Policy Making in Times of Crisis: The Case of Immigration and International Students in Canada During the COVID-19 Pandemic

This research explores policy making in time of crisis, by examining immigration policy measures introduced in Canada during the COVID-19 pandemic with a focus on international student recruitment and retention in postsecondary education institutions. The study adopts a qualitative research design with policy analysis as a research method, and used elements of Kingdon’s multiple streams approach (MSA) (1984) and Keeler’s macro-window-opening process (MWOP) (1993) to develop its theoretical framework. Data for this study was gathered through published policy documents as well as semi-structured interviews with diverse policy actors, including civil servants, senior leaders in educational institutions, national and provincial associations, immigration consultants and education agents. Findings of this study suggest that the immigration measures introduced by the Canadian government during the pandemic can be classified into four main types: travel regulations, online learning provisions, work-related measures, and immigration policies (including pathways to permanent residency and immigration level plans). In alignment with the theoretical framework, the study finds that the COVID-19 pandemic served as a crisis that, in combination with the government’s pro-immigration policy mandate, helped create a macro-window of opportunity that allowed for major reforms supporting continued international student recruitment and retention, most notably through online learning provisions and work-related policies. Interview participants noted that the government’s approach to policy making evolved over time with a noticeable shift from reactive to proactive strategies, that involved increased consultation and collaboration with relevant stakeholders. The focus of the policy measures also shifted from public health to economic recovery as the immediate threats of the pandemic were contained. The findings identify chaos and uncertainty in the environment, communication gaps, and tensions between federal and provincial government as the main limitations that impacted policy outcomes and their scope of achievement. Moreover, the findings emphasize the key role of policy entrepreneurs, including government actors and national associations, in shaping policy decisions. The research highlights gaps in the existing framework and identifies the need for considering variables such as institutional constrains, net impact assessment, geopolitical factors, and policy alignment, especially when studying policy making in an international context. Findings of this study are particularly relevant to inform high-impact and rapid-response policy changes to support the international education sector in Canada.