3. Study Themes
Page 5 of 11
The results of our examination of the six themes considered in this study and the ensuing recommendations are presented below.
We address official languages governance first, including VANOC’s vision and commitment in this regard and supervisory mechanisms for ensuring compliance with the language provisions. We then consider the issue of resources currently at VANOC’s disposal and those it will need in the future for translation and interpretation and for the Official Languages Function. We next discuss VANOC’s bilingual capacity in terms of its employees and volunteers. This is followed by VANOC’s communications with the public and other client groups (including signage and posters, the Internet, the announcement of competition results and commentaries, medical and emergency services and athlete services). We subsequently cover the theme of cultural programming and the ceremonies, which includes the Cultural Olympiad, the opening and closing ceremonies and the Olympic Torch Relay. We conclude with a discussion on the relationship with Canada’s Francophonie, which is to say, the relationship with the FFCB and other official language communities, Quebec and New Brunswick.
3.1. Official Languages Governance
3.1.1. Language provisions
3.1.1.1. Multiparty Agreement
Under the Language Policy for Hosting International Sport Events, Government of Canada representatives requested and received assurances that official languages requirements would be included in the agreement signed by the partners of the 2010 Winter Games (Annex A of
the Agreement). The federal government’s leadership in this regard should be commended. This is the first time in the history of the Olympic Games that a government has succeeded in including such comprehensive and specific provisions on the use of English and French in
the agreement between the parties.
As mentioned in the summary, Annex A, generally speaking, meets the requirements set out in Parts IV and VII of the Official Language Act. Annex A covers promotional information, press releases, signage, Web content, official programs, tickets and information to the media. The Annex also covers the need to provide services to athletes, trainers, officials and delegation members in both languages. To meet these requirements, VANOC’s employees and volunteers must have sufficient bilingual capacity. The Agreement also stipulates that linguistic duality must be respected in the opening and closing ceremonies and in the cultural activities held alongside the Games.
In our view, however, certain issues should be more clearly defined or emphasized, and new measures could be built into future agreements. This is the case for services provided on VANOC’s behalf by third parties. Currently, the Agreement stipulates that they must be offered “to the extent reasonably possible” in both languages. VANOC has retained, among others, the services of an online recruitment firm, Workopolis, to help recruit volunteers. We will address the language-related problems that have arisen as a result of the absence of language clauses in the agreement with this firm later in the report.
Shortcomings exist in the provisions of Annex A that pertain to the Games’ commercial component. Under the Agreement, all promotional materials produced and distributed by VANOC must be simultaneously offered in both official languages. No such requirements apply, however, to the promotional activities (ads, posters and services) of the many sponsors. Even though it plans to communicate its expectations to international sponsors, VANOC cannot impose language requirements on these sponsors, since their agreements fall under the IOC’s jurisdiction.17 Raising awareness about bilingualism among national sponsors is an easier task, but no formal requirements are set out in the Multiparty Agreement.
Later in the report, we will describe immediate measures that should be taken to correct the observed shortcomings. To avoid the recurrence of such shortcomings in any future international sports events, improvements should be made to the agreement between Canada and its partners.
| Recommendation 1 |
3.1.1.2. Official languages policy
VANOC adopted an official languages policy in June 2007 to demonstrate the importance it places on official languages requirements and to spell out its plans for implementing them. This policy was translated into French, and widely distributed within VANOC in both official languages not long after. This is the first time in the history of the Olympic Movement that an organizing committee for the Games has adopted such a tool. The policy incorporates most of the clauses of the Multiparty Agreement, but also deals with other issues such as the creation of a bilingual workplace, language training and translation. Moreover, the policy sets out the general vision of VANOC’s senior management for ensuring that the Games reflect Canada’s linguistic duality.
Overall, this is a good policy. It does, nonetheless, contain a few provisions that are inconsistent with the Agreement’s requirements. For example, under section 2.3.3 of the policy, unilingual VANOC representatives may make presentations in English only to a particular Francophone audience; a bilingual individual must, however, be present to provide any necessary explanations in French, and documents pertaining to the presentation must be available in both languages. Neither the Official Languages Act nor the Agreement makes any distinction between the general public and a particular audience. Section 3 of the policy provides that, under exceptional circumstances that require, for example, an urgent response by VANOC, the organization may publish a public document in English only, taking care to note that the French version will follow as soon as possible. Yet both language groups are entitled to be simultaneously informed in their respective languages of any emergency situation or incident pertaining to the Games.
| Recommendation 2 |
In its fall 2008 response to the Office of the Commissioner’s draft report, VANOC indicated that it would make changes to its official languages policy to ensure the organization meets its obligations more fully, but did not provide any details regarding future changes.
