CHAPTER FIVE: LINGUISTIC DUALITY, CULTURAL DIVERSITY AND CANADA IN THE 21ST CENTURY
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A country stretching out before us
It (Canada) is merely a narrow ribbon clinging to the United States boundary. That ribbon must be widened by pushing development northward and bringing in the people and the capital to make that push possible... Canadian national unity rests on the recognition and acceptance of the dualism of its origin and of the diversity of its development. This dualism must not be permitted to weaken or destroy us. It can be made to strengthen our nation.
The Right Honorable Lester B. Pearson
Lester B. Pearson accurately defined the situation in 1964 when he recognized linguistic duality and cultural diversity as defining features of Canadian society. Duality and diversity—each in its own way and interacting together—have helped shape Canada over recent years. Today, they represent dominant facets of Canadian society and reflect how Canadians see themselves and are perceived around the world.
Canada has more than 35 years of experience with linguistic duality at the federal level. Linguistic duality is now firmly rooted in Canada's social fabric and has become a basic feature of the country's contemporary identity and personality. During this period, the Government of Canada took on the task of promoting linguistic duality. This self-imposed obligation has been integrated into a strengthened legal framework, particularly with the adoption of Bill S-3 in 2005. The government must now adopt positive measures to fulfill its obligation to promote linguistic duality. Accordingly, it must consider linguistic duality from a perspective that goes beyond simple compliance with the Official Languages Act (the Act).
Canada formally opened itself to multiculturalism in 1971, when it adopted a policy recognizing the equal value and dignity of all ethnocultural groups. The Canadian Charter of Rights and Freedoms of 1982 and the Canadian Multiculturalism Act of 1988 defined the scope of this policy. This is the way cultural diversity acquired the status of a fundamental Canadian value. Today, it is difficult to discuss linguistic duality or biculturalism without considering the determining influence of the mixture of English and French cultures, the recognition of Aboriginal peoples and the arrival of new Canadians.
| Linguistic duality: a definition The overriding objective of federal policy was to create a situation of linguistic duality—equality of status for English and French, which implies equitable treatment of speakers of English and French in all aspects of life, whether in public institutions, private life, industrial and commercial activities or civil society. Accomplishing or moving significantly toward the objective meant a reversal of centuries-old assumptions and practices that had been ingrained in Canadian society. Its success would depend not only on widespread public support but also on the cooperation of provincial and territorial governments. Stacy Churchill, New Canadian Perspectives, Official Languages in Canada: Changing the Language Landscape, Canadian Heritage, 1998. |
Individually and collectively, Canadians have seen their country grow and evolve with hope for an ever-greater future. But what are their dreams for the future? What does this future hold and what role, exactly, will linguistic duality and cultural diversity play in Canada's development and modernization? What is their impact on our collective will to continue to live together and build a prosperous nation? How should the duty to promote linguistic duality be seen within an evolving environment marked by the growing influence of cultural diversity?
The Commissioner examined these themes in 2005. In the fall, she held a forum to discuss key issues surrounding linguistic duality, cultural diversity and the rapprochement between these two concepts.
The information deriving from the discussion inspired this chapter. First, the chapter sketches the evolution of linguistic duality, cultural diversity and their influence on Canada today. It then shows these two Canadian values in the overall picture of a changing society. Finally, it proposes a number of steps the federal government can take to initiate a process that will lead to a new vision of linguistic duality and cultural diversity.
Canada: Linguistically dual and culturally diverse
Within the Canadian context, the mention of linguistic duality conjures up 400 years of history. Fortunately, these 400 years have been marked more by spirited exchanges and tough negotiation than insurmountable conflict. The Canada of today is not the product of military, political or even cultural domination. It is the result of successive exchanges and a series of reasonable accommodations. "The idea of a multicultural society where all citizens, no matter their origins, can find a place for their own cultural practices, traditions and values, while at the same time being integrated into the social, economic, cultural and political life of the country, is now very much a part of who we are as Canadians."21
In many respects, linguistic duality is one of the first beneficiaries of these accommodations. The Fathers of Confederation made room for it in the Constitution Act, above all by recognizing the right to use English and French in Canada's Parliament.
