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"REFUGEE": the Ideological Circle in Canadian Immigration

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PARLIAMENTARY REXONSTRUCTION OF "REFUGEE": the ideological circle in Canadian immigration J. Hutton Love A thesis submitted in conformity with the requirements for the degree of Master of Arts Department of Sociology and Equity Studies in Education Ontario Institute for Studies in Education of the University of Toronto Q Copyright by J. Hutton Love (2000) National Library Bibliothèque nationale du Canada Acquisitions and Acquisitions et Bibliogmphic Services services bibliographiques 395 Wellington Street 395, rue Wellington OttawaON K1AON4 OttawaON K1AON4 Canada Canada The author has granted a non- L'auteur a accordé une licence non exclusive licence allowing the exclusive permettant a la National Libmy of Canada to Bibliothèque nationale du Canada de reproduce, loan, distribute or seii reproduire, prêter, distribuer ou copies of this thesis in rnicroform, vendre des copies de cette thèse sous paper or electronic formats. la fome de microfiche/film, de reproduction sur papier ou sur format électronique. The author retains ownership of the L'auteur conserve la propriété du copyright in this thesis. Neither the droit d'auteur qui protège cette thèse. thesis nor substantial extracts fiom it Ni la thèse ni des extraits substantiels may be printed or otherwise de celle-ci ne doivent être imprimés reproduced without the author's ou autrement reproduits sans son permission. autorisation. PARLIAMENTARY RE-CONSTRUCTION OF 6'REXWGEE": THE LDEOLOGICAL CIRCLE IN CANADM IMMIGRATION Jennifer Hutton Love Master of Arts Sociology and Equity Studies in Education University of Toronto 2000 Abstract This project is an investigation into the work accomplished by the Standing Committee on Citizenship and Immigration during their study of the Canadian refugee determination system, commencing in October 1999 and ending in March 2000. The Committee's sîudy was established in response to the arrival of 599 Chinese immigrants to Canada in the summer of 1999.1 apply the research methodology of institutional ethnography, developed by Dorothy Smith, in my analysis of transcnpts from the meetings and the Cornmittee's final report. ln the course of my study 1 aim to develop two ideas. First, the Cornrnittee's work is part of an ideological circle whereby migrants are produced and re-produced as a crisis. Through this process, people's lived experience becomes subsumed by ruling knowledges. Secondly, drawing on the ideological circle 1 argue that migration policies are organized around the objectives of border control rather than humanitarian interests. Ultimately, my goal is to explicate one instance in the process of "othering" that occun in Canadian social and institutional relations. Subsequently, this will enable some understanding of the work processes of goveming by the Canadian state. Acknowledgements Many people contributecf to my thesis in a variefy of ways, all for which I am extremely grateful. 1 want to mention a few that stood out as fundamental in my daily work.. My utrnosf gratitude to Dr. Roxana Ng, my advisor and feucher. Your pdience and insights helped make sense of the mess that, for a long time, was my thesis. This produd does nofhing to reffecf the extent to which 1 huve leamed from you. My appreciaiicn fc Dorothy Smith for hsr instruction und guidance. Your contribution to my thesis was invaluable und your work continues to inspire me. I am very forfunate to have had the opporfunity to work with and learn from these hvo women, My work towards this degree hos been intelledually challenging and exciting, however there were times (increusingly towords the end) that I felf overwhelmed. In these fimes of frustrafion if was my family and friends who helped keep me together. In particulor 1 want to thonk rny parents, Judy and Don, and rny siblings Kinten, Cmig, Max and Eliot Love, for their unconditional love and nurture. Each one of you hmgiven me tremendous support in your individual ways that was crucial to my obility to complete this degree. Finally, I wunf to thunk Don Enticoft for his unwuvering support and encouragement throughout the duration of this process. Dan, Itmly appreciute everything thot you did for me this pust year. I look fonvard to our next adventure.. .. Table of Contents .. Abstract ............................................................................................................................... ti ... Acknowledgements........................ .. ............................................................................... iii Chapter 1 : Background ...................................................................................................... 1 New Arrivals/The "Case" ............................................................................................. 1 Migration. Globalization and the Canadian State ........................................................... 7 Historical Overview of Chinese Lmmigration to Canada........................................... 13 Research Question ........................................................................................................ 17 Conceptuai Framework ................................................................................................. 19 Research Design ............................................................................................................ 33 Summary .................................................................................................................... 26 Chapter 2: The Apparatus of the State .............................................................................. 28 The Department of Citizenship and Immigration Canada ............................................ 28 The immigration and Refbgee Board ........................................................................... 29 The .Geneva Convention ...............................................................................................30 Legislative. Review ........................................................................................................ 36 The Standing Cornmittee on Citizenship and Immigration .......................................... 39 Work Process of Standing Cornmittees .................................................................... 39 The Cornmittee's Study ............................................................................................ 52 Comrnittee Membership............................................................................................ 53 Witnesses .................................................................................................................. 60 Pressure Groups/Advocacy .......................................................................................69 Summiuy ....................................................................................................................... 73 Chapter 3 : Producing the Crisis ........................................................................................ 74 Language .................................................................................................................. 74 Themes .......................................................................................................................... 83 Abuse of the Systern/Tûking Advantage of Canada ................................................. 83 Threat ........................................................................................................................ 89 Chapter 4: Solving the Crisis ............................................................................................ 98 The Recomrnendations............................................................................................. 99 Border Security and Sweillance ............................................................................. 99 Procedurai. ............................................................................................................ 106 Humanitanan........................................................................................................... 107 Ofher ..............................~........................................................................................ 108 Summary ................................................................................................................ 109 Chapter 5: Discussion ..................................................................................................... 111 References ....................................................................................................................... 11 6 Media and Public Discourse References......... .. ............................................................. 122 Standing Cornmittee Re ferences ..................................................................................... 124 List of Figures Fipure 1 : The Ideological Circle ........................................................................... 2 1 Figure 2: The Re-Consûuction of "Illegal Migrant": Ideological Circle...................... 80 Chapter 1: Background "Sheltered behind a wall of racist assumptionr. administrative regulations and political calnrlations, Canadians were content that those for whom they felt no kinship. no symparhy. and no responsibility would get no entry either " (Abella and Troper, 1991, Epilogue, None is too Many, p.288) New Arrivals/The '<~ase''~ Over three months in the summer of 1999,599 people arrived in four rusted and decrepit boats to British Columbia, Canada fiom Fujian province, China. 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