April 5, 2013

CANADA-ASIA AGENDA www.asiapacific.ca Series Editor Brian Job Associate Editor Trang Nguyen Issue 33

The Tagalog Connection: The Human Side of Canada-Philippines Relations

Eleanor del Rio-Laquian and Aprodicio A. Laquian

The main link between Canada and the Philippines rests on the 600,000 or so who now call Canada home. The significant Filipino population in Canada has gained growing attention in the context of Canada’s deepening engagement with Asia. This piece explores the human connection between Canada and the Philippines and highlights migration issues that could impact future generations of Filipinos looking to Canada as a destination of opportunity.

Policy Recommendations:

* need to be more aware of the important roles that Filipinos play in our society today; a number of policies and regulations that make it difficult for Filipinos to enter the Canadian work force and immigrate to Canada require reconsideration and reform.

* The Federal Government needs to accelerate the processing of almost one million applications for entry from the Philippines into Canada. Tens of thousands of applicants from the Philippines have their lives on hold because of Canada’s inability to deal with this backlog.

* The Federal Government, provincial governments, and qualification evaluation organizations need to further improve the efficiency of the process of evaluating the educational and professional qualifications of immigrants. The de-skilling of tens of thousands of Filipino immigrants is a waste of valuable human resources and hinders their integration into the Canadian workforce.

* The Federal Government should not try to devalue the Live-in Caregiver Program (LCP) through the Temporary Foreign Workers Program (TFWP). Rather, the government should take steps to improve the program. Important changes that should be adopted include: making the live-in provision of the program optional so that married caregivers may bring their families along and avoid the ill effects of years of family separation. In addition, the program should find a way to allow Canadians who do not have the physical space to house the caregiver in their own living establishment, benefit from the program.

* The Federal Government should reconsider its decision to reduce development assistance to the Philippines at a time when so many Filipinos are contributing valuable human capital to Canada. The government should further support programs that would establish better linkages between Filipinos in Canada and encourage the diaspora to provide greater bilateral assistance to their home country in trade, cultural relations and other programs.

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Executive Summary Filipino-Canadian Migration Streams

For the last 50 years, Filipinos have become seamlessly Filipinos started coming to Canada in the 1960s when integrated into Canadian mainstream society, yet when the United States required aliens in the U.S. to renew the Canadian census results released in October 2012 their visas from outside the country. At that time, revealed that Tagalog (the basis of their national Filipino nurses, doctors, dentists, engineers and other language) was the fastest growing non-official language professionals were working in states in the Eastern US. in Canada, it was news to most Canadians.1 The fact that Given the proximity of Canada to renew their visas they the number of Tagalog speakers went up by 64% within would cross the border. However many decided to stay. the past five years should not have come as a surprise. These first Filipino migrants were highly-educated, In 2010, the Philippines surpassed China and India as the predominantly women who passed the qualifying board main source of recent immigrants to Canada. At present, exams of their respective professions to get a license to the Philippine Commission on Filipinos Overseas reports practice. However, with the arrival of more professionals that 667,674 Filipinos have moved to Canada.2 trained overseas and the increasing difficulty of evaluating their various qualifications, the professional boards The significant Filipino population in Canada has gained deemed it easier to send all foreign-trained professionals growing attention and interest in the context of Canada’s back to school to get appropriate Canadian credentials. deepening engagement with Asia. This piece provides a brief overview of the relationship between Canada and As Figure 1 shows, there were only 770 Filipinos in the Philippines focusing on the human connection which Canada prior to 1965. They were included in a line called provides the strongest link between both countries. “other countries, not British.” Between 1966 and 1970, The piece also highlights some policy challenges, such however, 16,143 Filipinos were admitted and given as the Temporary Foreign Workers Program, that have their own country listing. Since then, there have been raised concerns among current and future generations of two peaks in Filipino migration to Canada, due to family Filipinos looking to Canada as a destination of opportunity. reunification and the Live-in Caregiver Program – 79,481

Number of Filipinos Admitted to Canada

124,369

79,481 66,761

51,538 43,190 32,172 34,991 26,299 22,197 16,143

770

1965 1966-70 1971-75 1976-80 1981-85 1986-90 1991-95 1996-2000 2001-05 2006-10 2011