Linguistic duality acquired a more definitive form in 1969 with the adoption by Parliament of the first Official Languages Act. This Act, among other things, formally recognized the equal status of English and French in the country. The subsequent adoption of the Canadian Charter of Rights and Freedoms in 1982, which guarantees language rights, as well as the new Official Languages Act in 1988 (including its recent amendments in 2005), have strengthened the legal foundations of duality. Each of these key events is the product of lively debates that, in the end, arrived at solutions through reasonable compromise.
| Canada today is not the product of military, political or even cultural domination. It is the result of numerous successive encounters and a series of reasonable accommodations. Jane Jenson and Martin Papillon, The "Canadian Diversity Model": A Repertoire in Search of a Framework, 2001. |
This rich tradition of accommodation and generosity regarding linguistic duality can also be observed in the realm of the languages, cultures and status of Aboriginal peoples.22 Although much remains to be done, the creation of Nunavut and the renegotiation of treaties and accords are two steps in a long corrective and rehabilitative process, aimed at giving renewed visibility and voice to the First Nations. Significantly, First Nations had an active role in constitutional negotiations that took place in the 1990s.
We could also argue that it is precisely this sense of reasonable accommodation between the two major linguistic groups that opened the door to immigration and diversity within Canadian society. With the arrival of immigrants from all around the world and today's multicultural society, Canada has a multitude of faces and is a true cultural mosaic. Collective identities are less likely than before to be strongly based on language and religion; they are now marked by multiple affiliations. That being said, cultural diversity today is still largely expressed through linguistic duality.
And isn't the country all the better for it? Canada is thriving. Over the course of a few decades, Canada has become one of the best countries in the world in which to live. From 1969 to 2005, the use of French spread in Canada, and linguistic duality increased. Thanks to the combined effect of 35 years of the Official Languages Act, Quebec's linguistic vitality and the contribution of provincial and territorial governments and individual citizens, Canada's Francophone community has found a renewed strength. Immersion schools and French as a second language programs have made it possible to increase the number of Anglophones who speak French. Quebec's Anglophone community has continued to contribute a great deal to the province's dynamic character. Furthermore, newcomers continue to integrate into Canadian society and embrace its linguistic duality. The country is full of personalities, artists, entrepreneurs and authors who were born of immigrant parents or are immigrants themselves, and who enrich life in Canada. For example, one thinks of the Saputo family (entrepreneurs), Atom Egoyan (film director), Mélanie Renaud (singer) and Werner Israel (physicist and cosmologist).
CANADA HAS A MULTITUDE OF FACES
We should also mention that today's knowledge-based economy is associated with individual training and education—what some call human capital. It is also founded on social capital; that is, "... networks, standards, values and ways of understanding that facilitate co-operation within or between groups."23
Thus, linguistic duality and cultural diversity are seen as rich assets and key drivers of productivity. From this viewpoint, the citizens of this country contribute to this economy through their skills and, in particular, their ability to establish contacts with the outside world. They also bring with them attitudes that are conducive to development: tolerance, respect, openness to others, synergy, a concern for compromise and a sense of accommodation. These are essential qualities of the new economy.
Acceptance of differences and openness to languages and cultures inevitably lead to profitable commercial relations and generate economic advantages. The language industry, for instance, is one that has set itself apart. Canada is a world leader in the fields of human translation, language training and production of language technology and services. Canadian know-how in this field is the envy of many countries. For instance, the republics of the former Soviet Union call on the expertise of school boards in Canada in the area of language teaching to help them reintroduce the study of their own languages into their education systems.
| "English-French bilingualism rose markedly in Canada between 1951 and 2001. The number of bilingual Canadians tripled during that period, rising from 1.7 million to 5.2 million, while their proportion rose from 12% to 18%." Marmen and Corbeil, Languages in Canada, Census of 2001. |
Mostly as a result of its policies on immigration and diversity, Canada is expected to become more culturally diverse. Newcomers bring with them know-how and contacts, assets that will contribute greatly to promoting the exchange of ideas, services and goods.
