Introduction
This report provides an authoritative and detailed overview of the significant and recent changes to Canada’s International Student Program (ISP), primarily implemented or announced in late 2024 and 2025. These adjustments are crucial for anyone considering studying in Canada, as they directly impact eligibility, application processes, financial requirements, and post-graduation opportunities.
The Canadian government has introduced these measures to address various challenges, including pressures on housing, healthcare, and other public services, as well as to strengthen the integrity and sustainability of the international student program. Understanding these updates is paramount for prospective students to ensure their applications are compliant, their financial planning is accurate, and their post-study pathways align with current regulations. Failure to account for these changes could lead to application delays, refusals, or unexpected limitations on work opportunities. All information presented is derived from official Immigration, Refugees and Citizenship Canada (IRCC) announcements and reputable immigration news sources, ensuring accuracy and timeliness. The primary official source for these updates is the IRCC website.
Part I
I. Study Permit Application Caps and Provincial Attestation Letters (PAL/TAL)
The Canadian government has implemented significant changes to the volume of international students admitted, primarily through the introduction of a national cap on study permit applications and the requirement for Provincial Attestation Letters (PALs) or Territorial Attestation Letters (TALs). These measures reflect a strategic effort to manage the growth of the international student population and alleviate pressures on public services.
National Study Permit Cap for 2025
Effective January 22, 2025, the federal government has capped study permit applications at 550,162 for the remainder of 2025, as announced through ministerial instructions on January 18, 2025.3 It is important to note that this figure represents a processing target, not the number of approved permits. Once this cap is reached, any further applications will be returned without processing, and the associated application fees will be refunded.
For 2025, IRCC plans to issue a total of 437,000 study permits, which constitutes a 10% decrease from the 2024 cap. The 2024 cap had already resulted in a reduction of approximately 40% in the number of international students entering Canada. Looking further ahead, the 2025-2027 Immigration Levels Plan indicates that IRCC aims to welcome approximately 305,900
new international students each year between 2025 and 2027. These measures were primarily introduced to maintain the robustness of the International Student Program and to help ease the strain on critical resources such as housing, healthcare, and other services, particularly in urban centers with high student populations.
The consistent reduction in international student intake targets—a 40% reduction in 2024, a further 10% decrease in 2025, and a lower “new student” landing target for 2025-2027—is not a minor adjustment but a deliberate, multi-year policy shift. The explicit rationale provided by IRCC directly links these reductions to alleviating pressure on Canada’s infrastructure and social services. This suggests that the government has identified a direct correlation between the rapid growth of the international student population and the strain on public resources. Consequently, prospective students now face a significantly more competitive environment for securing a study permit. Meeting the minimum requirements may no longer be sufficient; applications are likely to undergo more rigorous scrutiny. Applicants must present a compelling case for their genuine intent to study and their ability to be self-sufficient, as the system is designed to admit fewer individuals. This also signals a potential re-evaluation of Canada’s overall immigration strategy, moving towards a more managed and sustainable intake across various temporary resident categories.
Furthermore, the discrepancy between the 2025 processing cap of 550,162 applications and the target of 437,000 issued study permits reveals an anticipated rejection rate built into the system. IRCC explicitly states that this processing cap accounts for a consistent rejection rate and the likelihood of existing students extending their status. This is not merely an administrative detail but a strategic buffer. This means that even if an applicant successfully submits their application before the processing cap is reached, there remains a substantial probability of refusal. The “cap” is on applications accepted for processing, not on approvals. This underscores the critical importance of submitting a complete, robust, and compelling application that leaves no room for doubt regarding eligibility, financial capacity, and genuine intent to study. It also implies that the actual number of new international students entering Canada will be notably lower than the processing cap might suggest.
Mandatory Provincial Attestation Letters (PAL/TAL)
To implement the national cap, most study permit applicants are now required to submit a Provincial Attestation Letter (PAL) or Territorial Attestation Letter (TAL) with their application. This requirement has been extended to include master’s and doctoral students, as well as most applicants applying from within Canada. A new exemption from this requirement has been introduced for exchange students.
A PAL/TAL must be valid at the time of application and cannot be from a previous study permit cap year. A new PAL/TAL is necessary if a previous study permit application was approved or refused, if an applicant is changing schools, or if they are changing their level of study (e.g., moving from post-secondary to graduate level or vice-versa).
The 2025 national target for study permits includes specific allocations for different student cohorts. Of the total 437,000 expected study permits, 316,267 are allocated to PAL/TAL-required groups, while 120,724 are for PAL/TAL-exempt students. Provincial and territorial allocations for PAL/TAL-required cohorts are determined based on the average approval rates for each jurisdiction from 2023 and 2024. For graduate students, their specific sub-allocations for 2025 are based on the number of study permits issued to them by each province or territory in 2023.
The following groups continue to be exempt from submitting a PAL/TAL:
- Primary and secondary (kindergarten to grade 12) students.
- Students applying to a school participating in the Francophone Minority Communities Student Pilot (FMCSP) with a specific acceptance letter identifying them as an applicant under the FMCSP.