Figure 1. Number of Filipino Immigrants in Canada Per 5-Year Periods

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in 1991-1995, and 124,369 in 2006-2010 (with 34,991 the Philippines, the amount is considered “exploitative” coming in 2011 alone). In addition to immigrants, by LCP critics who advocate that caregivers be classified 299,622 temporary workers, including caregivers, initially and paid as skilled workers. admitted as temporary, arrived between 2002 and 2011.3

The admission of so many caregivers was not a purely Canadian humanitarian gesture. They were brought in to free Canadian women from housework and enable them to join the labour force; they were also recruited to meet the demands and needs for day care and health service for the elderly and sick in Canada.

The People Connection

For Filipinos, an important feature of Canadian immigration has been the family reunification program. It allowed families to immigrate together and stay together. However, as dependent children, parents and grandparents came, the overall average educational level of Filipino migrants ©istockphoto.com/alexskopje dipped, although many primary migrants exceeded the educational qualifications demanded by the Points System. The Temporary Foreign Workers Program (TFWP) of Subsequently, the Foreign Domestic Movement (FDM) 2002 adversely affected Filipino migration to Canada. It in 1982 and the Live-in Caregiver Program (LCP) which admitted TFWs to work in hotels, fast food chains, service replaced it in 1992, required only a grade 12 education industries, construction and farms. Problems arose. Some and lowered educational levels of Filipino migrants even employers did not pay contractual wages and benefits more. Temporary foreign workers did not have to meet or garnished wages to pay recruiters. Others did not pay the requirements of the Points System. overtime work and workers’ airfares as required. The TFWs tolerated these abuses because if they complained, they As more Canadian women joined the work force, the high might be deported or their work permits rescinded. They demand for caregivers and domestic workers resulted refrained from joining labour unions for fear of being fired in about 20% of all Filipino migrants per year coming as as troublemakers.5 domestic workers or caregivers. The LCP fast tracked their arrival to care for Canadian children, elderly and disabled. In June 2008, Citizenship and Immigration Canada (CIC) After working as a live-in caregiver for at least two years, launched the Canada Experience Class (CEC) to fill up 38 they were allowed to apply as permanent residents and types of skilled occupations. It was meant to reduce the eventually as citizens. The number of Filipino caregivers backlog of TFWs applications whose processing time had admitted under the LCP ranged from a low of 4,700 in 2002 increased from 25 to 29 months. TFWs were also allowed to a high of 14,000 in 2010. About 92% of all caregivers to work as caregivers, but without the option to apply in Canada came from the Philippines and about 98% of for permanent residence after two years. An immediate them were women.4 effect of this was a reduction in the number of caregivers admitted under the LCP (from 11,222 in 2008 to 5,603 in Caregivers are usually paid the minimum wage but even 2011) because TFWs in the country were already doing an average income of about $30,000/year enables them the job.6 to send money home because they usually pay their employers only about $350 for room and board per month. In 2011, CIC issued regulatory monitoring systems Although this salary is more than what they could earn in supposedly to weed out unscrupulous employers.

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However, the systems were voluntary and ineffective. Two nation-wide surveys of Filipino immigrants conducted TFWs were forced to suffer abuse in silence because if in 1972 and 2006 listed their reasons for coming to they displeased the employers, they were not offered a Canada.9 Table 1 shows that Filipino migrants before permanent position after four years of work and they had 1972 came “to seek better economic opportunities.” They to leave the country and wait another four years before were mainly young professionals (about 85% had college they could re-apply for admission.7 degrees and up) and were attracted by prospects of higher salaries, good health benefits and a better quality of life. Many Filipino-Canadians saw the TFWP as a negative A second factor they mentioned was “attraction of travel development. The changes made by CIC to the TFWP and adventure abroad.” 10 simply undermined the LCP, which was already in need of improvement. The decreased number of LCP caregivers Survey responses indicated that immigrants who came admitted to Canada made it difficult for Canadian families before 1972 were “pulled” by perceived benefits of life to get caregivers, resulting in so-called “nanny poaching” in Canada. They did not consider the situation in the in .8 Philippines onerous. Only 1.4% of responses showed dissatisfaction with conditions in the Philippines and only Why Filipinos Move to Canada 2.8% mentioned the need to find better peace and order in Canada. In 2010, the Philippines with a population of 94 million overtook China (population 1.35 billion) and India (1.22 Subsequent Filipino immigrants were “pushed” by billion) as the primary source of recent immigrants to unsatisfactory conditions in the Philippines. These Canada. So why have they come so fast and in such great included the turmoil of the Marcos martial law regime numbers in just the last 50 years? (1972-1986). Among those who moved to Canada then