3.1.1.3. Official languages in the business plan
At the time this report was written, VANOC was in the process of preparing its third business plan, which is to be tabled in the fall of 2008. This plan will serve as a guide until the Games are held. The business plan refers to the requirement to comply with the Multiparty Agreement.
The plan lists official languages among VANOC’s values and guidelines as a part of team work and as a symbol of the Games’ cultural heritage. The plan also states that official languages must be part of educational and cultural programs. The plan devotes a complete
annex to official languages, with a list of responsibilities and official languages implementation strategies for different VANOC units. In addition, VANOC is preparing quarterly official languages reports based on five main strategies:
- Creating a bilingual work environment that fosters French and offers opportunities for French as a second language training, by providing French classes and installing signage in both languages in VANOC offices;
- Ensuring the integration of both official languages in all promotional documents and communications intended for the general public, particularly by hiring bilingual staff for positions offering services to the public, and ensuring the presentation of information in both languages on the Web, including promotional documents and information papers for the public;
- Offering all specialized and emergency services, as well as displays, for clients and athletes, protocol-related activities and ceremonies in both official languages, through such means as placing bilingual staff at ticket sales and public information points, holding the opening and closing ceremonies in both languages and providing medical, security and emergency services for athletes, trainers and officials in both English and French;
- Enlisting Francophone communities in key aspects of planning and delivering VANOC’s services by signing a memorandum of understanding with the FFCB and Fondation Dialogue, arranging regular meetings with Francophone organizations and participating in the Francophone community’s activities.
- Implementing a recruitment strategy for hiring employees and volunteers who are able to communicate in English and French, by using Francophone organizations to recruit bilingual staff.
The analysis of the language provisions with respect to the Games shows that VANOC and the Canadian government, through the Federal Games Secretariat, have established
a generally solid framework for these provisions.
3.1.2. VANOC’s vision and commitment
Interviews with representatives of VANOC, Canadian Heritage and the various partners revealed that VANOC’s senior management team is clearly determined to present Games that reflect the country’s linguistic duality. Many believe that what was initially a much lower level of commitment by VANOC has strengthened over the past few years. Several of the participants interviewed, including VANOC representatives, stated that the Federal Games Secretariat has, through its leadership, helped make progress.
VANOC’s Chief Executive Officer has repeatedly said that the organization will not merely meet but also exceed the requirements of the Multiparty Agreement. In so doing, the organization seeks to make the 2010 Games a model of respect for the English and French languages. His vision can be summarized as follows: linguistic duality is a fundamental characteristic of Canada, and the Games represent an excellent opportunity to highlight this distinctive trait for visitors from the four corners of the globe. A representative of the Francophone community described the concept this way: “By the end of the Games, people from everywhere in the world should be aware of the fact that Canada is a bilingual country.”
Many of the participants who were interviewed said that VANOC’s management team would feel that it had failed if it does not meet its goal of representing linguistic duality throughout the Games.
Members of VANOC’s senior management team share this goal of presenting bilingual Games. It is difficult, however, to say with certainty if this same desire is shared at all levels of the organization, as our interviews were limited to top-level representatives. Some participants who are not representatives of VANOC mentioned that the vision of the Chief Executive Officer and the Management Team is not necessarily that which prevails in all sectors and at all levels. These participants said that some people felt the official languages issue was more a matter of an obligation than a value of the organizational culture. The large majority of participants agreed that turning this vision into a reality is what is most important, and that we will have to see what happens during the Games before making an overall assessment of the performance of VANOC and Canadian Heritage.
The Chief Executive Officer and the Management Team did not state what they meant by Games that exceed the basic requirements, nor how far such innovation could go. VANOC, for example, indicated that it wanted to provide interpretation services in both languages during athlete press briefings at medal awards, which is not required under IOC rules or in Annex A of the Agreement. A clear statement on this topic would help all of the organization’s staff and those outside the organization, such as the federal government and official language community representatives, to better understand the goals and benefits of exemplary bilingual Games and to make them part of this vision. The Commissioner therefore suggests that VANOC specify in a clear statement what it means by “exemplary bilingual Games” and circulate this definition among its staff.
