IRCC Minister Transition Binder 2025-03
Immigration Levels Plan
March 2025
Purpose
- Provide information about the Immigration Levels Plan and how it is developed.
- Provide an overview of the 2025-2027 Immigration Levels Plan for temporary residents and permanent residents.
- Discuss the impacts and implementation of the 2025-2027 Immigration Levels Plan and way forward.
Background and Context
- The Immigration and Refugee Protection Act (IRPA) requires that the Minister of Immigration table the Annual Report to Parliament on Immigration, including the number of foreign nationals projected to become permanent residents in the following year, by November 1.
- The Immigration Levels Plan is a rolling three-year plan that sets firm temporary and permanent resident targets and ranges (upper and lower limits) for the first year, and notional targets for the outer two years, as well as the number for each immigration category.
- The 2025-2027 Levels Plan was tabled on October 24, 2024 – it was the first time the Plan also included temporary resident (TR) targets.
- The Levels Plan traditionally has three overarching objectives:
- achieve long-term benefits to Canada
- contribute to short-term economic growth and addressing labour market needs; and
- ensure a well-managed migration system that can maintain public confidence.
Overview of 2025-2027 Levels Plan
- The 2025-2027 Levels Plan calibrates overall immigration targets to lessen pressures on services and housing and better manage immigration-driven population growth while continuing to support the economy.
- Prior to the current plan, immigration levels included a notional target of 500,000 permanent residents per year starting in 2025.
- Targets for new TR arrivals – which were previously demand-driven – were developed to provide a complete picture of newcomers coming to Canada, as part of our managed migration approach.
- Policy measures were introduced in 2024 to curb the growth of TRs in Canada, including an intake cap on most study permit applications and eligibility changes to Post-Graduation Work Permits and to work permits issued to the spouses of international students and foreign workers.
- Setting TR targets also supports the objective of reducing the proportion of non-permanent residents (NPRs) to 5% of Canada’s total population by the end of 2026.
- NPR is a term used by Statistics Canada and include workers, students, their spouses, asylum claimants and protected persons in Canada
- More than 40% of anticipated PR admissions in 2025 will be from those who are already in Canada as TRs.
2025-2027 Immigration Levels Plan: Temporary Residents
2025: 673,650, 2026 :516,600, 2027: 543,600
- Targets capture new arrivals only, which provides the number of new temporary workers and students entering Canada each year
- Temporary workers include those admitted under the Temporary Foreign Worker (TFW) Program or the International Mobility Program (IMP).
- TR targets exclude short-term visitors with temporary resident visas and electronic travel authorizations, and seasonal workers because these workers do not remain in Canada for a long period of time or at the end of the calendar year, and are not included in Statistics Canada’s year-end population estimates.
- Asylum claimants are not part of the Levels Plan.
- The Government cannot control admissions volumes in the same manner it does for most immigration programs
- Estimated asylum claimant numbers have been taken into account as part of the methodology and calculations used to set targets for students and workers, in order to achieve the 5% target for non-permanent residents in Canada.
2025-2027 Immigration Levels Plan: Permanent Residents
2025: 395,000, 2026: 380,000, 2027: 365,000
- Supporting the Canadian economy continues to be a key priority of this Plan, with the economic category representing the largest proportion of permanent resident (PR) admissions.
- PRs are foreign nationals who are granted permanent resident status under one of the four following immigration classes:
Economic Class brings in workers to help strengthen Canada’s economy and represents approximately 59%-62% of PR admissions in the Levels Plan.
Family Class supports family reunification and makes up approximately 22%-24% of overall PR admissions in the Levels Plan.
Refugees and Protected Persons grants permanent residence to refugees and protected persons and makes up 15% of overall PR admissions.
Humanitarian & Compassionate and Other includes public policies and applications for PR on humanitarian and compassionate grounds and makes up 1%-3% of PR admissions in the Levels Plan.
2025-2027 Immigration Levels Plan: Francophone Immigration Targets
- With the coming into force of the modernized Official Languages Act, immigration is also critical in achieving the new Government commitment of restoring and increasing the demographic weight of Francophone minority communities outside of Quebec.
- The 2025-2027 Immigration Levels Plan establishes ambitious targets for French-speaking PR admissions:
- 8.5% of total PR admissions for 2025 (29,325)
- 9.5% of total PR admissions for 2026 (31,500)
- 10% of total PR admissions for 2027 (31,500)
Impacts of the 2025-2027 Levels Plan
- Reductions are expected to result in a marginal population decline in 2025 and 2026.