Table 1--Main Reasons for Migrating to Canada Main Reasons Given Number of Percent, 1972 survey Number of Percent, 2006 survey Response, 1972 Responses, 2006 Survey Survey To seek better 194 65.4 179 29.3 economic opportunities Influence of relatives 18 6.2 65 10.6 and friends in Canada Dissatisfaction with 4 1.4 106 17.3 conditions in the Philippines Better future for 0.0 0.0 115 18.8 children Attraction of travel 51 17.2 112 18.3 and adventure abroad To find peace and 8 2.8 0.0 0.0 order Other reasons 21 7.0 35 5.7 Total 296 100.0 612 100.0 Source: Laquian and Laquian, 2008, p. 17

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were political activists, media people, and middle-class Compared with other Asians, Filipinos are fairly “globalized” professionals.11 and westernized in outlook having been a colony of for 300 years and of the United States for 50. About 80% Those who came after 1991 were pulled by hopes of better of Filipinos are Roman Catholics and since about 42.3% of prospects abroad and pushed by worsening economic Canadians are Catholics they rejuvenated the languishing and political dislocations in the Philippines caused by high practice of Catholicism in the country. unemployment, politically linked violence and widespread corruption. The majority of migrants at this time were An indicator of how Filipinos have easily integrated into domestic workers and caregivers who had worked in Canadian life is the fact that there are no identifiable “Little other countries in Asia, Europe, or the Middle East before Manilas” or “Pinoy Towns” in any Canadian city. Initially, moving to Canada. They came because only Canada gave Filipino newcomers may live close to their place of work them the opportunity to become permanent residents (nurses close to hospitals, garment workers near factories) and citizens. but as soon as they save enough for a mortgage, they buy a house in the best area they can afford. After moving in, The 2006 survey indicated the mixed reasons given by they participate in neighbourhood activities and become subsequent waves of Filipinos migrants. While better integral members of the community. All these factors economic opportunities (29.3%) and attraction of travel contribute to Canadian employers revealing a preference and adventure (18.3%) were cited as important reasons, for Filipino workers.15 dissatisfaction with conditions in the Philippines (17.3%) and wanting a better future for their children (18.8%) were now mentioned. In fact, while not a single response in the 1972 survey mentioned “better future for children,” 115 out of 612 responses in 2006 (18.8%) stressed this.

A survey of 300 live-in caregivers in Greater in 2011 confirmed the importance of children’s future as a primary reason for moving to Canada. To those caregivers who left children and spouses in the Philippines, the possibility of having their families join them in Canada was considered worth their hard work and sacrifice.12

Coming in “Under the Radar”

The increasing number of Filipinos in Canada remained unnoticed for almost five decades. When the Philippines Vancouver Committee for Domestic © Copyright CDWCR 2013 became the primary source of recent immigrants in 2010, Workers’ and Caregivers’ Rights a CBC radio documentary observed that Filipinos had come in “under the radar.”13 How did they integrate into Interestingly, while most Filipinos back home are very Canadian society so seamlessly? political, Filipino-Canadians have tended to keep a low profile. Only a few have been elected to public office – one Studies of Filipino-Canadians found that a major factor Member of Parliament (Dr. Rey Pagtakhan, ), four in their easy integration is their ability to speak English.14 members of provincial legislatures (Cris Aglugub, Conrad When the United States colonized the Philippines after Santos and Flor Marcelino in and taking it from Spain in 1898, it made English the medium in ), and one mayor (Art Viola in ). of instruction in all schools. In addition to learning English The first Filipino senator (Tobias Enverga Jr.) was appointed and the national language, Spanish was also made only in 2012. In general, some first generation Filipinos compulsory in Philippine colleges. may vote for candidates based on nationality but second