In fall 2008 in its response to our preliminary report, VANOC informed us that it was establishing a network of official languages champions within the organization. The network will consist of key senior-level employees working in different areas of responsibility. These bilingual individuals will be mandated to make members of their teams aware of official languages issues.
3.1.3. Understanding the requirements and increasing staff awareness
Most of VANOC’s representatives and partners who were interviewed believe that the official languages requirements of the Multiparty Agreement are generally clear and specific. For clarifications, officials of the various divisions contact the Official Languages Function, which is generally able to provide such information. The Function communicates with the Federal Games Secretariat, if necessary, which provides the required explanations.
Most of those interviewed at VANOC said they learned about the Multiparty Agreement and its official languages requirements shortly after being hired. Once hired, VANOC employees attend one week of basic training. Official languages are covered during the first day of this training. Some divisions also discuss official languages during staff meetings, or address the issue in the context of operational planning, for example, when recruiting volunteers or preparing templates that will be used to communicate information to the public.
We were assured that volunteers will also be informed of official languages requirements during their training programs. The Human Resources, Sustainability and International Client Services Division is in the process of developing a training plan that will include an official languages component.
Apart from the official languages policy, employees do not have a checklist of key factors that could undermine respect for official languages requirements. Employees, remunerated or not, have many things to remember, and a large number of volunteers will be enlisted. It would therefore be worthwhile for VANOC to produce a short document that lists essential issues pertaining to official languages (vision, representation of VANOC and of Canada, general principles of the Agreement, appropriate approach, how unilingual volunteers can seek assistance from bilingual volunteers, etc.) to ensure a common understanding of principles and methods. Key sections of this document could be included in the accreditation kits carried by staff and volunteers during the Games. For this reason, the Commissioner suggests that, a few months (or weeks, in the case of volunteers) prior to the Games, VANOC prepare a checklist of official languages requirements and procedures for ensuring compliance and distribute it to all staff and volunteers.
3.1.4. Coordination mechanisms
Preparing and hosting the Games requires the participation of many institutions of the Government of Canada, British Columbia, the City of Vancouver and the Municipality of Whistler. As the host country, Canada has developed a coordination structure, which includes the Federal Games Secretariat. One of its key functions is to promote Canada’s objectives in terms of the hosting of the Games, including objectives related to official languages. The Federal Games Secretariat is responsible for coordinating the federal contribution, strengthening Canada’s profile at the national and international level, managing the funding granted by the federal government for the Games and ensuring public funds are used in a responsible and transparent manner.
According to information from Canadian Heritage, the federal coordination framework consists of three levels of committees: first, the Deputy Ministers’ Committee, then the Representative Working Group (a coordination committee consisting of assistant deputy ministers from most of the federal institutions involved) and finally 11 thematic groups. These committees are the federal government’s means of coordinating its work for the Games.
Francophone communities believe Canadian Heritage should exercise greater leadership. For example, they wanted the Department to insist that the following recommendation made by the Standing Senate Committee on Official Languages in February 2007 be carried out: “That the federal government, in cooperation with the other partners, immediately begin to work toward the appointment of a representative from the French-language communities to the VANOC board of directors.”18 They also believe that representatives of Canadian Heritage, including members of the Federal Games Secretariat, should be more assertive in encouraging the participation of official language communities in cultural activities and in promoting their development projects in the context of the Games.
VANOC’s representatives and the municipalities believe that the Federal Games Secretariat plays an important role in raising awareness of the importance of complying with the requirements of the Agreement. The presence of some members of the Federal Games Secretariat in the same building as VANOC is seen as a major positive influence on the latter organization.
In their coordination role, representatives of Canadian Heritage favour a flexible approach based on cooperation and support, as opposed to close monitoring. They have, for example, encouraged VANOC to adopt its previously described horizontal management style and to incorporate official language goals into its business plan.
3.1.5. Control mechanisms
The Federal Games Secretariat and VANOC have established formal and informal control mechanisms for assessing progress in applying the official languages strategies and clauses of the Multiparty Agreement and for reporting to the appropriate authorities.