- The Department of Finance estimates that reductions under the Levels Plan will reduce Canada’s housing supply gap by 670,000 units by 2027.
- It was anticipated that the Plan would lead to continued robust GDP growth and enable GDP per capita growth to accelerate throughout 2025 to 2027 – the U.S. tariffs has since altered the economic landscape.
| 2014 | 2015 | 2016 | 2017 | 2018 | 2019 | 2020 | 2021 | 2022 | 2023 | 2024* | 2025* | 2026* | 2027* | |
|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|
| Number of PRs | 260,309 | 271,839 | 296,373 | 286,537 | 321,054 | 341,175 | 184,599 | 406,050 | 437,627 | 471,817 | 485,000 | 395,000 | 380,000 | 365,000 |
| Net NPRs | 16,970 | -9,330 | 88,722 | 138,034 | 154,917 | 189,781 | -96,066 | 77,538 | 551,544 | 752,779 | 299,216 | -445,901 | -445,622 | 17,440 |
| Population Growth (%) | 0.9% | 0.8% | 1.2% | 1.3% | 1.5% | 1.6% | 0.3% | 1.3% | 2.5% | 3.1% | 1.9% | -0.2% | -0.2% | 0.8% |
Consultation and Engagement
IRCC engages with a broad range of stakeholders and partners when developing our immigration levels plan. Town hall conversations and roundtables held in 2024 included participants from:
- the business community
- labour organizations
- settlement and resettlement organizations
- educational institutions
- urban planners
- municipal representatives
- economists
IRCC engages broadly to support a whole-of-society approach to immigration levels planning.
- Engagement with provinces and territories is conducted bilaterally and multilaterally, guided by the Forum of Ministers Responsible for Immigration.
- Under the Canada-Quebec Accord, Quebec has responsibility for the selection of immigrants destined to the province (except Family Class and in-Canada refugee claimants). The federal government takes into consideration Quebec’s desired levels in all categories.
IRCC conducts public opinion research through surveys and focus groups concerning immigration levels and other topics related to immigration.
Next Steps
- IRCC is operationalizing the 2025-2027 Levels Plan and is regularly monitoring intake volumes for both temporary and permanent residents to determine if any adjustments are needed to meet annual targets.
- As the Levels Plan must be tabled by November 1, key decisions will be required by summer 2025.
- Building on policy measures implemented in 2024, priorities and pressures are already shaping the 2026-2028 Levels Plan:
- Meeting reduced immigration levels targets while maintaining processing times in the context of continued demand and growing inventories
- Setting sustainable immigration levels aligned with Canada’s domestic systems and infrastructure, such as housing and labour market needs
- Meeting existing humanitarian commitments while remaining responsive to evolving global context
- Continuing to support ambitious Francophone immigration targets in the context of decreasing admissions targets and limited levers
- Continuing to enhance integrity of immigration system to restore public and client confidence in Canada’s managed migration system
Annex A: Temporary Resident Targets
Annual Temporary Resident Targets: Notice – Supplementary Information for the 2025-2027 Immigration Levels Plan - Canada.ca
5% target is met by end of 2026.
