Pointing the Way

"An answer is always the stretch of road that's behind you. Only a question can point the way forward."

Jostein Gaarder

This quote from the celebrated Norwegian novelist and philosopher Jostein Gaarder encapsulates the approach taken by the Commissioner of Official Languages, who commissioned a study focusing on a series of questions to which there are no easy answers: The Governance of Canada's Official Language Minorities: A Preliminary Study. This study which was made public on November 24, was prepared by Linda Cardinal and Marie-Ève Hudon of the University of Ottawa.

What is meant by "governance"? Governance is how the workings of a given society are organized. Governance can be vertical and hierarchical, or horizontal and distributed. Confused? The reality that underlies the definition is not so complex. Since 1990, with a view to enhancing the vitality of English and French linguistic minority communities and supporting and assisting their development, the federal government has been introducing horizontal systems to coordinate its operations. Here are some examples:

These are new approaches to governance, new ways to facilitate cooperation between the networks of government and non-governmental players in the area of official languages.

The purpose of this study is to provide an initial assessment of the effectiveness of this form of governance in enhancing the vitality and supporting the development of the English linguistic minority community in Quebec and the French linguistic minority communities elsewhere in Canada. Has the new governance improved the situation for the communities targeted? We have reviewed the situation in detail. Our review raises many questions, which the federal government must address; for example:

This study lays the groundwork for an analysis designed to clarify the problems and issues involved in horizontal governance with respect to the vitality and development of the official language minorities. It also states that effective coordination of action may be hampered by the organizational and ideological context in which it takes place and by the tensions and conflicts within the networks of players.

The study shows that the Canada-community agreements have not been a very effective method of coordinating action. While they have made possible the beginning of co-operation between the government and the official-language minorities, they have led to a significant bureaucratization of the relations between them, as well as to problems with respect to accountability, the sharing of responsibility, and the interaction among the various networks of players.

All the questions raised in this study will help identify the problems and issues involved and assist in ascertaining whether this approach to governance is effective in ensuring the vitality and development of the official language minorities.

As the title indicates, this is a preliminary study. The publication of this document by the Commissioner is but a first step in addressing the issue. In a sense, this study asks the government to ponder the matter and take appropriate action, as the Commissioner has done. "Act II" of the study is surely to come, as we await the parties' responses...

And Now for the Good News

While it is unfortunate that we often have to deal with problems in the area of official languages, it is important that we also tell the success stories. The Commissioner's latest Annual Report did exactly that, and on page 45, it describes a very successful partnership.

Since 1997, the Human Resources Development Canada resource centre in London, Ontario, and the London-Sarnia regional council of the Association canadienne-française de l'Ontario (ACFO) have had in place a most effective system to direct Francophone users toward ACFO's employment resources centre. These two centres, one operated by the government and the other by the community, together provide clients with job counselling. While not claiming to correct all problems, this partnership model produces convincing results, to the great satisfaction of its Francophone clients. The partnership was not created overnight. It has grown through the strong desire and hard work of everyone who took part. In a letter recently addressed to Dyane Adam, one of the partners in this joint project expressed her thanks for its success. An extract of this letter is reproduced here.

As Dr. Adam wrote in her Annual Report, "this partnership should be a model for all communities served by human resource centres. It could also be adapted for other departments."

The OCOL Train is Coming to Town!

In the past two years, Dr. Dyane Adam has listened carefully to the comments of the Canadians she has met or who have contacted her. Many would like to see the Office of the Commissioner of Official Languages take on a more prominent national role.

Aware that many Canadians are not familiar with OCOL, the Commissioner is making every effort to make OCOL's presence better felt "out there." Consequently, over the past few months, OCOL has been involved in a number of activities that serve a double purpose: to better inform the public and to seek its input. Thus, officers are taking part in ever more number of events and shows where OCOL sets up a booth. As many have pointed out, this booth serves as a meeting place as much as an information centre.