Linguistic duality and cultural diversity produce advantages in other respects: they enhance Canada's reach and influence at the international level. By virtue of its demographic profile and democratic institutions, Canada is open to the world. It maintains close ties with a number of countries, especially through membership in the Commonwealth and the Francophonie, two great international organizations. If Canada can legitimately exercise a positive influence around the world, it is because many countries want to follow the example it has set in terms of duality, diversity and democratic values.
| "Canada has everything, except perhaps ambition!" The Economist (December 3-9, 2005). |
The Canadian formula for linguistic duality and cultural diversity has had its share of success. But does that guarantee a promising future? How can we take full advantage of linguistic duality and cultural diversity? Will we find in these values the foundations for a renewed vision for the country and the motivation for greater ambitions? Will we have the foresight to make the investment in managing our differences in a way that will help Canada thrive and allow it to assume its rightful place on the world stage?
A changing Canada
Canada is in a state of perpetual change. Its situation in 2006 is considerably different from what it was in 1969. And odds are that its profile will change even more in the years to come.
| More than nine million people speak French in Canada, whether as their mother tongue or second language. Source: Census of 2001. |
Among the transformations anticipated, the Canada of tomorrow will be more diverse than it is today. According to a study by Statistics Canada on visible minorities—a significant component of Canada's diversity—the process of linguistic, cultural and ethnic differentiation should continue, so much so that visible minorities may double by 2017. The immigrant population could represent more than 20% of the population of Canada, equal to the highest level observed in the twentieth century.
LINGUISTIC DUALITY LINGUISTIC DUALITY AND
CULTURAL DIVERSITY
As equal citizens, new Canadians must be able to rely on the tools they need to participate fully in society.
Furthermore, while the immigrant population (which, for the most part, tends to integrate into Anglophone communities) is increasing, the demographic weight of the Francophone population is on the decline. As the Commissioner stated in her 2004-2005 annual report, "The immigrant population has grown at a rate three times higher than that of the Canadian-born population, and therefore represents an increasingly greater proportion of Canada's inhabitants. This has had a significant impact on the country's demographics and an even greater impact on the Francophone population, which has seen its numbers decrease through the combined effect of assimilation and a low birth rate." The Commissioner also noted that, in 2001, there were more than eight English mother-tongue immigrants for every French mother-tongue immigrant. It should be pointed out that Canada's immigration policy was revised recently, with a view to replenishing minority official language communities and reinforcing linguistic duality. Whether implementing the new strategies will produce the desired outcomes remains to be seen.
In order to win its historic gamble and continue to evolve in a climate of political stability and social solidarity, the country must absolutely take full advantage of its wealth and follow a path founded on linguistic duality and cultural diversity. As Professor John Kincaid so eloquently said in an article published in September 2005 in La Presse, "the biggest challenge for modern federalism is to allow for cultural diversity peacefully." Undoubtedly, he is warning us that integration of this new Canadian diversity will not happen by itself, and that it will have to be managed to some extent. Coming back to one of the initial principles, he invites us to have another "successive exchange" and produce a new "reasonable accommodation."
| Demographics and languages in Canada (2001 Census)
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It goes without saying that openness to languages and the development of language skills today will have a big impact on Canada's success tomorrow. In this regard, the country already has a solid legal foundation through the Charter, provincial and territorial language legislation and the 2005 amendments to the Official Languages Act. Shouldn't the country adopt a more vigorous approach to official language education? Is language training for both official languages available to newcomers? Shouldn't they have generous access to Canada's linguistic heritage so they can fully integrate into Canadian society? One thing is certain: Canadians should be able to count on better co-operation between the federal and provincial and territorial governments in this regard.
