The Latin American Community in Canada:

Strengthening Ties Through Better Integration

A Policy Discussion Paper by Derek Nawrot

Prepared for MPA 848, Queen’s University: Immigration Policy in

Canada April 2012

1

Canada: A Leader in Hemispheric Immigration: In July 2009, Prime Minister Stephen

Harper, speaking at the Fifth Summit of the Americas in Trinidad and Tobago, announced that

Latin America would remain a foreign policy priority for Canada. He followed this up with a

whirlwind visit to the continent in 2011; strategically planning his visit to include Brazil (the

largest economy in Latin America and one of the world’s fastest growing), Colombia (source for

the highest number of Permanent Residents in 2010 to Canada and partner in a recent free trade

pact between the two countries), Costa Rica (Canada’s largest trading partner in Central

America) and Honduras (recently readmitted to the Organization of American States).1 Canadian

engagement in Latin America however surpasses the economic prosperity, democratic

governance, and security interest objectives that Canada’s foreign policy vision is based on.2

Canada is, and continues to be, the northern cornerstone for Latin American hemispheric

immigration; increasingly welcoming not only economically-minded Skilled Workers, but also

Temporary Foreign Workers, especially in the agricultural sector, and Refugees. Today, over 11

percent of Canadian immigrants come from Latin America and the Caribbean, including Mexico,

and Latin America is the 4th

largest source of immigrants to Canada.3 In addition, there are over

70 Latin America and Caribbean diaspora organizations operating across Canada.4

Latin Immigrants in Canada: Issues and Challenges: Despite strong community-based

organizations and flourishing cultural and culinary contributions to the country, as well as

Canadians increasingly visiting Latin America, there continues to be a mostly undocumented

divide between ‘face-value’ interactions and the challenges the Latin American community

faces, both in external and internal integration. This policy development paper will examine

1 Government of Canada – Prime Minister of Canada, 2011a, Electronic resource 2 Government of Canada – DEFAIT, 2012a, Electronic resource 3 Houpt, S. – The Globe & Mail, 2011, Electronic resource 4 Government of Canada – DEFAIT, 2012, Electronic resource

2

some of these challenges and offer recommendations in order to better assist various levels of

government in allowing Latinos to better participate and strengthen their place in Canadian

society.

For the purpose of this report, Latin American is defined as living in any of the Spanish

speaking countries of South America, Mexico, and Central America. Countries such Belize,

Guyana, French Guinea, and Suriname, although located in the geographic confines of Latin

America, are not considered because of their official language use in English, French, and Dutch,

and because they are economically, socially, and culturally more oriented towards the Caribbean

or highly dependent on their original colonial founders.

The Fire Down Below – From refugees to Canadians: There has been relatively little analysis

of the Latin American community in Canada. Much of the work has been based on demographic

statistics that mention Latin American immigrants in comparison to international flows in

Canada however there are still many gaps in both qualitative and statistical analyses.

Encouragingly however, there have been a number of PhD dissertations which have examined

social-economic characteristics and whose findings have been incorporated in this report.

The immigration of Latin Americans to Canada has been identified in four major waves

through to the 1980s: 1. the Lead Wave, 2. the Andean Wave, 3. the Coup Wave and 4. the

Central American Wave.5 One could go further in identifying more current waves including that

of Colombian refugees as well the current wave of Temporary Foreign Workers. Waves can

mostly be defined along their geographic boundaries and motivations, which have evolved over

the years in becoming more political and out of survival. The Coup and the Central American

waves, also known as ‘The Refugee Waves,’ are perhaps how Canadians commonly identify

Latin American immigration flows; most likely because the ‘driving’ events in sending countries

5 Mata, F.G., 1985, p. 28

3

have been heavily publicized in Canadian media. These waves have lead to the organization of a

number of different solidarity groups which assisted in the quick consolidation of mostly Chilean

refugees escaping the Augusto Pinochet dictatorship.