WHAT WILL I FIND AT AN OCOL BOOTH? An abundance of material to help you learn about and understand official languages issues, specifically: the mandate and mission of the Office of the Commissioner of Official Languages: the Official Languages Act; OCOL publications; brochures on language rights, on how to file a complaint with OCOL, and on how to obtain information; etc. You will also find our attractive posters (very popular with both children and adults), a CD-ROM for children, and an activity book for preteens. Not only that; at the OCOL booth you will be able to meet our officers, who will be happy to speak with you to seek your opinion and listen to your comments and concerns.

The Office of the Commissioner of Official Languages was an exhibitor at several events and shows in 2001, such as:

REGINA, Saskatchewan: Buffalo Days, July 31 to August 5;

LONDON, Ontario: Canada Summer Games, August 11 to 25;

WATERVILLE, Quebec: Townshippers' Day, September 15;

OTTAWA, Ontario: Ontario Francophonie Open Doors, September 26;

MONTREAL, Quebec: Education, Training, and Job Fair, October 11 to 14;

CHARLOTTETOWN, Prince Edward Island: Atlantic Symposium on Official Languages, October 24 to 26;

SAINT-HYACINTHE, Quebec: Annual meeting of the Société pour la promotion de l'enseignement de l'anglais, langue seconde, au Québec (SPEAQ), November 2.

In 2001-2002, the OCOL "train" will be stopping at more events and shows across the country. In this way, Dr. Adam will ensure that she and her staff maintain an ongoing dialogue with Canadians throughout the country.

Mr. Alex Himelfarb, Deputy Minister for Canadian Heritage, fell under Léon's spell during a stop at the Office of the Commissioner's booth which was visiting his department on November 15. He is seen here with two employees from the Office of the Commissioner, Claude Éthier (left) and Gilles Thériault.

Translation Prize 2001

The Quebec Writers' Federation (QWF) recently awarded its literary prizes for 2001. The Translation Prize, which is sponsored by the Commissioner of Official Languages, went to Phyllis Aronoff and Howard Scott for The Great Peace of Montreal of 1701: French-Native Diplomacy in the Seventeenth Century, a translation of La Grande Paix de Montréal de 1701 : les voies de la diplomatie franco-amérindienne by Gilles Havard.

Howard Scott won the Governor General's Award for Translation in 1997 for The Euguelion (Alter Ego) by Louky Bersianik. He has also published translations of the works by Quebec poet Madeleine Gagnon and Quebec science fiction writer Élisabeth Vonarburg. Phyllis Aronoff is a Montreal translator who has translated writings in philosophy, literary theory, science fiction and theatre criticism. Aronoff and Scott also worked together on the translation of Two Solicitudes: Conversations in 1996, which was based on a series of letters exchanged between Margaret Atwood and Victor-Lévy Beaulieu.

Eva Ludvig, the Commissioner's Representative in Quebec, presented the prize on behalf of Dr. Dyane Adam.

Mourning a Great Leader

It is with great sadness that INFOACTION learned of the death of Maurice Gauthier, who was the Office of the Commissioner of Official Language's first regional representative in the West, from 1977 to 1985.

Throughout his career, Maurice Gauthier left his mark on Francophone Manitoba. Over the years he occupied a number of high-level positions within the provincial government, including Deputy Minister of Corporate Development. He was also the first elected president of the Société franco-manitobaine (1968-1969), and he worked with a number of organizations including the caisses populaires and the educational community.

Maurice Gauthier's involvement was recognized and acknowledged on a number of occasions. The Conseil de la vie française en Amérique awarded him the Ordre de la fidélité française in 1998. He was also honoured by the Compagnie des Cent associés francophones, the Conseil de la coopération du Manitoba and the Collège universitaire de Saint-Boniface.

The Office of the Commissioner of Official Languages is greatly indebted to Maurice Gauthier. He was a true agent of change who successfully integrated the three functions of ombudsman, auditor of federal performance and promoter of official languages and embodied them all harmoniously. Maurice Gauthier inspired a number of his colleagues at the Office of the Commissioner and was a mentor for more than one of them. He was an incomparable leader who left as a legacy his great love of the official languages.

Dr. Dyane Adam and her team, especially Maurice's former colleagues, would like to express their deepest sympathy to Maurice Gauthier's family and to the Francophone community in Manitoba.