| 2025 | 2026 | 2027 | |
|---|---|---|---|
| Overall Arrivals | 673,650 (604,900 - 742,400) |
516,600 (435,250 - 597,950) |
543,600 (472,900 - 614,250) |
| Workers (Total) | 367,750 | 210,700 | 237,700 |
| International Mobility Program | 285,750 | 128,700 | 155,700 |
| Temporary Foreign Worker Program | 82,000 | 82,000 | 82,000 |
| Students | 305,900 | 305,900 | 305,900 |
Annex B: Permanent Resident Targets
Annual Permanent Resident Targets: Notice – Supplementary Information for the 2025-2027 Immigration Levels Plan - Canada.ca
| 2025 | 2026 | 2027 | ||||||||
|---|---|---|---|---|---|---|---|---|---|---|
| Immigrant Category | Target | Low Range | High Range | Target | Low Range | High Range | Target | Low Range | High Range | |
| Overall Planned Permanent Resident Admissions | 395,000 (367,000 - 436,000) |
380,000 (352,000 - 416,000) |
365,000 (338,000 - 401,000) |
|||||||
| Overall French-speaking Permanent Resident Admissions outside Quebec | 8.5% (29,325) |
9.5% (31,350) |
10% (31,500) |
|||||||
| Economic | Federal Economic Priorities | 41,700 | 30,000 | 62,000 | 47,400 | 30,000 | 65,000 | 47,800 | 32,000 | 65,000 |
| In-Canada Focus | 82,980 | 39,000 | 89,000 | 75,830 | 33,000 | 82,000 | 70,930 | 66,000 | 76,000 | |
| Federal Business | 2,000 | 1,200 | 3,000 | 1,000 | 200 | 2,000 | 1,000 | 200 | 2,000 | |
| Federal Economic Pilots: Caregivers ; Agri-Food; Community Immigration Pilots; Economic Mobility Pathways Pilot |
10,920 | 6,000 | 14,800 | 9,920 | 5,300 | 14,000 | 9,920 | 5,300 | 14,000 | |
| Atlantic Immigration Program | 5,000 | 4,000 | 7,000 | 5,000 | 4,000 | 7,000 | 5,000 | 4,000 | 7,000 | |
| Provincial Nominee Program | 55,000 | 20,000 | 65,000 | 55,000 | 20,000 | 65,000 | 55,000 | 20,000 | 65,000 | |
| Quebec Skilled Workers and Business | 34,500 | 33,000 | 50,000 | TBD | - | - | TBD | - | - | |
| Regularization Public Policy | 50 | - | 250 | 100 | - | 500 | 200 | - | 1,000 | |
| Total Economic | 232,150 (215,000 – 256,000) |
229,750 (214,000 – 249,000) |
225,350 (207,000 – 246,000) |
|||||||
| Family | Spouses, Partners and Children | 70,000 | 65,500 | 78,000 | 66,500 | 63,000 | 75,000 | 61,000 | 58,000 | 67,500 |
| Parents and Grandparents | 24,500 | 20,500 | 28,000 | 21,500 | 16,500 | 24,500 | 20,000 | 15,000 | 22,000 | |
| Total Family | 94,500 (88,500 – 102,000) |
88,000 (82,000 – 96,000) |
81,000 (77,000 – 89,000) |
|||||||
| Refugees and Protected Persons | Protected Persons in Canada and Dependents Abroad | 20,000 | 18,000 | 30,000 | 18,000 | 16,000 | 30,000 | 18,000 | 16,000 | 30,000 |
| Resettled Refugees – Government Assisted | 15,250 | 13,000 | 17,000 | 15,250 | 13,000 | 17,000 | 15,250 | 13,000 | 17,000 | |
| Resettled Refugees – Blended Visa Office Referred | 100 | - | 150 | 100 | - | 150 | 100 | - | 150 | |
| Resettled Refugees – Privately Sponsored | 23,000 | 21,000 | 26,000 | 22,000 | 19,000 | 24,000 | 21,000 | 19,000 | 24,000 | |
| Total Refugees and Protected Persons | 58,350 (55,000 – 65,000) |
55,350 (50,000 – 62,000) |
54,350 (50,000 – 60,000) |
|||||||
| Total Humanitarian & Compassionate and Other | 10,000 (8,500 – 13,000) |
6,900 (6,000 – 9,000) |
4,300 (4,000 – 6,000) |
|||||||
Annex C: Non-Permanent Resident Growth as a Percentage of Total Population in 2022 – 2023 by Economic Region (July 1, 2022 – June 30,2023)
NPR admissions as a % of total population
Yukon 1.1%
Northwest Territories 0.5%
Nunavut 0.1%
Lower mainland Southwest 2.9%
Calgary 2.0%
Saskatoon Biggar 1.0%
Winnipeg 2.3%
North East 2.0%
Kitchener Waterloo 2.3%
Windsor Sarnia 2.4%
London 1.6%
Toronto 2.7%
Montreal 4.3%
Quebec City 1.7%
Moncton Richibucto 1.8%
Halifax 1.3%
Cape Breton 5.4%
Prince Edward Island 1.3%
Avalon Peninsula 1.3%
Annex D: PR Admissions as a Percentage of Total Population in 2022–2023 By Economic Region (July 1, 2022 – June 30, 2023)
