II. Background and history
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The audit function within the Office of the Commissioner of Official Languages examines in greater detail systemic issues related to the implementation of the Official Languages Act and formulates recommendations with a view to helping federal institutions better comply with the Act. Because of the strategic importance of IT&E, the CF was chosen in the framework of our three-year audit plan and, more specifically, in our 2007–2008 annual plan. National Defence and the CF were already the subject of a language audit in 2006–2007 for the language of work (Part V) at National Defence, Ottawa Headquarters. This linguistic audit of the IT&E system is part of this continuity with respect to the use of official languages in the workplace within the CF.
The CF is among the institutions most at risk from a language of work perspective. The institution’s performance report card in the Commissioner’s 2006–2007 annual report showed that the CF received a very low rating. This was mostly due to the difficulty the CF has in creating a workplace conducive to the effective use of English and French as languages of work.
The Office of the Commissioner has analyzed the language of occupational training in the CF many times. At the time of its 1977 audit, Francophones were receiving almost all their military training in English. In his report to the Governor in Council in 1987, the Commissioner then emphasized that, even though progress had been made on basic training courses, the availability of courses in both languages significantly decreased as the level of skill and specialization increased. The special study of 1989, also conducted by the Office of the Commissioner, revealed that the CF did not have sufficient human resources and translation capacity to provide the majority of occupational training in French. Finally, in the investigation report of 2006, the Commissioner recommended that the CF increase the number of training personnel able to teach in French by providing them with second-language training or by using training resources outside the CF.
Over the last few years, complaints related to language of work and equitable participation have represented a significant share of admissible complaints against the CF. In the last three years, out of the 60 complaints related to language of work and equitable participation, at least 50% were related to IT&E. Moreover, some of these complaints were highlighted by the media, which attracted even more attention.
The IT&E system that is the subject of this audit is at the heart of the operational mandate of the CF. In its document on the IT&E strategic framework, the CF states that the system’s goal is to "provide individual training and education at the right time, and at an acceptable cost so that personnel is able to meet operational needs." In another section of the document, one of the desired effects of IT&E is explained as "the timely assignment of military personnel with the relevant skills, to the right location and at the right time, throughout their career in the CF." It is clear that IT&E greatly contributes to achieving the primary mandate of the CF with regard to protection, defence and international peace.
However, the current context in which the IT&E system operates makes it more difficult to meet these objectives. The CF is undergoing a transformation as the Cold War has been replaced by new threats such as worldwide terrorist movements and increased interstate tension. The CF must respond to these threats. Furthermore, the CF aims to increase in size at a time when there is an accelerated operational tempo and an alarming attrition rate among baby boomers.
It is important to note also that this IT&E system audit was undertaken in a context in which the National Defence official languages program is being renewed. In October 2006, the Chief of the Defence Staff and the Deputy Minister announced the Official Languages Program Transformation Model (2007–2012) to fully meet the requirements of the Official Languages Act and National Defence operations. This new approach was established pursuant to the principle set out in the National Defence Act, which requires that the CF manage its personnel "by unit and not by position." This new functional approach aims to better target the needs of the working groups (CF units). It also allows more flexibility when assigning duties within these groups. One of the objectives of this new approach is "to ensure that linguistically qualified civilian and military personnel are provided in the right place and at the right time to effectively support CF operations and to comply with the OLA [Official Languages Act]."1 This audit addresses several areas of the Official Languages Program Transformation Model that have a bearing on IT&E.
Note
1 National Defence, National Defence Official Languages Program Transformation Model, p. iii.
