Presentation on Social Capital by Blair Jackson

1. CES 2013 Conference June 11, 2013

2. About Goss Gilroy Inc. (GGI)
Established in 1981. Offices in Ottawa and St. John’s.
25 multi-disciplinary consultants. All CES members (6
with CE designation)
Our main areas of practice are:
Program Evaluation
Performance Measurement
Organizational Development
Resource Management
My background:
11 years in evaluation and community-based studies.
 MA (interdisciplinary / Community Development)

3. Purpose
 Result of a graduate studies project. Built on
experience in evaluating several programs related to
settlement and integration
 Examined a social issue while indentifying
alternative uses for evaluation (e.g. best available
evidence)
 Policy- present the role of social capital, including
challenges and benefits of considering social capital in
settlement (and integration)
 Practice- Build a case for utilization of evaluation
evidence (e.g. best available evidence analyses) when
relevant peer reviewed sources are limited.

4. Definitions
 Human Capital – Recognizable skills and
experience. Largely quantifiable (e.g. years
of experience) and identifiable (e.g. degree
from recognized university)
 Social Capital – The value of attachment to
social networks (friends, family, cultural
groups, language groups* etc.). Often
intangible, hard to quantify. More inclined
to qualitative measurement.

5. Background
Traditionally, economic measures are applied to
assess settlement results (e.g. earnings, tax data,
social support payments, etc.). Often cross-tabulated
by human capital factors (e.g. education, years of
experience, skills, etc.)
By all common metrics, the settlement results of
Canadian immigrants have not improved in 20 yrs.
Policy increasingly concentrates on economic
criteria in intake decisions. As a result measurement
of outcomes (e.g. settlement) follows suit.
If results haven’t improved, it is worth measuring
other factors that influence success and use them to
influence policy, program development, and “eval”.
Hypothesis is that you can have an economic
agenda, fulfilled, (in part) by SC

6. Background (2)
Federal intent of immigration is to pursue the
maximum social, cultural and economic benefits of
immigration (i.e. IRPA 2001).
Challenging to understand benefits being derived if we
do not understand the baseline and do not measure the
outcomes.
Need to inform theory-based approaches going forward
Ultimately, improve settlement experience by
considering SC at intake and support SC in settlement.
Theoretically, if SC is better understood, the
$1Billion spent on settlement could be optimized
Here is some additional supporting evidence...

7. Approach
Reviewed 50 journal articles and 12 evaluations.
Boiled down to approx. 8 articles and 8 evaluations
that provided the bulk of the evidence.
Canadian literature is not extensive. Xue (2008)
stated that US studies were not highly applicable
Without ``best available`` evaluation analysis the
evidence would have been thin!
Standard content analysis of info related to family,
social groups, cultural groups, etc.

8. Why is human capital not enough?
Credentials are a critical component of
Human Capital
The “Golden Goose” is Canadian experience
FCR is imperfect and somewhat misaligned
with labour market realities. For example:
Discounting of foreign credentials is rampant.
(Brouwer 1999; Alboim, Finnie et al. 2005; Carter
2009; CIC 2010c; Sommerville et al. 2010).
If discounting occurs labour market
integration will not be commensurate to
expectations of Canada and the newcomer.

9. Why is human capital not enough? (2)
Discounting HC is often influenced by
employer and regulatory requirements for
Canadian work experience, licensing for
regulated professionals, and work-specific
language abilities (Alboim et al, 2007).
If your human capital is discounted what are you
left with?
Essentially selection and integration are not
directly aligned, as selection criteria is intake
focussed rather than integration focussed.
(Boudarbat and Boulet, 2007)

10. How can understanding SC help? (Lit)
SC has been found to benefit human capital (e.g. wage
impact, better job). Strong ties (e.g. family) are more
influential than weak social ties (e.g. organizations).
Especially for those who are disadvantaged with
respect to their human capital. (Xue, 2008)
One of very few Canadian studies of this nature.
Contrary to findings of US studies.
SC of immigrants has been correlated with
fundamental well-being indicators such as health
(Zhao, Xue, & Gilikson, 2010)
Evaluations and other research demonstrates that HC
is enhanced by SC. For example, speed of access to
desired job is reduced by social networks (Grenier &
Xue, 2011)