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generation Filipino-Canadians consider a candidate’s abuse by their employers.18 About 74.4% of caregivers professional and personal merits as the bases for their surveyed were single when they came to Canada and votes. did not “cry themselves to sleep at night worrying about their children...” as reported in a 2010 Vancouver Sun A peculiarity pointed out in many studies on Filipino- article.19 Finally, the survey found that about 70.3% of Canadians is the fact that while Filipinos have the highest the respondents were able to “graduate” from their live- level of education among recent immigrant groups, in status within the prescribed two years and became they have the lowest incomes.16 The reason for this Canadian citizens. The rest were still completing their contradiction is that many professionals are unable to requirements. practice their professions in Canada. Because of stringent regulatory requirements, they are forced to accept lower Of the $21 billion remitted every year by paying jobs in a process of “de-skilling.” Some jobs in to families in the Philippines, nearly $1.5 billion come from Canada require additional education, apprenticeship Filipino-Canadians. Studies have shown that remittance and training and most Filipinos find it difficult to meet funds, when received in the Philippines, are often spent the guild-like requirements of professional societies that on food, housing and medical needs and about 7% go to regulate these jobs. savings.20 Many Filipino-Canadians regularly return to the Philippines as tourists; some have invested in condos and Another explanation for their low income is that most businesses back home. It is interesting that few have taken Filipinos are not entrepreneurial; they prefer salaried out dual citizenship although the Philippines has allowed jobs. A study of Filipino enterprises in dual citizenship since 2003. Some explained that this was found that most of them catered mainly to the basic because their “families were already in Canada.” needs of Filipinos (grocery stores, eateries, car repair shops, travel agencies, immigration consultancies, and The socio-economic and cultural contributions of Filipino- remittance companies for sending money and goods to Canadians have enriched Canada’s diversity and cultural the Philippines). Most Filipinos in business are “accidental collage. In addition, the economic value of the personal, entrepreneurs” with limited capital and skills.17 technical and professional contributions of Filipinos to Canada is considerable. If one assumes that Philippine society had “invested” about $1,825 per year in feeding, housing, clothing, educating and training each Filipino until migration to Canada at age 35 (approximately $63,875 per person of working age), then about $255.5 million in human capital had been contributed by the Philippines to Canada as of 2012.21 This is a significant gift to Canada from a relatively poor country with an oversupply of unemployed or underemployed highly educated and skilled workers.

Looking Ahead

The main link between Canada and the Philippines rests Questioning Stereotypes on the 600,000 or so Filipinos who now call Canada home. Vital to fostering stronger people-to-people ties is greater The arrival in Canada of thousands of Filipino domestic attention to boosting trade and regional cooperation workers and caregivers has created the stereotype of efforts that have, so far, been relatively modest. the Filipino as mistreated caregivers. However, among the 300 respondents in a study of Filipino caregivers Canada holds a trade deficit of $375 million with the in Greater Vancouver, only two reported cases of Philippines having exported $541 million worth of goods

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Time Period 2006 2007 2008 2009 2010 2011 Total Canadian Bilateral Aid to the Philippines ($US millions) 19.85 22.45 15.5 16.97 16.65 11.88 Source: OECD

to the Philippines and imported $916 million in 2011. Given Canada’s continuing need for immigrants, its Canadian exports were mostly in raw materials like iron relationship with the Philippines will only grow in ore and slag (24.6%) whereas imports from the Philippines importance as it seeks positive and productive sources of were mostly in electrical goods and equipment (56.4%).22 immigration to meet growing skills and labour shortages. This trade pattern is interesting because technologically advanced Canada is exporting mainly raw materials to a In the future, still more Filipinos will likely go abroad developing country while at the same time, importing because the Philippine labour export policy, launched finished and manufactured goods from it. This may be in 1974, brings in more than $21 billion in remittances explained by the fact that most of the Philippine natural to the country per year. Majority of the ten million or resources have been depleted and that local manufacturing so TFWs currently overseas probably hope to migrate mainly takes the form of assembling imported components permanently, given the chance. The stock of Filipino- for export as “finished” products. Canadians already in Canada makes it a desirable destination. Over the years, Canada-Philippine relations With respect to Canadian development aid to the have been strengthened by the positive evolution of Philippines, it has gradually decreased over the last five Canada’s immigration policy from pragmatic to meet the years with $US11.88 million given in 2011. The decline in country’s manpower needs to a more humane nation- assistance from Canada to the Philippines, unfortunately, building policy upholding family values and immigrants’ has been based on the misguided notion that the contributions to Canadian society. Philippines is doing well economically and the country needs less assistance. What are needed are programs that Looking ahead, two important issues deserve will take advantage of the skills and knowledge of Filipinos greater attention among Canadian policymakers and already in Canada so they will be able to help their mother businesspeople looking to attract future skilled workers country more. from the Philippines. One major concern among professional Filipino-Canadians is the non-recognition of their educational and professional qualifications. There have been some efforts, notably in and , to deal with this issue but in big cities like Toronto and Vancouver where many Filipino professionals are seeking jobs, non-recognition of qualifications continues to be a problem.