PR admissions as a % of total population
Yukon 1.5%
Northwest Territories 0.6%
Nunavut 0.1%
Lower mainland Southwest 2.1%
Edmonton 1.3%
Calgary 1.7%
Saskatoon Biggar 3.2%
Southwest 1.8%
Regina Moose Mountain 2.9%
Winnipeg 2.5%
South Central 1.7%
Toronto 1.9%
Ottawa 1.2%
Montreal 1.7%
Fredericton Oromocto 1.2%
Saint John-St. Stephen 1.2%
Moncton Richibucto 2.4%
Halifax 2.1%
Prince Edward Island 1.9%
Avalon Peninsula 1.4%
Annex E: PR and NPR Employment by Sector
| Sector | Permanent Resident | Non-Permanent Residents |
|---|---|---|
| Transportation and warehousing | 38% | 3% |
| Accommodation and food services | 31% | 9% |
| Professional, scientific and technical | 33% | 5% |
| Business, building and other support | 32% | 6% |
| Finance, insurance, real estate and leasing | 34% | 3% |
| Manufacturing | 32% | 4% |
| Health care and social assistance | 29% | 3% |
| Trade | 25% | 4% |
| Other services (except public) | 25% | 3% |
| Information, culture and recreation | 22% | 3% |
| Educational services | 21% | 3% |
| Construction | 20% | 2% |
| Public administration | 19% | 2% |
| Utilities | 16% | 2% |
| Agriculture | 12% | 2% |
| Forestry, fishing, mining, oil and gas | 13% | 1% |
PR and DPR all sectors 31%
| Sector | Born in Canada | Permanent Resident | Non-Permanent Residents |
|---|---|---|---|
| Professional, scientific and technical | 121,200 | 151,000 | 45,100 |
| Health care and social assistance | 49,400 | 113,900 | 26,600 |
| Public administration | 108,700 | 54,500 | 10,400 |
| Educational services | 117,500 | 37,300 | 10,000 |
| Finance, insurance, real estate and leasing | 68,300 | 60,400 | 19,500 |
| Construction | 65,300 | 32,500 | 10,600 |
| Information, culture and recreation | 19,500 | 40,300 | 8,000 |
| Manufacturing | -15,000 | 40,900 | 35,900 |
| Trade | -69,700 | 55,200 | 48,400 |
| Utilities | 16,500 | 2,700 | 1,500 |
| Forestry, fishing, mining, oil and gas | -6,000 | 9,900 | 0 |
| Transportation and warehousing | -55,300 | 43,200 | 6,000 |
| Other services (except public administration) | -14,300 | -13,300 | 3,800 |
| Agriculture | -32,900 | -1,600 | -3,500 |
| Business, building and other support | -74,600 | -11,000 | 13,700 |
| Accommodation and food services | -127,200 | 2,800 | 33,100 |
Annex F: PR, NPR and Canadian-born Employment by Sector
| Sector | Permenant Resident | Non-Permenant Residents |
|---|---|---|
| Transportation and warehousing | 384,900 | 34,000 |
| Accommodation and food services | 350,700 | 101,000 |
| Professional, scientific and technical | 622,800 | 101,000 |
| Business, building and other support | 223,500 | 39,700 |
| Finance, insurance, real estate and leasing | 468,900 | 46,600 |
| Manufacturing | 583,900 | 79,700 |
| Health care and social assistance | 737,500 | 119,400 |
| Trade | 737,500 | 119,400 |
| Other services (except public) | 193,000 | 26,100 |
| Information, culture and recreation | 185,900 | 30,800 |
| Educational services | 309,500 | 43,800 |
| Construction | 314,800 | 37,100 |
| Public administration | 220,100 | 19,900 |
| Utilities | 25,300 | 3,100 |
| Agriculture | 31,000 | 5,700 |
| Forestry, fishing, mining, oil and gas | 41,300 | 4,100 |
| Sector | Born in Canada |
|---|---|
| Transportation and warehousing | 606,000 |
| Accommodation and food services | 676,800 |
| Professional, scientific and technical | 1,151,200 |
| Business, building and other support | 428,400 |
| Finance, insurance, real estate and leasing | 871,900 |
| Manufacturing | 1,148,300 |
| Health care and social assistance | 1,832,300 |
| Trade | 2,114,800 |
| Other services (except public) | 547,900 |
| Information, culture and recreation | 631,000 |
| Educational services | 1,141,900 |
| Construction | 1,230,500 |
| Public administration | 943,000 |
| Utilities | 126,500 |
| Agriculture | 219,700 |
| Forestry, fishing, mining, oil and gas | 281,000 |