11. How can understanding SC help? (Evaluation)
Some immigration streams mitigate discounting by
ensuring a job offer is secured in advance (CIC 2011a).
Other streams allow applicants who rate high on HC
criteria to roll the dice in the labour market.
There is inherent risk in this, without fully
understanding, at a policy level, how SC will bolster the
settlement experience.
A few economic settlement program (e.g. PNP) have
deliberately weighed SC, once fundamental HC
measures were met. (SC safety net)
Family of Canadians citizens (e.g. cousins, aunts, uncles,
siblings). Theory being family will support the integration
experience and new arrivals will help retention of early
arrivals.
Small scale. Too soon to know the full extent .

12. How can understanding SC help?
Current emphasis is on high skilled immigrants; expanding
low wage TFW positions (i.e. low skilled positions); and
encouraging settlement in less populated areas (where
formal settlement supports are minimal). (Dobrowolsky
2012)
Although economic opportunities are distributed across Canada,
formal and information social supports are not delivered
consistently outside major urban centres (Akbari 2008).
Economic agendas tend not to recognize this imbalance in
distribution of social supports.
More can be done to establish the causal linkages between SC,
HC and settlement outcome to ensure that SC is considered at
each stage.

13. What can be done?
We are seeing examples of SC as the catalyst to make HC
work.
Some Provinces deliberately use tailored settlement
supports to attract immigrants away from major centres
(Akbari, 2008; Carter et al, 2008)
Recent changes indicate the lens is widening. In provinces
where immigrants are encouraged to settle away from the
major centres are expanding social settlement supports
targeted at the principal applicants and their families.
 E.g. Hubs in Saskatchewan
 Targeting source countries and cultural groups
The network of support provided by friends and family
through their settlement process (Carter 2009).
All of these findings are like blips on the radar and we need
to connect the dots.

14. What are the potential hurdles?
Applying the knowledge- SPO capacity is limited in
providing a full spectrum of social and economic
settlement supports (Richmond and Shields 2005).
Consider alternate approaches to apply and measure
Making sense if it- currently some programs consider SC to
be an asset (e.g. PNP). Others see SC as both an asset and
a liability.
Family who provide job offers are a risk (i.e. potential source
of fraudulent job offers) (CIC, 2010c).

15. How to measure social capital
No easy answer. Coming years will be telling.
Qualitative
Focus Groups- we are fairly successful in reaching groups of
newly settled Canadians in most evaluations of settlement
programs. They tend to be forthcoming and willing to share
their experience.
 The narrative is there to be captured. (e.g. PNP, ELT groups
etc.). Need a mandate through the evaluation framework.
Quantitative
Surveys- Surveys of newcomers have come a long way over
the past decade. Likely the preferred quantitative method.
Administrative data tends to not be available. Could be built in
down the road.
 Unlike with qualitative methods, the evidence is not there.
Need to build this into surveys. Tough balance when you are
competing with questions of economic impact.

16. What sources contribute?
Work continues in terms of research into the
consideration of social capital in immigration and
settlement. (e.g. Xue 2008, 2010, 2011).
 This is required to inform appropriate indicators.
As CIC moves toward the next evaluation of the
$1B settlement program (2 to 3 years from now)
they have started to plan a coordinated approach.
Settlement evaluation evidence is being
consolidated under a special study to get a holistic
view of the suite of programs.
With this in mind, hopefully the metric are
expanded to draw linkages between social and
human capital.

17. Conclusion
Labour market integration is a continual challenge,
with little evidence of progress.
Considering economic realities and labour market
needs, human capital remains an important aspect of
selection criteria.
However, predicting success, purely on an economic
basis, omits social factors that contribute to settlement
and sustain economic outcomes over the long-term.
This is a particularly important consideration given the
high proportion of population growth that is attributed
to immigration.
The challenge lies in the measurement.

18. Discussion
Questions?
Are you aware of examples where evaluations are
being used as “best available” source on
evidence?
What are some thematic areas in which this
method could be applied?