In a joint Canadian-Colombian funded study examining the forced migration of

Colombians to Canada, it was found that the process of integration and setting up a new life plan

for Colombian refugees who arrive in the city of Vancouver was affected by the persistence of

reoccurring fear from the painful experiences lived in Colombia. As such, the fear is continually

relived and leads to a distrust of other Colombians and people in general. For these refugees,

relationships and social networks that are built are weak and temporary.6 A study on Hispanic

immigrant women’s adjustments to relocation in Toronto observed they often face language and

cultural barriers while their unfamiliarity with Toronto's institutions, conventions, and

employment processes makes them more vulnerable to exploitation.7 Interviews with youths

born in Latin America and now residing in Canada, or born in Canada to Latin American

immigrant parents, showed that they employ a wide range of strategies in order to feel they

belong and are safe. This includes ‘identity shifting’ which is adopting a Latin American identity

when speaking with their families or seeking a job with a Spanish-speaking employer, while in

other contexts, preferring to adopt a mainstream Canadian identity.8

In examining Latin Americans’ disintegration through the ethnic-based marketing

practices of Canadian firms, The Globe & Mail, called the Hispanic community “invisible” and

“all but unknown and ignored.”9 As such it has mostly been left up to the Latin community to

define themselves through online forums such as Diálogos, which allow authors to contribute

6 Alcalá, P.R. et al. 2007, p. 97 7 Barragan, J. 2001, p. 30 8 Simmons, A. & Carrillos, L. (2009). p. 2 9 Houpt, S. – The Globe & Mail, 2011, Electronic resource

4

views on the experiences of Latin Americans in Canada, and the Hispanic Development Council,

a Toronto-based community organization which strives to enhance the capacity of Latin

Americans to fully participate within Canadian society.

Latin Americans in Canada: A current perspective: The federal government’s only in-depth

look at Latin Americans in Canada, The Latin American Community in Canada, was published in

2007 and based on findings from the 2001 Census. Therefore it is necessary to bring this

information somewhat up-to-date using the 2006 Census, as well as Citizenship and Immigration

Canada data, to garner a better perspective of the Latin American community. The key findings

from this section are summarized in Appendix 1.

Although it is difficult to estimate the true number of Latin Americans in Canada, for

reasons that will be discussed under Recommendation #1, it was estimated in 2007 to be

approximately 700,000, or 2.2% of the total Canadian population.10

From 2001-2010, the sending countries have been consistent in the number of Permanent

Residents (PR) in the order of Colombia, Mexico, Brazil, and Peru. Together these countries

account for approximately 70% of all PR to Canada.11

From a regional perspective and

immigrant category, numbers of Economic and Family Class immigrants have remained constant

during the same time period. In 2001, Family Class immigrants from South and Central America

accounted for approximately 15% of all immigrants in this category. In 2010, they accounted for

the same amount. There has been a slight increase in Economic immigrants, which in 2010

accounted for approximately 6.5%; up from approximately 4.5% in 2001. The largest proportion

increase has been in the Refugee category, in which the region accounts for approximately 18%

of all refugees, almost double from 9.5% in 2001. These are mostly from Mexico due to a

10 Schugurensky, D. & Ginieniewicz, J., 2007, Electronic resource. 11 Government of Canada – Citizenship and Immigration, 2011b, Electronic resource

5

continuing internal crisis in that country as well as easier possibilities to secure a Canadian entry-

visa, and Colombia, which also experienced internal crisis mostly through the start of the 2000s.

Although this report mostly concerns itself with PR, a short mention should be made

regarding Temporary Residents (TR). TR have increased from approximately 10% to 14% as a

regional total between 2001-2010.12

In terms of sending countries, it is quite different. Mexico

continues to dominate the flow of TR, accounting for approximately 68% of all Latin American

countries. The next three are Guatemala, Brazil, and Chile. However employment factors vary

significantly. Guatemalans workers are typically seasoned agricultural workers whereas

Brazilians are likely to be coming into highly skilled, managerial and technical positions, due to

recent Brazilian acquisitions of Canadian companies.13

1415

Ontario and Quebec continue to be the preferred destinations for Latin American PR

however, from 2001-2010, there have been increases to all provinces with the exception of

Ontario, which continues to see its arrivals decline. In 2001, 86% of PR settled in Ontario or

Quebec. In 2010, this number was down to 79%.16

Similar to settling patterns of other

immigrants, 63% of all Latin Americans in Canada reside in Toronto, Montreal, and

