mean.

As the most prominent outlier to Team Canada’s “we will fight them on the beaches…” Alberta’s premier Danielle Smith is already steering a course for her province that doesn’t include going to war with America on energy. She asked Trump to delay his tariffs until Canadians had a chance to speak on the subject in an election April 28. Naturally the howler monkeys of the Left accused her of treason. She got her wish Wednesday when Canada was spared any new tariffs for the time being.

Clearly, she (and Saskatchewan premier Scott Moe) have no illusions about Carney not using their energy industry as a whipping post for his EU climate schemes. They’ve seen the cynical flip in polls as former Trudeau loyalists hurry back to the same Liberal party they abandoned in 2024. They know Carney can manipulate the Boomer demographic just as he did when he called for draconian financial methods against the peaceful Truckers Convoy in 2022.

Former Reform leader Preston Manning is unequivocal: “’Large numbers of Westerners simply will not stand for another four years of Liberal government, no matter who leads it.’“ So how does the West respond within Confederation to protect itself from a predatory Ottawa elite?

Clearly, the emissions cap— part of Carney’s radical environmental plans— will keep Alberta’s treasure in the ground. With Carney repeating no cancellation of Bill C-69 that precludes building pipelines in the future, the momentum for a referendum in Alberta will only grow. The NDP will howl, but there will be enough push among from the rest of Albertans for a new approach within Canada.

In this vein Smith even wants to approach Quebec. While it seems like odd bedfellows the two provinces most at odds with the status quo have much in common .  “This is an area where our two provinces may be able to coordinate an approach,” Smith wrote this week. That could include referendums by the middle of 2026.

Perhaps the best recipe for keeping the increasingly fractious union together is a devolution of power, not unlike that governing the United Kingdom. While Westminster remains the central power since 1997, there are now separate parliaments in Scotland, Wales and Northern Ireland that put power closer to the citizen, so that local factors are better recognized in decision making.

With so little uniting the regions of the country any longer, devolution might provide a solution. What form could decentralization take within Canada? A Western Canada Parliament could blunt predatory federal energy policies while countering the imbalances of Canada’s equalization process. Similar parliaments representing Quebec, the Atlantic provinces, Ontario and B.C. would protect their own special interests within Canada. Ottawa could handle Canada’s international obligations to defence, trade and international cooperation.

While the idea is fraught with pitfalls it nonetheless remains preferable to a breakup of the nation, which four more years of Liberals rule under Mark Carney and the same Trudeau characters will likely precipitate. Smith’s outreach case would be the beginning of such a process.

None of this would be necessary were the populations of Eastern Canada and B.C.’s lower mainland remotely serious after snoozing through the Trudeau decade. The OECD shows Canada’s 1.4% GDP barely ahead of Luxembourg and behind the rest of the industrialized world from 2015-2025. As we’ve said before the Boomers sitting on their $1 million-plus homes are re-staging Woodstock on the Canada Pension and OAS. As with Wag The Dog, they’re not getting the joke.

When the Boomers award themselves another four years of taxapalooza and Mike Myers and the other “Canada Not For For Sale” celebs head south to their tax-avoidance schemes how will the Boomers say they’ve left Canada  better off for anyone under 60? We’ll hang up and listen to your answer on the TV.

Bruce Dowbiggin @dowbboy is the editor of Not The Public Broadcaster  A two-time winner of the Gemini Award as Canada’s top television sports broadcaster, his new book Deal With It: The Trades That Stunned The NHL And Changed hockey is now available on Amazon. Inexact Science: The Six Most Compelling Draft Years In NHL History, his previous book with his son Evan, was voted the seventh-best professional hockey book of all time by bookauthority.org . His 2004 book Money Players was voted sixth best on the same list, and is available via brucedowbigginbooks.ca.