Canada faces many challenges. Are we ready to face them? Do linguistic duality and cultural diversity have a strong enough foundation in Canadian society? Are these values truly integrated well enough? "Despite our progress to date, there is no room to be complacent since there is ample room to increase our knowledge and build the networks and infrastructures to make the social economy an active and sustainable sector of the Canadian economy."24
| "Twelve percent of newcomers know both official languages. However, regional variations are significant: although half of the allophone immigrant population in Montréal is bilingual, this proportion is 5% in Toronto and 3.8% in Vancouver." Marmen and Corbeil, Languages in Canada, Census of 2001. |
Based on the evidence of the Commissioner's study of linguistic duality in Canada's international relations published in the fall of 200425, these questions deserve further examination. This study showed that, although efforts to strengthen Canada's bilingual identity have had some success, linguistic duality has by no means been completely integrated into policies, programs and activities in the area of government operations. As a result, diplomatic missions poorly reflect linguistic duality in their activities. Cultural and commercial promotion are also inadequately integrated within these missions, which means that Canada's economic development is not receiving full value from linguistic duality.
Thus, there is room for improvement in this area. Canada must place more emphasis on its linguistic duality and cultural diversity in representations abroad. It must do a better job of assimilating these values in the way it does things. In short, Canada must practice what it preaches.
| "The result [of the Royal Commission on Bilingualism and Biculturalism] was the official recognition of Canada's linguistic duality and multicultural heritage—the political birth of modern Canada—and the formal entrenchement of one of the most significant differences between Canada and the United States, one that has become more, not less, important over the past half-century." Michael Adams, Fire and Ice, 2003. |
Leadership and governance
Canada's personality and reality are evolving; the country cannot wait any longer to consider the future of linguistic duality and cultural diversity. These two values have been accepted as foundations of our society. They must be reflected more adequately and promoted more vigorously, both in Canada and abroad.
Isn't it time to contemplate a new overall vision that fully promotes these two overarching features of Canadian society? Hasn't the time come to commit fully to a process that allows Canada to build on the fundamental values of linguistic duality and cultural diversity?
Such a process could be solidly grounded in the Canada of yesterday, today and tomorrow. It could rest on the great values forged over time and set out in the Canadian Charter of Rights and Freedoms and in all principles of governance:
- Sole and full citizenship (there are no half- or second-class citizens);
- Two shared Canadian languages (English and French) that allow individuals to connect, discuss and unite in finding a foundation for citizenship and making society work;
- Shared values (the rights, freedoms and values confirmed by the Charter and understood and shared by all, such as equality and respect).
The Commissioner believes that present circumstances are conducive to this kind of dialogue in Canada. The double influence of demographic changes within Canadian society and new government duties following the adoption of Bill S-3 amply justifies the launch of a national initiative to open a dialogue on how to update and give concrete expression to linguistic duality and cultural diversity in contemporary Canada. These matters would be discussed in the context of the country's competitiveness, its influence abroad and the involvement of civil society.
The framework to engage Canadians in this dialogue remains to be defined, but its success depends on a number of basic conditions:
- Strong political leadership clearly committed to the promotion of the Canadian model of linguistic development and diversity;
- A premise that allows linguistic duality to be considered beyond simple compliance with the Act;
- A vision that leads to concrete options for considering the federal government's duty to promote linguistic duality within the context of cultural diversity;
- A forum to discuss governance issues in order to foster and plan for the full participation of all Canadian citizens and to enable increased promotion of Canada's duality and diversity abroad.
| Therefore, the Commissioner recommends: That the Minister of Official Languages initiate a dialogue with the various stakeholders in Canadian society to identify the measures to take in order to fully integrate the fundamental values of linguistic duality and cultural diversity into our governance models and derive the full benefits that flow from them. |