Secondly, it is regrettable that its current shift is focused on TFWs. In 2008, for example, Canada admitted more TFWs (192,519) than permanent residents (149,072) of total immigration. The policy has made foreign workers more vulnerable to exploitation. This reversal to a less humane policy that treats workers from Some Filipino members of the Vancouver Committee for Domestic developing countries as mere economic tools that can be Workers and Caregivers Rights (CDWCR) celebrating the 20th discarded after use like some old disposable appliances anniversary of CDWCR’s founding in 1992. belies Canada’s claim as a kinder-gentler nation and a compassionate society.

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About The Authors Eleanor del Rio-Laquian has been writing about Filipino since her family migrated from New York to Toronto in 1969. As coordinator of the Asian Immigration Project at the University of British Columbia’s Institute of Asian Research, she organized an international conference on Asian Immigration and Racism in Canada in 1997 and published a book called The Silent Debate: Asian Immigration and Racism in Canada, Vancouver: Institute of Asian Research, 1998 along with her husband, Aprodicio A. Laquian, and Terry McGee. The Laquians’ latest book is Seeking a Better Life Abroad: A Study of Filipinos in Canada, 1957-2007, Manila: Anvil Publications, 2008. At present, Eleanor volunteers at the Committee for Domestic Workers and Caregivers Rights (CDWCR) and Aprodicio is professor emeritus of community and regional planning at UBC. They live in Vancouver.

For more information please visitwww.asiapacific.ca.

1 Kim Mackrael, “Tagalog fastest growing language in Canada, data show,” The Globe and Mail, October 24, 2012.

2 Commission on Filipinos Overseas, 2010 Stock Estimates, quoted in GMA News, October 25, 2012.

3 Data from 1966 to 1996 are from Citizenship and Immigration Canada Statistics published annually. Data from 2002 to 2011 are from Citizenship and Immigration Canada, Facts and Figures 2011 – Immigration Overview, Permanent and Temporary Residents, particularly the table on : Canada – Permanent Residents by Source Country; and table on: Canada – Foreign Workers present on December 1 by Source Country. Data accessed on February 25, 2013 at: http://www.cic.gc.ca/english/statistics/permanent/asp

4 Sacha Devoretz, “Mixed Reactions to the Live-in Caregiver Program,” March 9, 2012,http://www.canadianimmigrant.ca . accessed 26 February 2013.

5 Am Johal, “Influx of Migrant Workers Open Door to Abuses,” IPS News, July 15, 2008.

6 Salimah Valiani, “The Shift in Canadian Immigration Policy and Unheeded Lessons of the Live-in Caregiver Program,”http://www. cesl.carlton.ca/l-dana/Temp/PermLCPFinal.pdf,accessed20 February 2013. See also Citizenship and Immigration Canada Statistics, Temporary Foreign Workers Processed Abroad, Live-in Caregivers Program, accessed at: nim_caips_workperm_e as of April 3, 2012, data compiled by OPS-Stats (2012).

7 Eleanor and Prod Laquian, “Are Recent Changes to Temporary Foreign Worker Program Good or Bad for Live-in Caregivers under the LCP?” in Dahong Pilipino, The Filipino-Canadian Community and Business Directory, 2012, pp. 42-44.

