Ottawa, September 15, 2005
Municipalities: The Third Voice of Linguistic Duality
Speaking Notes: Annual Conference of the
Francophone Association of Municipalities of Ontario
Dr. Dyane Adam - Commissioner of Official Languages
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Introduction
I am happy to be back here today in the Municipality of Rouyn-Noranda. Coming back here feels like going back in time, as I started my career in clinical psychology at the Centre hospitalier Rouyn-Noranda in 1982.
I first spoke to you on July 28, 2000 at your annual conference in French River, Ontario. At that time, we were in the midst of a wave of municipal amalgamations in Ontario, which brought its share of changes and devolutions. In this context, the language issue once again became a pressing concern. At the time, I encouraged you to create partnerships with other Francophone organizations to protect the French language and to ensure the economic development of the French-speaking community. I also encouraged you to join together with Anglophone and Francophile allophone groups to promote language rights.
Today, we are meeting for the third and final time because, as you may already know, I am currently in the last year of my mandate at the Office of the Commissioner of Official Languages. I would like to say that I am very pleased to note that the theme and location of your conference suggest that you are looking toward greater co-operation with the municipalities in the neighbouring province on various issues, particularly language issues. I am very pleased with the way things are heading and I would like to acknowledge the Quebec representatives who are here with us today.
Today, I will update you on the larger role that municipalities can and should play to ensure service delivery in both official languages. I will provide concrete examples of what can be done to promote both linguistic communities and I will talk to you about the resulting benefits to your municipalities.
Greater responsibility for language issues
I am not telling you anything new when I say that municipalities have greater responsibilities than in the past. We are a long way from the time when the main concerns of a municipal council were limited to the maintenance of roads, sidewalks and parks, and waste water treatment. A modern city is now encouraged—some would say required—to carve out a role for itself among the economic, social and cultural players to ensure its prosperity. As a result, it is also called upon to play an increasingly larger role in society and in the country.
We say that the municipal government is the level of government that is closest to citizens. This is undeniable, and that is why I believe that municipalities are also best suited to make their citizens aware of key issues in society and of Canadian values, such as linguistic duality.
Language issues are first and foremost under the jurisdiction of the provinces and the federal government, and I am not here today to suggest that you replace these two levels of government in this regard.
What I am suggesting is that you play a greater role in and assume greater responsibility for this issue by taking simple, inexpensive, concrete actions to promote linguistic duality in your municipalities.
Historically, municipalities have been rather timid in promoting linguistic duality, as if they were not really concerned with the issue. Few municipalities have taken the lead and been proactive. In the past, so-called bilingual municipalities did not take concrete action to promote service delivery in both official languages unless there was public pressure.
At the same time, I note that municipalities that dare to publicly affirm their Francophone character sometimes find themselves at the centre of controversy, which they would prefer to avoid. The example of bilingual signage in Clarence-Rockland immediately comes to mind. Mr. Richard Lalonde can testify to that! It is easy to understand the hesitations of municipalities, who are afraid of reviving the language debate. However, your organization is called the Francophone Association of Municipalities of Ontario. It was established specifically to defend and promote the French fact. So, I would like to ask you a rather bold question: How many of the elected officials in this room prefer not to make too many waves for the sake of linguistic peace and cohabitation?
There are a number of municipalities that have been proactive and taken a leadership role in this issue. What first comes to mind, of course, is the example of Moncton, New Brunswick, which, in 2002, adopted a resolution declaring itself officially bilingual. The city received the Montfort of the Year award, which recognizes a group, organization or community that significantly contributed to the development of the Francophonie in the country. If we think back to the 1970s, when this city was the symbol of intolerance towards Acadians, we realize how far we’ve come.
The second example is the City of Ottawa. I know that some of you would disagree with me. After all, you might say, the municipal council adopted only a basic municipal policy in 2001; it did not entrench service delivery to the public in English and French in the City’s charter. You might also say that it was the Francophones who mobilized themselves and did all the work. Legally, the City of Ottawa is still not an officially bilingual city under its incorporating act of 1999.
However, we must not forget the fierce opposition at the time from citizens and even municipal councillors of the new amalgamated city, who rejected the simple proposal to maintain the policy on services in French in the former city of Ottawa and who could in no way accept that this policy be applied to the surrounding municipalities that now make up the new amalgamated City of Ottawa. We must recognize the courage of Ottawa Mayor Bob Chiarelli, who withstood blistering attacks from citizens who were strongly opposed to the policy. Mr. Chiarelli showed the kind of leadership that we expect from the mayor of the nation’s capital.
When it comes to language rights—and, by extension, human rights—we must have realistic expectations. There are two possible choices: relentlessly pursue the ultimate goal of true equality while realizing that this objective will only be achieved through a gradual process, a slow and cumulative process, or not confusing the end result with the route to take to get there.
My third example, which I briefly mentioned earlier, is the case of bilingual signage in Clarence-Rockland. At the beginning of the year, the municipality adopted a bylaw that requires all new businesses to provide exterior signage in both official languages. Why was this necessary? The city took action to prevent any legal conflicts with new businesses that may be unaware of the bilingual character of the municipality. This measure is not costly and it offers the added advantage of sending out a positive message. However, I believe that the municipality must encourage these businesses to also provide bilingual signage inside their facilities, and, of course, offer all of their services in both official languages, if we really want to show that both linguistic communities are valued and respected.
I would also like to take this opportunity to congratulate the municipality of The Nation for following in the footsteps of Clarence-Rockland and having the courage to adopt a bilingual signage policy. I am certain that your fellow citizens will appreciate this effort and that it will affect the impression left on visitors.
