The Federal Policy of Multiculturalism in Canada (1971 - 1988) by Beate Schiffer-Graham A hesb presented to he tFúverdty of llanltoba h parüel tlf,ment of the reqtemants br the degree of ltastq of Arts hüto Oepartnent of Po[ücel Sürles WûÞeg Mardtoba @ Beate Sctúffer-@aÌram Bibliothèque nationale *l Ïi3""IXotJo'"'u du Canada Canadian Theses Service Service des thèses canadiennes Ottawa, Canada K1 A ON4 The author has granted an irrevocable non- L'auteur a accordé une licence irrévocable et exclusive licence allowing the National Library non exclusive permettant à la Bibliothèque of Canada to reproduce, loan, distribute or sell nationale du Canada de reproduire, prêter, copies of his/her thesis by any means and in distribuer ou vendre des copies de sa thèse any form or format, making this thesis available de quelque manière et sous quelque forme to interested persons. que ce soit pour mettre des exemplaires de cette thèse à la disposition des personnes intéressées. The author retains ownership of the copyright L'auteur conserve la propriété du droit d'auteur in his/her thesis. Neither the thesis nor qui protège sa thèse. Ni la thèse ni des extraits substantial extracts from it may be printed or substantiels de celle-ci ne doivent être otherwise reproduced without his/her per- imprimés ou autrement reproduits sans son mission. autorisation. rsEN 0-315-51583_x Canadä FEDERAL POLICY OF MULTICULTURALISM IN CANADA ( 197 1- 1988 ) BY BEAÎE SCHIFFER-GRAHAM A thesis submitted to the Faculty of Graduate Studies of the univenity of Ma¡ritoba in partial fulfìlrment of the requirenrents of the degree of MASTER OF ARTS r989 Permission has been granted to the LIBRARY OF THE UNIVER- SITY OF MANITOBA ro lend or sell copies of this thesis. to the NATIONAL LIBRARY OF CANADA to microfîlnr this thesis and to lend or sell copies of the film, and UNIVERSITY MICROFILMS to publish an abstract of this thesis. The author reserves other publication rights, a¡ld neither the thesis nor extensive extracts from it may be printed or other- wise reproduced without the author's written permissiolr. I hereby declare that I am the sole author of this publica- tion. I authorize the University of Manitoba to lend this publica- tion to other institutions or individuals for the purpose of scholarly research. Beate Schiffer-Graham I further authorize the University of Manitoba to reproduce this publication by photocopying or by other means, in total or in part, at the reguest of other institutions or individ- uals for the purpose of scholarly research. Beate Schiffer-Graham 11 ABSTRACT The thesis traces the evolutionary forces that led to the October 8, 1971 announcement of an official policy of multi- culturalism in Canada. The examination of the subsequent implementation of that policy between 1971 and 1988 explores some of the underlying assumptions that have facilitated Canada's unique policy of multiculturalism within a bilingu- al framework. Às well, the examination of the implementation process provides sufficient evidence to substantiate the argument that, although the concept of multiculturalism ought to be part of the Canadian identity in view of immi- gration trends, the policy of multiculturalism has been a Iargely symbolic policy which has remained on the fringe of government agendas. 1V ACKNOT{LEDGEMENTS The author gratefurly acknowledges prof. Mary Beth Montcalm for her guidance, expert advice and interest at alr stages of this thesis. Further appreciation is extended to prof. PauI G. Thomas for his helpful ediÈorial comments. I am arso thankfur to the individuals who provided me with the opportunity of an interview and other assistance. LastIy, a special thank you to Richard Grahamr my partner and best friendr âs weII as Antje and Katja for their strong support. v- CONTENTS Chapter paqe I. INTRODUCTION . 1 II. EVOLT'TION OF TI¡E POTICY OF MT'LTICT'I.TT'RALISM . 17 Canada's Immigration policy (1869 to 194S) . 19 The Second Flowering (1946 To 1951) . 22 Immigration Liberalization (1961 to 19711 . 26 Àspects of the Other Ethnics . ., . 31 . Immigrant Settlement pattern . 32 Distribution Of population By Ethnic GrOupS..o........... 38 Economic Position of the Other Ethnics . 41 Immigrant Settlement pattern and Economic Position of the Ethnics up to 1971 for the Province of Quebec . 49 Attitudes Towards Other Ethnics . o 53 The Quiet Revolution . o . 58 Reaction, SeIf-Àwareness, position of the Ethnics. o . 60 Govgrnmgnt Àction . o . 61 Announcement of Royal Commission on Bilingualism and Biculturalism . 63 Book IV of the Royal Commission's Report . 69 III. AI{NOT'NCEMENI ÀI{D II{PTJEMENTÀTION OF ÈruLTrcttLTItRALISìÍ . o . .77 Govgrnment Position . o . .77 Underlying Assumptions of the policy Announcement . 81 ParÈy Positions . o . o .86 FrancophoneposiÈion .. o o...... .87 Implementation . o . o . o o . .92 Reality of the Early years . o . .94 Reorientation of Multiculturalism . 102 Policy Rgvigw . 104 Other Ethnics Reaction To Repriorization 108 Reaction of the Opposition parties . 111 - v]-- Increased PoliticízaLion of Mult icultural i sn aaaaaaaaa 14 Pre-election hype, 1977 to1979..... 