Vancouver.17

Almost all Canadians of Latin American origin can carry on a conversation in at least one

official language. In 2001, 94% of all those who reported they had Latin American origins said

they could speak either English, French or both, while only 6% reported they could not speak

either official language.18

12 Government of Canada – Citizenship and Immigration, 2011b, Electronic resource 13 Government of Canada – DEFAIT, 2012b, Electronic resource 14 Austen, I., 2006, Electronic resource 15 Business News Americas, 2001, Electronic resource 16 Government of Canada – Citizenship and Immigration, 2011b, Electronic resource 17 Government of Canada – Statistics Canada, 2007, p. 10 18 Government of Canada – Statistics Canada, 2007, p. 12

6

Finally, the Ethnic Diversity Survey found that in 2002, 82% of those who reported Latin

American origin said they had a strong sense of belonging to Canada while 57% said that they

had a strong sense of belonging to their ethnic or cultural group; which may suggest the ability to

‘identity shift’ as discussed previously.19

At the same time, approximately 1 in 4 Latin

Americans had experienced some amount of discrimination or unfair treatment.20

Policy recommendations: The following are policy recommendations based on current

challenges facing Latin Americans in Canada:

Recommendation #1: In order to best identify the Latin American community in Canada, the

National Household Survey (in lieu of the Census) should categorize Latin Americans as ‘Latin

American-Spanish (including Mexico, Central America),’ with the option to be more specific,

and ‘Latin American – Brazilian’ in the Socio-cultural section.

Why this is necessary: Part of the difficulty in establishing the true number of Latin Americans

in Canada is due to Statistics Canada struggle in defining this ethnicity in censuses. According to

the initial data from the 2001 Canadian Census, approximately 212,000 people of Hispanic

origin were living in Canada. However, upon a request from the Hispanic Canadian Congress,

Statistics Canada re-analyzed the data using a new definition of "Hispanic." The qualifying

criteria set for the new definition were any person who listed at least: a) ethnic origin linked to a

Spanish-speaking country; b) Spanish as a first language; and c) birth (either their own or their

parents') in a Spanish-speaking country. Under this new calculation, Statistics Canada more than

doubled its original estimation to find the number of Hispanics at 520,260.21

The problem with this new definition is that it included immigrants from Spain and

excludes Brazilians. In the subsequent 2006 Census and 2011 National Household Survey (in

19 Government of Canada – Statistics Canada, 2007, p. 17 20 Ibid. 21 Schugurensky, D. & Ginieniewicz, J., 2007, Electronic resource

7

lieu of the Census), the ethnicity was changed to Latin American to include Brazilians and with

the option to be more specific.

The current National Household Survey (NHS) will potentially provide no clearer picture

of the Latin American population. It asks the respondent to voluntarily identify languages that

are spoken most often and on a regular basis at home if not English or French; however the

respondent has to physically write ‘Spanish’ or ‘Portuguese.’ Furthermore, Latin American is

provided when asking the ethnicity however this is a broad geographic region that persons may

not identify with nor see themselves as belonging to.22

For example, when completing the

Canadian Census, many Euro-Latin Americans have probably reported their European ethnicity

as primary (e.g., Polish-Argentineans, German- Chileans, etc.).23

Although a further recommendation might be for the NHS to specify language options for

respondents, Recommendation #1 allows a better understanding from previous censuses by

defining Latin American, including those from Brazil, and also avoids any potential confusion

from Mexicans or Central Americans, who may not identify with the term Latin American.

Potential issues: Difficulties may arise due to confusion amongst those ethnicities from countries

(namely Guyana, French Guinea, and Suriname) which are physically located in Latin America

but not oriented towards Latin America through the Spanish or Portuguese languages. This issue

is further exacerbated because under the ethnicity question, there is no clear category for these

respondents (as well as those from Caribbean nations). This is significant given that there are

approximately 61,000 Guyanese in Canada.24

Including an ethnicity category ‘Caribbean’ might

22 Government of Canada – Statistics Canada, 2010, Electronic resource 23 Mata, 1987 cited in Recalde, A., 2002, p. 19. 24 Government of Canada – Statistics Canada, 2006, Electronic resource

8

be appropriate, as culturally Guyana has identified with this area,25

however this could also likely

lead to confusion as to what constitutes ‘Caribbean.’