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2025 Federal Election

Highly touted policies the Liberal government didn’t actually implement

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From The Audit

State capacity is the measure of a government’s ability to get stuff done that benefits its population. There are many ways to quantify state capacity, including GDP per capita spent on health, education, and infrastructure versus outcomes; the tax-to-GDP ratio; judicial independence; enforcement of contracts; and crime rates.

But a government’s ability to actually implement its own policies has got to rank pretty high here, too. All the best intentions are worthless if, as I wrote in the context of the Liberal’s 2023 national action plan to end gender-based violence, your legislation just won’t work in the real world.

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So I thought I’d take a look at some examples of federal legislation from the past ten years that passed through Parliament but, for one reason or another, failed to do its job. We may agree or disagree with goals driving the various initiatives, but government’s failure to get the work done over and over again speaks to a striking lack of state capacity.


The 2018 Cannabis Act (Bill C-45). C-45 legalized recreational cannabis in Canada, with a larger goal of regulating production, distribution, and consumption while reducing illegal markets and protecting public health. However, research has shown that illegal sales persisted post-legalization due to high legal prices and taxation. Studies have also shown continued use among children despite regulations. And there are troubling indicators about the overall impact on public health.

The 2021 Canadian Net-Zero Emissions Accountability Act (Bill C-12). The legislation aimed to ensure Canada achieves net-zero greenhouse gas emissions by 2050 by setting five-year targets and requiring emissions reduction plans. However, critics argue it lacks enforceable mechanisms to guarantee results. A much-delayed progress report highlighted a lack of action and actual emissions reductions lagging far behind projections.

The First Nations Clean Water Act (Bill C-61) was introduced in late 2024 but, as of the recent dissolution of Parliament, not yet passed. This should be seen in the context of the Safe Drinking Water for First Nations Act (2013), which was repealed in 2021 after failing to deliver promised improvements in water quality due to inadequate funding and enforcement. The new bill aimed to address these shortcomings, but a decade and a half of inaction speaks to a special level of public impotence.

The 2019 Impact Assessment Act (Bill C-69). Passed in 2019, this legislation reformed environmental assessment processes for major projects. Many argue it failed to achieve its dual goals of streamlining approvals while enhancing environmental protection. Industry groups claim it created regulatory uncertainty (to put it mildly), while environmental groups argue it hasn’t adequately protected ecosystems. No one seems happy with this one.

The 2019 Firearms Act (Bill C-71). Parts of this firearms legislation were delayed in implementation, particularly the point-of-sale record keeping requirements for non-restricted firearms. Some provisions weren’t fully implemented until years after passage.

The 2013 First Nations Financial Transparency Act. – This legislation, while technically implemented, was not fully enforced after 2015 when the Liberal government stopped penalizing First Nations that didn’t comply with its financial disclosure requirements.

The 2019 National Housing Strategy Act. From the historical perspective of six years of hindsight, the law has manifestly failed to meaningfully address Canada’s housing affordability crisis. Housing prices and homelessness have continued their rise in major urban centers.

The 2019 Indigenous Languages Act (Bill C-91). Many Indigenous advocates have argued the funding and mechanisms have been insufficient to achieve its goal of revitalizing endangered Indigenous languages.

The 2007 Public Servants Disclosure Protection Act (PSDPA). Designed to protect whistleblowers within the federal public service, the PSDPA has been criticized for its ineffectiveness. During its first three years, the Office of the Public Sector Integrity Commissioner (OPSIC) astonishingly reported no findings of wrongdoing or reprisal, despite numerous submissions. A 2017 review by the Standing Committee on Government Operations and Estimates recommended significant reforms, but there’s been no visible progress.


There were, of course, many bills from the past ten years that were fully implemented.¹ But the failure rate is high enough that I’d argue it should be taken into account when measuring our state capacity.

Still, as a friend once noted, there’s a silver lining to all this: the one thing more frightening than an inefficient and ineffective government is an efficient and effective government. So there’s that.

1

The fact that we’re still living through the tail end of a massive bout of inflation provides clear testimony that Bill C-13 (COVID-19 Emergency Response Act) had an impact.

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