Young Children and French

The Office of the Commissioner of Official Languages has worked in partnership with the Association canadienne d'éducation de langue française (ACELF) for a number of years, mainly in the context of the Semaine nationale de la francophonie. In the past, OCOL has been involved in contests aimed at high-school children throughout the country.

This year, the partnership between OCOL and ACELF brings something new: the Prix du Commissariat aux langues officielles pour la petite enfance (Office of the Commissioner of Official Languages Prize for Children's Learning Activities). The purpose of this contest is to recognize projects developed by organizations and individuals working with preschool children (aged six and under) that stimulate children's interest in the French language.

The contest is aimed at those working in early childhood services, family daycare, kindergarten, etc., and individuals working with preschool children.

We are looking for projects that will stimulate children's interest in the French language. The projects submitted must be educational and may entail a wide range of activities. Eligible projects include all activities that foster or enhance the learning or understanding of oral or written French. For example, projects may involve children in the writing of a book, develop teaching materials, put on a play or set up a reading area in a daycare centre, introduce children to the world of books and reading in a creative or unusual way, etc.

The projects will be assessed by a panel of judges made up of ACELF representatives, Commissioner of Official Languages staff, and individuals working with preschool children. Projects will be judged on the basis of the following criteria: effectiveness as learning tools; usefulness; practicability; originality; and adherence to the theme.

For purposes of this contest, we have divided the country into four regions, with one prize to be awarded in each of: the Atlantic Region; Quebec; Ontario; and Western and Northern Canada. The contest deadline is January 11, 2002.

Each of the four winners will receive a $1,000 bursary. The national winner (one of the four regional winners) will be awarded an official plaque and a trip for two to Quebec City to attend the awards ceremony, in March 2002.

The winners will be announced in the next issue of Infoaction.

A Return to Charlottetown

They met in Charlottetown in 1864. Men of vision, the Fathers of Confederation went there to discuss building a Canada founded on respect for linguistic, cultural and regional diversity.

The vision that inspired them is still alive today. It was the driving force behind the Atlantic Symposium on Official Languages, which took place in Charlottetown from October 24 to 26, 2001. The event was organized by the Federal Councils from the four Atlantic provinces and their respective official languages committees.

Participants got together to ensure that this vision of linguistic duality continues to nourish the Canadian identity.

Under the theme "Building a future... on linguistic, cultural and regional diversity," the symposium brought together about 150 managers and employees responsible for implementing the official languages program in the Atlantic region, an indispensable aspect of the quality service provided by the government of Canada. The main objectives of the symposium were:

The program included speakers, panel discussions and workshops reflecting the needs identified during a pre-symposium consultation:

In her closing address to participants, the Commissioner congratulated the government employees with these words: "By organizing this symposium, you have shown that you have fully grasped one of the basic principles of change. Real change occurs when you take personal responsibility for it. You did not wait for Ottawa to tell you what to do. The fact that this forum on official languages was organized 'by' and 'for' departments is a significant sign of leadership. You have clearly demonstrated that you are able to aim high and tackle sizeable challenges. You are catalysts of change."

During discussions, participants identified the main challenges and issues. They discussed "best practices" and identified various ways to promote linguistic equality. They examined the renewed vision of official languages in depth and identified the most effective ways to achieve the federal government's targets.

The symposium generated a lot of interest and certainly initiated a process of institutional change designed to enhance the implementation of the federal government's official languages program in the four Atlantic provinces. At the end of the symposium, participants suggested the following ways to translate their commitment to official languages into action:

Dr. Adam said that she was pleased with the success of the Symposium, which is the first of its kind in the Atlantic region and an event that she believed demonstrated that services in French are improving. As she stated in an interview with the French-language CBC program Atlantique Express, "With such a symposium and such involvement, things can only get better. Managers intend to follow up on what was discussed in the symposium, and there's networking in place that will make sure that what came out of the event won't simply be shelved. That's the type of vigilance that is needed 'on the ground.' This symposium confirmed my expectations, which are by no means insignificant: as we see this desire to change things, we are led to believe that, in the long term, federal institutions will achieve a perfect score with respect to bilingual services."