19. References
 Alboim, N., Finnie, R., & Meng, R. (2005). The discounting of immigrants’ skills in Canada: evidence
and policy recommendations. Choices, 11(2), February 2005. Accessed on Dec 2, 2012 from:
http://www.irpp.org/choices/archive/vol11no2.pdf
 Alboim, N. & McIsaac, E. (2007). Making the Connections: Ottawa's Role in Immigrant Employment.
IRPP Choices 13 (3). Accessed in http://www.irpp.org/choices/archive/vol13no3.pdf
 Akbari, A. (2008). Introduction. Int. Migration & Integration 9:341–344
 Biles, J. (2012). From “Alchemy” to Outcomes: Fostering an Integrated Society –Evaluating Our
Performance? Presentation: Halifax CES 2012
 Boudarbat, Brahim and Maude Boulet (2007). Détérioration des salaires des nouveaux immigrants
au Québec par rapport à l'Ontario et à la Colombie-Britannique . IRPP Choices 13, no 7. Montréal :
Institut de recherche en politiques publiques. http://www.irpp.org/fr/choices/archive/vol13no7.pdf
 Brouwer, A. (1999). Immigrants Need Not Apply. Ottawa: Caledon Institute of Social Policy. Accessed
in http://maytree.com/PDF_Files/summaryimmigrantsneednotapply1999.pdf
 Carter, T. (2009). An Evaluation of the Manitoba Provincial Nominee Program. Accessed Nov 2 2012
in http://www.gov.mb.ca/immigration/pdf/pnp-manitoba-provincial-nominee-program-tom-carter-
report-2009.pdf
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Communities: Lessons Learned from the Manitoba Provincial Nominee Program. Int. Migration &
Integration 9:161–183. Accessed Nov. 28 2012 online via Athabasca University Library
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sct.gc.ca/dpr-rmr/2006-2007/index-eng.asp


20. References
 CIC (2007). Report on Plans and Priorities 2006-2007. Accessed Dec. 2 2012 http://www.tbs-
sct.gc.ca/rpp/0607/ci-ci/ci-ci_e.pdf
 CIC (2010a). Evaluation of the Host Program. Accessed Nov 2. 2012 in
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 CIC (2010b). Audit of the Administration of Settlement Programs. Accessed Dec. 5, 2012
http://www.cic.gc.ca/english/resources/audit/settlement/summary.asp
 CIC (2010c). Federal Skilled Worker Program Evaluation. Accessed Nov 2. 2012 in
http://www.cic.gc.ca/english/resources/evaluation/index.asp
 CIC (2011a). Federal Provincial Nominee Program Evaluation. Accessed Nov 2. 2012 in
http://www.cic.gc.ca/english/resources/evaluation/index.asp
 CIC (2011b). Facts and Figures: Immigration Overview–Permanent and Temporary Residents.
Accessed Dec. 5, 2012 http://www.cic.gc.ca/english/pdf/research-stats/facts2011.pdf
 CIC (2011c). Evaluation of Government Assisted Refugees and Resettlement Assistance Program.
Accessed Nov 2. 2012 in http://www.cic.gc.ca/english/resources/evaluation/index.asp
 CIC (2012a). Departmental Performance Report. Accessed Dec. 5 2012
http://www.cic.gc.ca/english/resources/publications/dpr/2012/index.asp
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in http://www.cic.gc.ca/englisH/department/media/releases/2012/2012-08-17.asp
 CIC (2012c). Evaluation of the strategic plan for settlement and language training under the Canada-
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

21. References
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

22. References
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23. References
 Xue, L. (2008b) Social Capital and Wages: Outcome of Recent immigrants to Canada
 Zhao, J., Li Xue, and Tara Gilkinson (2010) Health Status and Social Capital of Recent Immigrants in
Canada: Evidence from the Longitudinal Survey of Immigrants to Canada. Originally published as a
chapter in the following: McDonald, T., E. Ruddick, A. Sweetman, and C. Worswick, eds. 2010. Canadian
Immigration: Economic Evidence for a Dynamic Policy Environment. Montreal and Kingston: Queen’s
Policy Studies Series, McGill-Queen’s University Press. ISBN 978-1-55339-281-1 (pbk.)

24. Contact
Blair Jackson
Principal
Goss Gilroy Inc.
bjackson@ggi.ca
Twitter: @Blairski24