A further challenge is allowing Euro-Latin Americans, with Latin American origins, to

identify themselves as primarily Latin American. If these Euro-Latin Americans were

completing a census in their country of origin, for example Argentina or Colombia, many would

identify themselves as white. There is the possibility they will continue to define themselves as

White, and not Latin American. A survey conducted by the Pew Hispanic Center in the United

States found that 36% of Hispanic adults surveyed considered themselves as ‘White.’26

Although

this is difficult to prevent, results of the current NHS should be examined to see those

respondents who identified themselves as ‘White’ and whose language at home is ‘Spanish’ or

‘Portuguese.’ If the results are significant, future NHSs should be adjusted.

Recommendation #2: Increase multicultural grants and contributions for projects that will

bridge the Latin American community with Canada.

Why this is necessary: Social capital refers to the networks of social relations that may provide

individuals and groups with access to resources and supports.27

The challenge of socio-cultural

integration for the Latin American community consists of being able to preserve their cultural,

social, and linguistic identity while at the same time participating fully in Canadian life.28

In a

recent study measuring various ethnicities’ social and cultural integration in Canada, it was

found that Latin Americans are among the least integrated.29

There are a number of possible

reasons including insecurity of the increase in globalization and ‘new ways’ of doing business,

25 Janki, M., 2004, p. 1 26 Taylor, P. et al., 2012, Electronic resource 27 Policy Research Initiative, 2005, p. 6 28 Schugurensky, D. & Ginieniewicz, J., 2007, Electronic resource 29 Wong, L. 2011, Electronic resource

9

difficulties in settlement and adjusting to life in Canada, and economic uncertainty and the fear

of marginalization.30

Culture as a ‘soft-power’ is typically referred to as a diplomatic tool.3132

However the

concept of diplomacy can also be extended to community interactions and cultural exchange can

serve to build bridges between diverse communities. Especially in Toronto and Montreal, where

large Latin American communities exist, there are a number of cultural programs that seek to

bring Latin American culture to Canadian attention while acting as catalysts in building socio-

cultural integration in a ‘soft’ manner. Examples of these include:

Free weekly summer festivals organized by the Harbourfront Centre in Toronto which

focus on programming from various Latin American nations and feature artists from

these countries as well as Canadian-Latin American artists (In 2011, festivals focused on

Mexico and Colombia and in 2010 on Brazil)33

;

The Dos Mundos (Two Worlds) radio program run through the University of Toronto’s

CIUT, which is broadcast in English but features mostly Latin music and promotes local

Latin American-Canadian musicians and artists. The founder, Sergio Elmer, also

promotes concerts featuring international and local artists and the audience is a strong

mix of Latin Americans and non-Latin Americans.34

Montreal, Toronto, and Vancouver host annual Latin American film festivals that feature

films subtitled in English and French. In 2011, as part of the celebration for the City of

Vancouver’s 125th anniversary, the Vancouver festival presented a series of short films

30 United Nations, The., 1994, p. 4 31 Potter, E., 2005, p. 2 32 Nye, J., 2008, p. 95 33 Harbourfront Centre, 2012, Electronic resource 34 Dos Mundos Radio, 2012, Electronic resource

10

showcasing creative works by Vancouver-based filmmakers of Latin American

descent.35

The Multiculturalism Program, administered through Citizenship and Immigration

Canada, provides financial assistance (grants and contributions) to not-for-profit organizations,

non-federal public sector institutions, regional and municipal governments, Aboriginal

organizations and band councils and individuals through project funding.36

However in 2009-10,

the Multiculturalism Program provided only $4 million in funding to 14 projects. Although it is

beneficial to support large programs, more funds should be devoted to smaller programs. One

way of doing this is working with Heritage Canada to ensure that a set amount of budgeting is set

aside for programs that support multiculturalism. Harbourfront Centre, for example, was the

beneficiary of $650,000 from Heritage Canada over the 2009-2010 seasons.37

However programs

like Dos Mundos and the film festivals should also be allocated funding, even if it is a smaller

amount. This recognizes the importance of these agents in building socio-cultural capital

amongst the greater community as well as forums for Latin Americans, and other ethnicities, to

interact with Canadians. A sub-recommendation would be for Heritage Canada to assist

community-based organizations by providing a ‘one-stop’ website of all grant monies available;

both from the federal government as well as provinces, municipalities and smaller arts councils.