Dr. Adam intends to follow the initiatives that came out of the Atlantic Symposium very closely; this type of event is a good idea that she would like to see duplicated in other regions of Canada.

They Earned Their Stripes!

Over 700 young cub reporters wanted to try the profession that they may one day choose as their career. As part of its national program, Rendez-vous de la Francophonie, in partnership with the Government of Canada, Exchanges Canada, SEVEC, les Hebdos du Québec and the Association de la presse francophone, offered these hundreds of young Francophones and francophiles an exchange opportunity.

Through these exchanges, they had the opportunity to:

For a few days, the young people participating in this exchange program became reporters. Supported by a regional newspaper and supervised by journalists, they conducted interviews and wrote reports about the community they were visiting. Each team provided four reports on various subjects, and each participant wrote an individual account of the host community and his or her personal experience. The submitted stories were part of a contest. Here are the winners for the best report in Category 4, the category that the Office of the Commissioner was involved in.

Course of Concerted Action

A pilot project is currently underway in the Pacific region to improve services provided in French.

The project was brought to life through the sustained interest of the Fédération des francophones de la Colombie-Britannique (FFCB) in the issue of French language services at federal offices that are designated bilingual in British Columbia. The organization noticed a serious gap during audits carried out in 1994 and in 1997, gaps that various reports from the Commissioner confirmed. Following discussions between the FFCB and the Treasury Board Secretariat, TBS initiated a partnership of key agencies interested in the project's goals. Thus was born a partnership made up of the TBS, the Office of the Commissioner of Official Languages, the official languages sub-committee of the Federal Council for the Pacific Region, and the FFCB.

The pilot project, launched at the end of October, is aimed at fostering the awareness of managers in designated offices of their language obligations as stipulated by the Official Languages Act. It is also aimed at ensuring that the public knows where the approximately 200 bilingual points of service are located. To do this, the officials plan a widespread promotional campaign to encourage Francophones in British Columbia to request services in their language.

To successfully complete the project, a consultant was engaged by TBS to meet individually with the managers from these 200 points of service. The goal is to survey the situation and identify solutions to the various problems related to the active offer and delivery of services in French.

The hope is that this pilot project, which will end in March 2002, will have positive repercussions in the public service. The initiative embodies the Commissioner's wish, expressed in the last Annual Report: "A concerted effort by the political and administrative leadership is required in order to bring about a far-reaching change in the culture of institutions. The duty to offer services of equal quality in both official languages must again become central to the federal public service ethic. This duty derives from the respect for the distinctiveness of all Anglophone and Francophone communities, wherever they may be in the country" (p. 14).

CRTC Decision on the Distribution of the Proceedings of the House of Commons on CPAC: Official Languages as a Vehicle for Democracy

The Commissioner of Official Languages welcomed the November 6, 2001, announcement of the decision of the Canadian Radio-television and Telecommunications Commission (CRTC) on the distribution of the proceedings of the House of Commons and its committees on the Cable Public Affairs Channel (CPAC). The decision, which will come into effect September 1, 2002, requires all cable distributors with more than 2,000 subscribers, as well as direct-to-home distributors, to take measures to offer the proceedings of the House of Commons to Canadians in both official languages in all regions of the country. Smaller broadcast distributors will be subject to different guidelines, which will also lead to improved access to the proceedings in both official languages.

On several occasions the Commissioner expressed her concerns that a significant number of Canadians were unable to hear their Members of Parliament in the official language of their choice. The House of Commons is responsible for deciding whether or not to broadcast its proceedings and the work of parliamentary committees. If it does, the House must ensure that the public has access in the official language of choice. This means that two audio signals, one in English and one in French, must accompany the video signal that CPAC broadcasts to cable distributors. Not only can the House offer both signals, but it can also require that cable distributors make them available to subscribers. For Dr. Adam, access to the proceedings of the House of Commons is essential to the sound exercise of democracy in Canada. Following the CRTC's decision she said, "All Canadians should have access to these proceedings in both official languages. This equal access derives from the Canadian Charter of Rights and Freedoms and the Official Languages Act and should not vary according to subscribers' place of residence."

The Commissioner feels that the CRTC's decision represents a considerable improvement over the existing situation.