on-hold said:
I would be interested to know if the sub rosa changes that took place were something that had been in the air for a while, or were catalyzed by a particular event, such as the airlift of expatriate Canadians from Lebanon.
I would not say the changes were secret. They were not publicized. Aspects of them have been
confidential, which is secret, but in terms of how this government evolved in its approach to pushing a physical presence test versus a
residency test, as I said above, this is well illuminated in the course of CIC's arguments to the Federal Court over the years . . . these proceedings are open to the public, sometimes reported in local media but at the least are publicly published in multiple sources, at least two of which allow free access (I think my case links above include examples of the two I regularly review, both free).
That said, it is not as if the citizenship cases are widely followed or known outside those who are engaged in these matters (lawyers, consultants) or simply interested (like me). And in the meantime, the law did not actually change at all, and neither did CIC's information to prospective citizenship applicants . . . for example, CIC's FAQ about what happens if the applicant meets the basic residency requirement but has less than 1095 days actual presence remained largely the same for many, many years, while in fact citizenship's actual approach changed rather radically . . . CIC continuing to inform prospective applicants, right up to June 10, 2015, that if they were short of 1095 it was up to a Citizenship Judge to determine if they met the residency requirement. And it was referred to as a
residency requirement, not a physical presence requirement.
In terms of the difference between what was simply not publicly broadcast versus what has been
confidential or "secret," that difference is probably best illustrated by OB 407, which was implemented in April 2012. The general public was not informed. Most Operational Bulletins were published at the CIC web site but not all. (These days there are "updates" to the Program Delivery Instructions, accessible through the publications pages at CIC.) This one, OB 407, was not. All of a sudden, however, in May and June 2012, the forums were flooded by reports of newly issued RQ including a huge number of RQs issued before the test had been scheduled. Previously, pre-test RQ was extremely rare. Many forum participants soon made ATI requests trying to find out what was going on. At some point this led to the disclosure of OB 407 with large parts redacted (my memory of this is not precise . . . seems it was at least well into July before we knew about "OB 407" by name). OB 407 never was publicly published, and somewhat ironically even after it had been identified by name and there were numerous requests for it specifically, the responses to these requests varied, with a lot of inconsistency, some containing a lot more of the OB redacted than others (these should all still be available through CIC's completed information requests, which used to be far easier to access; now it appears the only access is through Canada's OpenData Portal, which is not user friendly, as there are literally tens of thousands of requests listed to search through, and I am not sure how to access those older than 2013, they are accessible still somewhere but the government does not organize this information in a way which facilitates browsing access . . . frankly, while cost-cutting is probably a factor in how these information resources have been reorganized, this has been part of a consistent trend in which access to information has been reduced and even when retained it has become more and more difficult to actually access).
Lebanon and other factors:
None of the information I saw specifically cited the Lebanon situation as a cause or reason, but it clearly was a factor in a number of changes, both in written policy changes and unwritten ones. Another big factor was the unraveling of (somewhat) widespread fraud connected to a number of both authorized and a larger number of unauthorized
consultants, when CIC identified some particular addresses in Mississauga having been used for their "residential address" by literally
several hundred citizenship applicants. So, yes, some of the changes were far more gradual until around 2009 and 2010. Note, for example, when I first began following citizenship fairly closely, in 2008, the typical timeline appeared to be around 8-10 months, and when some forum participants were reporting a timeline sliding past a year they were doing so with loud expressions of outrage. By 2011, the timeline generally had grown to well over a year, and then in 2012 the processing of citizenship applications came to a near standstill.
There were multiple threads of elevated scrutiny unfolding in that period 2009 through 2012 into 2013:
-- shortfall applicants (this had started earlier but because it was not apparent until reflected in Federal Court decisions, which are cases many years old by the time there is a published decision, we did not see actually happening until years after it had begun)
-- applicants who left Canada while the application was pending
-- particular suspicion aimed at applicants with U.S. Green Cards or work permits for the ME
-- heightened concerns if not suspicion toward applicants with extensive periods of unemployment, self-employment, or employed in a
"consultant" capacity
But the overriding aspect for this thread, is that when Ardi77 applied, back in 2010, it was NOT widely known that CIC was acutely focused on physical presence rather than residency.
For many, many applicants then, the question was (1) did you meet the basic residency requirement (thus were you
eligible for citizenship) and (2) did you maintain your
residency in Canada for at least three years (with only half-time credit for time living in Canada prior to becoming a PR). If the answer to these questions was in the affirmative, it was time to apply for citizenship.
As I noted, back then PMM was among a very few suggesting otherwise. And as PMM is wont to do, there was no elaboration or explanation of reasoning, just the simple but, as it turned out, highly astute observation.
As I also noted, the transition in how CIC approached shortfall applicants started well before it was otherwise apparent, let alone obvious, again because it was not apparent until reflected in Federal Court decisions, which are cases many years old by the time there is a published decision . . . so it was not until 2010 or so (see references to the
Sarvarian decision below) that the changes were becoming apparent (and to a large extent, that is in hindsight), and not definitively so until the decisions by Rennie, Snider, and other Feferal Court justices in the second half of 2011 reflected a big shift.