16 Conclusion . o . o 20 rv. FROM MT'LTICT'L1"I'RALISM TO MT'I.TIRÀCIALISI,T . 22 Immigration 1971 to the present . aaaa 22 population .1 Distribution of Non-White aaaa .'t 27 Conclusion...... aa aaao .1 33 Evidence of Racism in Canada . aoo aa .1 34 Evidence aa oaaa .1 34 Àttitudes...... aaa aaaa .1 36 Discrimination . aa aaaa .1 37 Racial Violence . aaa aa .1 40 Conclusion . aaa aaaa .1 40 Multiculturalism and the Government of JogClark........... 1 41 Multiculturalism Encompassing Multiracialism 1 period, 43 À Retrenchment David ColleneÈte 1 s3 Government Response to Equality Uow . o 1 s6 Implication of the policy Shif[ . o . 1 59 Effects of the Repriorization on the Other Ethnics . o . ., . 1 60 Conclusion . o . 1 64 V. l,lI¡f,TICtLTttRÀf,ISM POST 198¿ . o . o . o 1 66 Election campaign 1984 . o . 1 56 Structural Versus Substantive Changes . 1 68 The Lgad Balloon . o . o . 1 77 Thg Big Debate . 1 82 Meech Lake Constitutional Àccord . 1 83 Standing Committee on Multiculturalism RgporÈ. 188 The Canadian Multiculturalism Act . 192 Opposition Reaction . 199 Crombie's Resignation . o . 201 BackonTrack . o . 202 Involvement From The Highest tevels . 205 Election FgvgF . 208 Conclusion . o . 212 vr. coNcLusroN aoaaaaaaaaaaoaaaaaa 21t Appendix page A. RECO}IMENDATIONS OF BOOK IV OF TI¡E REPORT OF 'ITIE ROYAÍ, COI,IMISSION ON BITJINGUÀTJISM AITD BrcttLltttRÀtrsM... o.... .. o. 219 -v]-1- B.. SECRETARY OF STATE MULTICULTI]RALISM BXPENDITURES BY PROVINCE FOR TRANSFER PAYMENTS 224 c. MULTICULTIIRALISM PROGRAM SI]MMARY OF EXPENDITURES, GRANTS AND CONTRIBUTIONS BY ETHNIC GROUP 225 - vIr]. - TABLES TABLE 1 .1 Comparison Of White Versus Nonwhite Immigration To Canada For 1 930 To 1946. 21 1.2 Dístribution Of Non-White Immigrants To Canada By Region Of Origin For 1961 To 1970 30 1.3 The Largest Ànd Second Largest Contingent Of Provincial Populations, in Numerical vs. Percentage Terms, by Specified Ethnic Groups, 197 1. ..... o.............. ....... 39 1.4 Numerical And Percentage Distribution Of The Canadian Population By Specified Ethnic Groups, 197 1...... .......... ......o 42 1.5 Total Labour Force By Occupational Class, 1931, 1951 , 1961.......... o.......... ........... 44 1.6 Over-Representation Of The Ethnic population Groups For The MaIe Labour Force , 1961.... 46 1.7 Over-Representation Of Occupational Classes For The MaIe Labour Force By Ethnic Population Groups, 1961 (By Percentage)................... 47 1.8 Ranking Of Ethnic Groups By Occupational Class By Over-Representation, 1961 (ey eercentage)... s1 1.9 Discrimination By Type Of Discrimination Ànd Race (es e Percentage)....... o............. o... 58 2.1 Budget For Multiculturalism And BilinguaIism, Secretary Of State, 1971-1988 (rn l¿ilIions Of Dollars).......... o. o..... ..... 101 3.1 Comparison Of White Versus Nonwhite Immigration To Canada For 1970 To 1984 (ay Humber And Per- centage Of Total Immigration Intake)........... 124 3.2 Distribution Of Non-White Immigrants To Canada By Region Of Origin For 1970 To 1984 (By Humber Ànd Percentage Of Total Immigration Intake).... 124 3.3 Canadian Population By Selected Ethnic Origins, 1981 And 1986 (gy Percentage). 130 3.4 The Largest and Second Largest Contingent Of Provincial Populations, In Numerical vs. Percentage Terms, By Specified Ethnic Groups, 1981. 132 3.5 Specified Ethnic Groups As A percentage Of Their Own Total Canadian Presence By Selected Metropolitan Census Àreas , 1981 .... 134 I llustrat ions Figures 1 .1 Immigrant Settlement Pattern By Region Of Intended Destination (1916-1940) es e Percentage Of Total Canadian Immigration InÈake ..... ...:. 33 1.2 Immigrant Settlement Pattern For Quebec Ànd Ontario By Intended Destination (1916-1940) Às À Percentage Of TotaI Canadian Immigration Intake..... ....o ..... 35 1 .3 Immigrant Settlement Pattern By Region Of Intended Destination (1950-1970) es ¡ Percentage Of Total Canadian Immigration Intake..... .... o. o... ..... 36 1.4 Regional Distribution Of Population 14 Years Of Age Ànd Over , 1967 ......... 37 2.1 Composition Of The Canadian Populat ion , 1871 to 1981 (By Percentage Of Population) 129 Chapter I INTRODUCTION On JuIy 21, 1988, the Parliament of Canada proclaimed the Canadian Multiculturalism Act. The Act has been described as unique and unprecedented in the world. The whole concept of multiculturalism is rather unique and unprecedented. How- ever, due to technological advances that have enabled more proximity of the world's different regions, the reality of multiculturalism in nation states is increasing. In the Canadian context, the concept of multiculturalism was first made government policy under the then Liberal Prime Minister Pierre EIIiot Trudeau. On October 8, 1971, Prime Minister Trudeau announced Canada's multiculturalism policy in the House of Commons: It was the view of the royal commission, shared by the government, and I am sure, by all Canadians, that there cannot be one cultural policy for Cana- dians of British and French origin, another for the original peoples and yet a third for all oth- ers.