Signage is, in some ways, a window into Francophone Ontario. It is not enough to say that Ontario has the largest French-speaking population after Quebec. When visitors come to your municipalities, they should immediately see that they are in a French-speaking or bilingual environment. The level of government that is closest to citizens is primarily responsible for this visibility.
My fourth example is the city of Québec. This municipality’s Commission de toponymie (place names board) recently recommended in a report that more streets be named after prominent Anglophones who played an important role in the region’s history. This is an important step that demonstrates an openness towards the English-speaking community, which has deep roots in this historic city, the birthplace of French America.
My last example is a little different, but is just as interesting. A few years ago, the Richibouctou Municipal Council in New Brunswick decided to make the municipality trilingual. It uses English, French and Mi’kmaq. This is a nice gesture when you consider the historical relationship that existed between the Mi’kmaq and the Acadians before the 1755 Deportation. It was not long before many local businesses followed suit and starting displaying signs in all three languages.
As you can see, there are many different ways of promoting the two linguistic communities at the municipal level and fostering linguistic cohabitation. For example, you could name a park in honour of an English-speaking or French-speaking citizen; use social and community events to promote the two communities; organize a festival that celebrates the contribution of Francophones or Anglophones to your municipalities; recognize, in your strategic plan and annual report, the role of both linguistic communities; translate all public documents into the other official language; further promote municipal services that are already offered in both official languages; or keep the Franco-Ontarian flag permanently raised in front of public buildings, not just during special events.
I would also like to highlight the commitment of the Municipality of Cochrane, which has chosen to honour Francophones in the area by raising the Franco-Ontarian flag on June 25 of this year. The Franco-Ontarian flag will be 30 years old on September 25. Have you thought about marking this occasion in your municipalities?
Although most of these measures do not involve much cost, some are more costly than others, particularly when translation is required. In this regard, I remind you that Part VII of the Official Languages Act states that the Minister of Canadian Heritage should take such measures as that Minister considers appropriate to, and I quote, “encourage and assist provincial governments to support the development of English and French linguistic minority communities […] and in particular to offer provincial and municipal services in both English and French.” The Act also states that the Minister of Canadian Heritage should take such measures as that Minister considers appropriate to, and I quote again, “encourage and co-operate with the business community, labour organizations, voluntary organizations and other organizations or institutions to provide services in both English and French.” Moncton and Ottawa have already drawn on this support from Canadian Heritage and I am happy to note that you are now part of this circle.
I would like to remind you that the Quebec government is committed now more than ever to establishing new links with Francophone and Acadian communities. In fact, Quebec is preparing to unveil its new policy on Francophone Canada and it has reiterated its desire to provide leadership in bringing the French-speaking community together. I am also pleased to see that you have already taken your own steps to establish closer ties and co-operation with the neighbouring province by inviting Quebec representatives to this conference Who knows, this new openness could help you carry out valuable projects in partnership with Quebec municipalities.
To your fellow citizens who would prefer to see these amounts invested in your municipalities’ economic development, I would remind them that there are concrete advantages—such as economic benefits—to recognizing the contribution of both linguistic communities to municipal development, and that it is not just symbolic.
Tourism, as we all know, is one of Canada’s economic engines. I know that Destination Nord is doing a great job of attracting tourists to your municipalities by highlighting the services in French. More Quebec tourists, who are passing through on their way to some of Ontario’s major tourist attractions, might stop for a visit and stay for the night if they knew that French is spoken in your municipalities and that services are available in their language. Are they aware of this? The Maritime provinces are having great success in attracting Quebec tourists by promoting their Acadian heritage. Perhaps Ontario municipalities could follow their example?
Promoting bilingualism and the French fact also helps attract businesses that are looking for qualified, skilled employees who are bilingual or even multilingual.
The same thing applies to immigration. We talked about this during one of our previous meetings. Canada opens its doors to thousands of educated, qualified immigrants. Some are Francophones. Do they know that there are vibrant Francophone communities in your municipalities, who are ready to welcome them with open arms? There are many interesting projects underway in St. Leonard, New Brunswick, and elsewhere in the country.
To move ahead with linguistic duality, it is important that associations representing Francophone and bilingual municipalities in Quebec, Ontario, New Brunswick and Manitoba work closely together. This kind of co-operation would facilitate information sharing on language-related best practices and the development of tools for municipal service delivery in both official languages.
By working together, Francophone and bilingual municipalities could establish a common vision and a common goal that would spread, slowly become engrained, and continue evolving among the Canadian population as part of its values. To do so, this vision must involve and mobilize key decision makers. Canadian municipalities have recently proven that they can develop and influence public policies on the gas tax issue.
This solidarity among Canada’s French-speaking and bilingual municipalities would also ensure that your voice is heard at the federal level and would help you advocate for language clauses when agreements are signed between Canada and the provinces and territories on health care, immigration or any other program aimed at supporting the development of Francophone and Acadian communities. It is also important that you make federal and provincial governments aware of the need for additional resources in order to provide services in both official languages.
Conclusion
Actions taken by a municipality to promote linguistic duality can extend beyond municipal borders. They sometimes create controversy, but that is not a reason to shy away from demonstrating leadership in this area. Change never occurs without some instability and insecurity. In the examples that I mentioned earlier, all it took was one or two elected officials who decided to fully commit to this issue to see results. It is not the number that matters; it is the actions that were taken.
Linguistic duality concerns all Canadians. Just like the federal and provincial governments, municipal governments must be more proactive, speak with one voice when possible, and take more concrete steps to promote linguistic duality. Together, you can be the third voice of linguistic duality.
Thank you for your attention
