Summary
Page 2 of 13
Between October 2006 and September 2007, the Office of the Commissioner of Official Languages undertook a follow-up to the study Doorway to the World: Linguistic Duality in Canada’s International Relations. That study, published in 2004, dealt with linguistic duality in Canada’s international relations. It addressed Canada’s bilingual identity in international policy and the federal government’s major programs and activities in this area.
The study went beyond the framework of official bilingualism to look at linguistic duality’s role in Canada’s international policy. It underlined that linguistic duality is a defining characteristic of Canada’s international identity. “Linguistic duality opens doors to Canada precisely because it ensures direct access to two international cultures, because it establishes Canada’s reputation in the world as a model of social harmony through effective management of differences, and because, in the dynamic and complex world of international relations, where nations compete for attention in promoting their interests, our linguistic duality makes Canada stand out.”1
Doorway to the World: Linguistic Duality in Canada’s International Relations concluded that linguistic duality is being increasingly recognized as an important component of Canada’s identity on the world stage. It also pointed out the unequal integration of linguistic duality in the missions, including instances of resistance. In particular, it revealed a lack of strategic direction.
The purpose of this follow-up study is to determine to what extent the departments in question have implemented the 25 recommendations made in the 2004 study. Note that four of these recommendations were divided into two parts [recommendations 7a) and b), 9a) and b), 13a) and b), and 16a) and b)], which means the overall total of recommendations was actually 29.
To conduct the follow-up study, representatives of the Office of the Commissioner of Official Languages interviewed officials at the Department of Foreign Affairs and International Trade, the Department of Canadian Heritage and the Privy Council Office and analyzed the documentation provided to them. The Commissioner then submitted a draft of his report to the deputy ministers of these institutions, who in turn provided details or new information, which are reflected in this report.
The following table summarizes the Commissioner’s assessment of the follow-ups to the 29 recommendations that appeared in the study Doorway to the World: Linguistic Duality in Canada’s International Relations.
| Departments | Implemented | Partially Implemented | Not Implemented | Total |
| Foreign Affairs and | 7 | 12 | 4 | 23 |
| Canadian Heritage | 2 | 1 | 1 | 4 |
| Foreign Affairs and | 1 | - | - | 4 |
| Privy Council Office and | - | 1 | - | 1 |
| Total | 10 | 14 | 5 | 29 |
With respect to the Department of Foreign Affairs and International Trade, the Commissioner believes that the Department has taken some positive action in certain areas, including the following:
- the international Francophonie;
- cultural diversity;
- raising awareness among rotational and locally recruited staff about the importance of linguistic duality;
- some aspects of the Canadian Studies Program;
- the language requirements for senior public servants appointed to posts abroad;
- evaluation and verification in the Department, which seems to be vigilant.
The Commissioner also notes with satisfaction the Department’s intention to hire a full-time official languages advisor, and will be closely monitoring how this position helps the Department assume its obligations and achieve its objectives.
That being said, the Commissioner notes significant shortcomings regarding overall vision and coordination, which partly explains the fact that only seven of the 23 recommendations made in 2004 aimed solely at this department have been fully implemented. The Commissioner believes that it would be to the advantage of the Department of Foreign Affairs and International Trade to develop a global strategy for official languages. For example, it should seek greater convergence and complementarity between its official languages policies and programs (Part IV of the Official Languages Act, which deals with communications with and services to the public) and its policies and programs for promoting linguistic duality (Part VII of the Act).
The Commissioner has made eight new recommendations to the Department of Foreign Affairs and International Trade, the main one being that it develop a strategic framework for official languages in Canada’s international relations. This should take into consideration the new provisions of Part VII of the Official Languages Act, which require federal departments and agencies to take positive measures to foster the full recognition and use of both English and French in Canadian society.
The Commissioner is concerned about the cuts to the budget of the Department’s Public Diplomacy Program and the cancellation of the Francophonie Promotion Fund in March 2005. With respect to the cancellation of the Fund, the Commissioner calls upon the Department to assess the impact of this decision on its ability to contribute to the promotion of the Francophonie and linguistic duality in its international relations.
As for the Department of Canadian Heritage, the Commissioner believes that it has demonstrated a commitment to the inclusion of linguistic duality in various files: cultural diversity, TV5, and commercial and cultural activities. He invites the Department to continue its efforts in these areas and asks in particular that it continue to work with its provincial partners to increase the participation of Francophones from all parts of the country in TV5.
The Commissioner also believes that there should be more sustained co-operation between the Department of Foreign Affairs and International Trade and the Department of Canadian Heritage to promote Canada’s linguistic duality abroad. One of his new recommendations addresses this issue.
In terms of the Privy Council Office, the Commissioner notes that it does not impose the same language standards as the Department of Foreign Affairs and International Trade on individuals appointed by the Governor-in-Council as ambassadors or heads of mission, despite the recommendation made in 2004. He has therefore made a new recommendation to the Privy Council Office on this matter.
The study Doorway to the World: Linguistic Duality in Canada’s International Relations, conducted in 2004, revealed a number of shortcomings, one of which was a lack of strategic direction. According to the Commissioner, the follow-up study shows that this has not been remedied since the study was published.
In sum, the Commissioner believes that the follow-up study shows mixed results since it reveals a number of shortcomings and lukewarm leadership regarding the coordination and direction of policies and programs. The Commissioner would like to see a more comprehensive and integrated management of the programs that promote Canada’s linguistic duality abroad.
The Commissioner has made 10 new recommendations and proposed four new deadlines for implementing the recommendations made in 2004. In doing so, he urges the federal departments and agencies responsible for promoting Canada’s linguistic duality internationally to show the leadership necessary to comply with the new requirements of Part VII of the Official Languages Act, which requires federal institutions to take positive measures to foster the full recognition and use of English and French in Canadian society.
Notes
1 Doorway to the World: Linguistic Duality in Canada’s International Relations, Office of the Commissioner of Official Languages, 2004. p. 50.