- Students at federally designated military colleges.
- Students in Quebec in a vocational training program leading to a Diploma of Vocational Studies (DVS), Attestation of Vocational Specialization (AVS), or Skills Training Certificate (STC).
- Exchange students studying under a reciprocal arrangement who do not pay tuition fees to the Designated Learning Institution (DLI).
- Recipients of scholarships from Global Affairs Canada.
- Individuals in Canada or entering Canada at a port of entry who are eligible for an exemption based on a public policy as part of a migration response to a crisis or other pressure.
- Those exempt under the temporary measures to reunite families of Indigenous people separated by Canada’s border.
- Existing study permit holders applying for an extension at the same Designated Learning Institution (DLI) and at the same level of study.
- Individuals under a removal order but who cannot be removed from Canada at this time.
- Those with a temporary resident permit valid for at least 6 months.
- Protected persons (defined as a Convention refugee, a person in need of protection, or someone whose pre-removal risk assessment has been approved by IRCC).4
- Those eligible for permanent residence based on humanitarian and compassionate grounds, a current public policy, or as a spouse or common-law partner (through the spouse or common-law partner in Canada class).
- Those being sponsored by their Canadian loved one for immigration under in-land sponsorship.
For students planning to study in Quebec, most who do not need a PAL/TAL must still obtain a Quebec Acceptance Certificate (CAQ), with very few exceptions. For the 2025 study permit cap year, a CAQ received before January 22, 2025, will be accepted if it is valid and includes a specific line: “This attestation letter confirms that the applicant has a place in Quebec’s share of the distribution of study permit applications or is exempt from it”. Re-using a CAQ is possible under specific conditions, but generally not if studies extend beyond its expiry, if the level of study is changing, or if schools are changing (unless specific conditions regarding the CAQ issuance date or minor children apply).
The mandatory PAL/TAL requirement, coupled with provincial and territorial allocations, fundamentally shifts a significant portion of the international student intake control from the federal IRCC to provincial and territorial governments. This means that a student’s ability to obtain a study permit is now contingent not only on federal eligibility criteria but also on securing an attestation from the province or territory where they intend to study. This introduces a new, critical layer of approval. This change implies that the availability of study permits will vary significantly by province, potentially leading to shifts in student distribution across Canada based on provincial priorities and capacity. Prospective students must now research not just federal requirements but also the specific processes and potential quotas within their desired province or territory for obtaining a PAL/TAL. This added administrative step could also introduce new processing delays at the provincial level.
Despite the overall cap, specific spaces are reserved for graduate students (73,282 permits), and their inclusion under the cap is described as a “preventative measure” to ensure sustainable growth, rather than a full restriction.1 Furthermore, certain vulnerable cohorts (e.g., protected persons, those under humanitarian policies) and specific educational pathways (K-12, exchange programs, Francophone minority communities) are explicitly exempt from the PAL/TAL requirement. This indicates a nuanced policy approach. This policy suggests that Canada continues to strategically value and encourage the entry of high-skilled individuals, such as graduate students, who are more likely to contribute to research, innovation, and eventually, the skilled workforce and permanent residency. The exemptions for other groups reflect Canada’s commitments to humanitarian efforts and specific social or cultural objectives. For prospective graduate students, while they now need a PAL/TAL, their chances might be relatively better within their reserved allocation compared to undergraduate or college students who fall into the broader, more competitive PAL/TAL-required cohort.
The following table provides a detailed breakdown of the 2025 study permit targets by student cohort, as provided by IRCC. For prospective students, this table is valuable because it immediately shows the relative size of the pool they are competing within (e.g., graduate students have a dedicated allocation, while most undergraduate/college students fall into the largest, most competitive “remaining PAL/TAL-required cohorts”). It also clearly differentiates between cohorts that require a PAL/TAL and those that are exempt, helping students quickly determine if this new requirement applies to their specific situation. For students with multiple options, seeing these numbers can influence their choice of program level (e.g., pursuing a master’s degree might offer a more defined pathway within the new system) and helps them manage expectations regarding their chances of approval.
Student Cohort | Expected Study Permits Issued (2025) | PAL/TAL Requirement |
Graduate Degree Students | 73,282 | Required (specific allocation) |
Kindergarten to Grade 12 Applicants | 72,200 | Exempt |
All Other PAL/TAL-Exempt Applicants | 48,524 | Exempt |
Remaining PAL/TAL-Required Cohorts | 242,994 | Required |
Total | 437,000 | |
Sub-total: PAL/TAL-Exempt Students | 120,724 | |
Sub-total: PAL/TAL-Required Groups | 316,267 |
This program requires valid language test results
Applicants interested in applying for direct admission, but are yet to complete an acceptable language test, can do so, but must provide valid results before receiving a final offer letter.
This program offers conditional admissions
For conditional admission, instead of submitting language proficiency test scores, applicants may complete English courses prior to the academic program. The length of the English course is determined based on the applicant‘s level of English proficiency.
The program requirements above should only be used as a guide and do not guarantee admission into the program.