Potential issues: Funding is increasingly difficult to secure given current government reductions

in spending. Although a lack of funding can be challenging to mitigate, programs should be

encouraged to utilize the community in trying to get access resources ‘pro-bono.’ For example,

through the provision of free or low rent space or advertising, volunteers, etc. With decreased

funding also comes more competition between human service providers as well as increased

35 Vancouver Latin American Film Festival, 2011, Electronic resource 36 Government of Canada – Citizenship and Immigration, 2011c, Electronic resource 37 Government of Canada – Canadian Heritage, 2009, Electronic resource

11

demands for accountability including the monitoring of service provision, performance

measurement, and program evaluation.38

As such, organizations, especially those that focus on

the Latin American community, should be encouraged to submit joint funding applications as

well trying to bring together various organizations under an ‘umbrella.’ These partnerships could

also be extended to the non-Latin American community. So for example, hold the Latin

American film festivals at the same time as like-minded events at Harbourfront. Or, partner with

the Toronto International Film Festival to have a special focus on Latin American films. This

will also allow organizations to share resources which can help those smaller organizations to

learn about devising proper performance measures and evaluations.

Recommendation #3: Local governments should be encouraged to work with Latin American

community organizations in strengthening ties with settlement organizations in promoting

greater civic participation and citizenship, especially amongst vulnerable populations.

Why this is necessary: Citizenship education and the encouragement of active civic participation

are one of the few direct strategies that a host country can use to prepare immigrants to

participate politically and economically and instil a sense of belonging in Canadian society.39

Although Latin Americans are a diverse community within Canada, this diversity is often found

to be accompanied by alienation, isolation, mistrust, and fragmentation. As such, the Latin

American community in Canada is found to suffer double-fragmentation. Not only have most

activities developed inside each national or ethnic micro-community (which number

approximately 21 nationalities and more than 45 ethnic groups), but also each national or ethnic

micro-community has fragmented into different sub-groups that rarely interact with each other.40

In addition, there are certain demographics that require special needs. For example, Latin

38 Kettner, P. et al., 2008, p. 4 39 Armony, V. et al., 2004, p. 20 40 Schugurensky, D. & Ginieniewicz, J., 2007, Electronic resource

12

American women, as other immigrant women, tend to rely extensively on service provision

mostly because they are the primary caregivers in charge of their families’ daily needs and

health. Also, Latin American youth form a special needs group in terms of their need for

language instruction and assistance in the education system; considering their relatively low

levels of achievement, significant rates of high-school dropout, as well as issues of delinquency

and street gangs.41

There is active civic participation of Latin Americans in Toronto through organizations

such as the Hispanic Development Council, the Centre for Spanish-Speaking People, the Latin

American Coalition Against Racism and economically through the Toronto Hispanic Chamber of

Commerce. Although the Centre for Spanish-Speaking People does offer settlement services, the

other organizations that do not should look to work with settlement agencies at bridging

newcomers into civic society from the start of the residency in Canada. As local governments are

the closest to the communities, they have the opportunity to interact with members in unique and

personable ways. For example, they can approach organizations such as those listed above and

enter into dialogue about how to create opportunities to engage and bridge newcomers and

vulnerable populations into the community.

Potential issues: It may be difficult to identify newcomers who do not use settlement services. A

study in York Region found less than a third of the recent immigrants have used settlement

services.42

Reasons include changes in service provision, including a decline in the quality and

quantity of programs, the introduction of new eligibility criteria, and less accessible language

instruction through reduced or eliminated funding.43

It will not be easy to access the roughly 2/3

that do not utilize settlement services, including those vulnerable populations. This necessitates

41 Veronis, L., 2006, p. 135 42 Lo, L., 2010, p. 20 43 Veronis, L., 2006, p. 133

13

stronger participation of community organizations which can use their networks and members,

for example, to advertise settlement services, identify newcomers, etc.