In fact, until Justice Rennie's decision in 2011, the trend seemed to be more toward an almost mandatory consideration of qualitative residency factors, see for example
Ocla, a 2011 decision . . . which, it later turned out, was among the last leaning in that direction.
From cases like the oft cited
Lam decision, and the oft cited
Takla decision, continuing to when Justice Barnes issued his decision in
Ocla, scores of official decisions repeated language similar to that of Justice Mainville in 2009, in the
Takla decision:
The third jurisprudential school has become dominant with time and it is based on Madam Justice Reed’s analysis in Koo, above. This jurisprudential school maintains that the test is whether the individual has centralized his or her mode of existence in Canada.
The Koo test was adopted in this Court’s jurisprudence to the point that it is now, by far, the dominant test . . .
Considering the clear majority of this Court’s jurisprudence, the centralized mode of living in Canada test established in Koo, above, and the six questions set out therein for analytical purposes should become the only test and the only analysis.
Justice Mainville's conclusion, that the centralized mode of living in Canada
should become the only test of residency, was not universally embraced, but almost all Federal Court justices then were recognizing the validity of its key premise: that
the Koo test had become the dominant test of residency.
That was the environment in which
Ardi77 applied in 2010.
But in 2010 Donald Rennie was appointed to the Federal Court, apparently with a mission since it was not long before he issued a
ruling (not just an observation) totally in the opposite direction.
In the meantime, though, observers like me
should have but did not immediately fully grasp the significance of the situation reflected by the
Ocla case. We had already seen the
Sarvarian decision from the fall of 2010. The
handwriting-was-on-the-wall so to say. Ocla was 99 days short. Sarvarian was 172 days short. But the underlying facts and circumstances in both cases were well within the range of what would qualify under the
Koo test. In both these cases the respective Citizenship Judge applied the strict presence test and denied the applications. Ocla won his appeal. Savarian lost.
But what should have jumped out and tapped me on the forehead (my account of these cases in real time, back in 2011, is still in older pages of forum discussions at immigration.ca) was the fact both these individuals had been rather summarily rejected based on the actual presence test despite how clearly both were settled in Canada, and how clearly the reasons for time abroad were temporary and consistent with their lives in Canada (Ocla, for example, was a university professor who spent his summer months either participating in or teaching in programs at various universities elsewhere in the world, and who often traveled abroad for conferences during the school year, all closely related to his profession, adding up to being abroad slightly more than 1/4 the time, thus never quite reaching the 1095 days APP threshold). In early 2011 I did post a comment expressing some confusion regarding the
Sarvarian decision, given again that at that stage it still appeared, as Justice Mainville observed in 2009, that
the Koo test had become the dominant test of residency.
So all this blaming
Ardi77 for applying before being qualified is malarkey.
Ardi77 was eligible.
Ardi77 appeared to be qualified pursuant to the then
dominant test for determining residency. And for the ordinary person, "residency" is about maintaining a primary place of abode, not where one is necessarily physically located all the time. In 2010 there was virtually no source of information, not even these forums (unless one happened to post a particular question about this and PMM responded), informing prospective applicants like
Ardi77 that it was a mistake to not wait until reaching the full 1095 days of APP threshold.
For further context:
CIC's internal practice guideline for assessing residency, CP 5 "Residence" (from at least 2005 until replaced outright last year by Program Delivery Instructions, and largely replaced in effect by OB 407 in 2012), specifically set out a version of the
Koo test for assessing residency.
For many years many courts also cited Justice Thurlow's language (the other
qualitative test, more general than
Koo) in
Papadogiorgakis:
It seems to me that the words "residence" and "resident" . . . are not as strictly limited to actual presence in Canada throughout the period . . . but can include, as well, situations in which the person concerned has a place in Canada which is used by him during the period as a place of abode to a sufficient extent to demonstrate the reality of his residing there during the material period even though he is away from it part of the time. ...
A person with an established home of his own in which he lives does not cease to be resident there when he leaves it for a temporary purpose whether on business or vacation or even to pursue a course of study.
As I have noted, scores of Federal Court justices, over the course of many years, often railed about the state of confusion in the law regarding the residency requirement. For example, back in 1999, in the oft quoted
Lam decision, Justice Lufty referred to the law governing determinations of residency as
"a scandalous incertitude in the law." At the time of Justice Lufty's decision, in 1999, it was expected that Parliament was about to amend the
Citizenship Act to clarify the residency requirement (a Bill to do so was then working its way through the legislative process). Did not happen until 2014.
As noted, CIC's internal practice guideline for assessing residency, CP 5 "Residence" specifically set out a version of the
Koo test for assessing residency. At some stage between 2006 and 2009, however, CIC began arguing (at least in cases before the Federal Court, but I suspect also in the
training provided for appointed Citizenship Judges and in referrals to CJs for residency hearings) that this was not an alternative test so much but rather a test which could be applied in
extraordinary circumstances as an
exception. That is not what the Federal Court cases articulating either of the qualitative tests had ruled. That is, however, what obviously became the in-practice dominant approach by around the time that
Ardi77 applied . . . even though the law itself had not changed, and without any hint from CIC to the public about this.