8 Nicholas Keung, “Shortage of Live-in Caregivers Leads to Nanny Poaching,” Toronto Star, February 13, 2012.

9 Eleanor Laquian, A Study of Filipino Immigrants to Canada, 1962-1972, : United Council of Filipino Associations in Canada, 1973.

10 Eleanor del Rio-Laquian and Aprodicio A. Laquian, Seeking a Better Life Abroad: A Study of Filipinos in Canada, 1957-2007, Manila: Anvil Publications, 2008, p.17

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11 Cusipag, Ruben and Maria Corazon Buenafe, Portrait of Filipino-Canadians in Ontario, 1960-1990, Toronto: Kalayaan Media, Ltd., 2003.

12 Eleanor del Rio-Laquian and Prod Laquian, “Survey Results Debunk Stereotype Myths about Filipino Caregivers,” Dahong Pilipino, 18th Anniversary Edition, Vancouver: 2011, pp. 52-53.

13 The Early Edition: Under the Radar: From Manila to Metro Vancouver: Interviews by Margaret Gallagher, May 12, 2008.

14 See for example, Anita Beltran Chen, “Kinship System and Chain Migration: Filipinos in Thunder Bay,” in Asian-Canadian Regional Perspectives, edited by K.V. Ujimoto and G. Hirabayashi, Halifax: 1981; Philip Kelly and T. Lusis, “Migration and the Transnational Habitus: Evidence from Canada and the Philippines,” Environment and Planning, 2005; Maria Deanna Santos, Human Rights and Migrant Domestic Work: a Comparative Analysis of the Socio-Legal Status of Filipina Migrant Domestic Workers in Canada and Hong Kong, Boston: Martinus Nijhoff Publishers, 2005.

15 Nick Oosterveen, while Immigration Program Manager at the Canadian Embassy in Manila in 2007, told an immigration seminar in Manitoba that an informal survey of Canadian employers revealed a preference for Filipino workers. “In terms of the Provincial Nominee Program when I asked provinces and employers: If you could select immigrants from any country in the world, which is the place that you would most likely go to? Up to this point and for the foreseeable future, the Philippines has been and continues to be the top source country for potential immigrants.”

16 Philip Kelly, Mila Astorga-Garcia and Emilio F. Esguerra, “Explaining the De-Professionalized Filipino: Why Filipinos Get Low Paying Jobs in Toronto,” CERIS Working Paper Series No.75, October 2009.

17 Seeking a Better Life Abroad, Chapter 6, “Filipino Canadians in Business,” p. 207-237.

18 Eleanor del Rio-Laquian and Prod Laquian, “Survey Results Debunk Stereotype Myths about Filipino Caregivers” op cit.

19 Darah Hansen, “Tears Today, Hoping for a Better Tomorrow,” Vancouver Sun, June 14, 2010.

20 Center for Strategic and International Studies, “Remittances in the Philippines: Snapshot of a Global Trend,” Washington, DC: CSIS, 2013. Accessed at http:csis.org/blog/remittances/Philippines-snapshot-global-trend, February 27, 2013.

21 Calculation of this amount is based on following assumptions: (a) average middle class Filipino likely to move to Canada lives on $5.00 per day; (b) Cost of living per person per year is $63,875; (c) About 400,000 of the 600,000 Filipinos who moved to Canada were at least 35 years old, the average working age.

22 Asia Pacific Foundation of Canada, Canada’s Merchandise Trade with the Philippines, January to December 2011, citing data from Industry Canada, accessed Novemerber 30, 2012. Accessed at: http://www.ic.gc.ca/eic/site/icgc.nsf/eng/home

The opinions expressed in Canada-Asia Agenda are those of the author and are published in the interests of promoting public awareness and debate. They are not necessarily the views of the Asia Pacific Foundation of Canada. While every effort has been taken to verify the accuracy of this information, the Asia Pacific Foundation of Canada cannot accept responsibility or liability for reliance by any person or organization on the use of this information. This Canada-Asia Agenda issue may be copied whole or in part and/or re-distributed with acknowledgement to “the Asia Pacific Foundation, Canada’s leading independent resource on Asia and Canada-Asia issues”. Archive issues of Canada Asia Agenda, and its predecessor, Asia Pacific Bulletin, may be found at . APF Canada is funded by the and by corporate and individual donors.

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