The diversity of the Latin American community will be challenging to unite. Such is the

importance of broader organizations which advertise themselves as ‘Latin American’ and do not

direct themselves towards a specific country or audience. Perhaps a step in the right direction

could come through the billing of larger events directed at the Latin American-Canadian

community, which would welcome artists and demonstrations from many countries, as opposed

to, for example, Harbourfront’s current practice of having a Mexican or Colombian weekend.

Furthermore, funding could be earmarked for events which look to incorporate the broader

community.

Conclusion: The challenges, both internally and externally, facing the Latin American

community although not largely documented, are well-documented and clear. Although the

community grows stronger by the day, as do Canadians knowledge of Latin America, partly due

to engagement through cultural activities, there are major hurdles to conquer. There is no one

level of government or organization that can accomplish this – progress will have to come

through partnering. Although only a start, the policy recommendations within this report attempt

to build on existing foundations to ensure that the Latin American-Canadian community

continues to be strengthened and grow – most importantly through the increase in the sense of

belonging and contributions that Latin Americans have in their new society.

Contact:

Derek Nawrot

d.nawrot@queensu.ca

14

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Appendix A: Select Latin American Immigration data

Source: CIC, 2010

Canada – Permanent residents by category and source area 2001 2002 2003 2004 2005 2006 2007 2008 2009

Colombia 2,966 3,225 4,273 4,438 6,031 5,813 4,833 4,995 4,240

Mexico 1,939 1,918 1,738 2,245 2,854 2,830 3,224 2,831 3,104

Brazil 857 759 865 934 976 1,209 1,759 2,127 2,480

Peru 852 859 1,021 1,455 1,658 1,479 1,475 1,078 1,872

Venezuela 572 554 710 1,259 1,235 1,221 1,373 1,259 1,385

El Salvador 446 469 441 437 428 421 923 1,107 825

Argentina 625 844 1,783 1,648 1,169 894 624 542 492

Ecuador 366 446 380 506 561 620 591 642 529

Honduras 179 147 113 132 160 160 160 177 166

Chile 377 437 343 375 392 452 546 359 388

Guatemala 255 248 178 217 192 215 259 255 273

Costa Rica 136 115 120 173 206 320 305 282 240

Bolivia 79 59 63 98 137 149 111 164 222

Paraguay 53 85 108 83 78 105 124 123 101

Uruguay 73 103 108 149 294 202 175 161 108

Nicaragua 102 63 82 62 75 90 67 121 110

Panama, Republic of 57 53 50 46 66 72 72 59 80

Total Latin America 9,934 10,384 12,376 14,257 16,512 16,252 16,621 16,282 16,615

Total 250,638 229,048 221,349 235,824 262,241 251,642 236,754 247,248 252,172

By category and region 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

Family Class

South and Central America 10,039 7,832 7,387 7,448 7,171 7,043 7,372 7,711 7,734 8,974

Total 66,795 62,292 65,121 62,275 63,374 70,517 66,242 65,582 65,204 60,220

0.14902

Economic Immigrants

South and Central America 7,474 8,040 7,313 8,454 8,205 7,191 9,466 11,392 12,390 12,148

Total 155,717 137,863 121,047 133,747 156,312 138,250 131,245 149,071 153,491 186,913

0.064993

Refugees

South and Central America 2,657 2,841 3,712 4,596 7,637 7,602 6,077 4,699 3,680 4,442

Total 27,919 25,113 25,983 32,687 35,776 32,500 27,954 21,858 22,850 24,696

Destination of Latin American PR to Canada

Place (PRs) 2001 2001 2010 2010 Direction

Nova Scotia 84 0.4% 131 0.5% Increasing

Other Atlantic 97 0.5% 148 0.5% Same

Quebec 5553 27.5% 10,393 36.7% Increasing

Ontario 11784 58.3% 12,032 42.4% Decreasing

Manitoba 267 1.3% 951 3.4% Increasing

Sask 51 0.3% 237 0.8% Increasing

Alb 1008 5.0% 2,501 6.9% Increasing

BC 1362 6.7% 1,948 6.9% Increasing

Territories 4 0.0% 13 0.0% Increasing

Total 20210 100.0% 28354 100.0%