3.1.5.1. VANOC’s quarterly reports
The main control mechanism is the quarterly progress report pertaining to the five official languages strategies mentioned previously (in the business plan section) that VANOC prepares on its own initiative. This mechanism was implemented in early 2007; four reports have been produced to date. The report contains a list of activities initiated for each of the organization’s five strategies, expected outcomes and performance indicators (one series through late 2009 and another until the Games open in 2010).
This report is well done on the whole because VANOC presents the results of planned activities and the list of elements addressed is more complete now than at the beginning.
The quarterly reports would be more useful and effective if they included a summary that highlighted the main challenges during the period in question. Given the geographic location where the Games will take place, one of VANOC’s major challenges is, for example, hiring bilingual staff. This objective could have been noted in the summary of a prior report. The main task now is to recruit bilingual volunteers. This need could be mentioned in the summary for a future quarterly report. Approaches such as this one could help make government officials aware of the crucial stakes at play and the actions they could take to help VANOC. According to an update provided by Canadian Heritage in the fall of 2008, VANOC’s quarterly reports include the challenges faced by VANOC in the implementation of official languages requirements.
3.1.5.2. Internal controls
Within VANOC, the Director of Human Resources presents a monthly report on official languages to the Executive Vice President, Human Resources, Sustainability and International Client Services. Official languages do not, however, appear as a regular item on the agenda of VANOC’s management team. The Executive Vice President discusses official languages when an issue under consideration (such as the Cultural Olympiad, the opening and closing ceremonies or volunteer recruitment) includes a linguistic dimension.
The same situation exists for VANOC’s board of directors: official languages issues are addressed occasionally. Some of the participants interviewed, including VANOC members and Multiparty Agreement partners, would like to see official languages as a regular and formal item for discussion during the meetings of these two decision-making bodies. They would, for example, like the matter to be regularly considered by the board of directors’ human resources committee.
We share this opinion, since presenting Games that reflect the country’s linguistic duality is a critical issue. By reporting on official languages, VANOC would be demonstrating its active and regular engagement to the issue of linguistic duality. The topic could be the subject of a progress report on the application of the official languages requirements of the Multiparty Agreement.
3.1.5.3. Control mechanisms within Canadian Heritage
Canadian Heritage has put in place a managment and accountability framework based on results, as well as an integrated risk-based audit framework. However, no formal control mechanisms exist within Canadian Heritage for official languages. The Federal Games Secretariat closely examines VANOC’s quarterly report to identify any situations that could turn into problems and, where necessary, requests further explanations from its representatives or advises them of situations that require their attention. The Director General of the Federal Games Secretariat regularly informs his superiors of the progress in preparations for the Games, including official languages issues. Reports prepared for the Representative Working Group (the assistant deputy ministers’ committee) generally include an update on official languages. When certain situations so require, notes are prepared for senior departmental officials or the relevant ministers. Since it is becoming increasingly urgent to resolve certain important elements as the Games approach (bilingual volunteer recruitment, increased needs for translation and interpretation, signage, and municipal and provincial services), the Federal Games Secretariat should implement a formal control process for language-related issues for Canadian Heritage and the other administrative and departmental authorities concerned. This would provide everyone with a clearer view of the situation.
| Recommendation 3 3.1 That a progress report on official languages, including a summary highlighting the main challenges for the period in question, be regularly submitted to: a) VANOC’s management team; b) the board of directors’ human resources committee; 3.2 That Canadian Heritage, through the Federal Games Secretariat, henceforth prepare a formal quarterly progress report that will more systematically advise the relevant administrative and departmental authorities of key elements that could require action on their part. |
In the fall of 2008, VANOC informed us that Recommendation 3.1 was already being implemented. The Board of Director’s Sustainability and Human Resources Committee has been mandated to discuss official languages regularly at its meetings. This committee is also required to report on official languages to VANOC’s board of directors.
VANOC also reported that the quarterly progress report it prepares for the Federal Games Secretariat can help accomplish Recommendation 3.2.
In response to this recommendation, Canadian Heritage indicated that current mechanisms within the Department are sufficient to keep it informed of the official languages situation. Canadian Heritage also informed us that it has a rigorous control mechanism in place since VANOC’s business plan must be approved by the Department and Minister responsible. However, the Commissioner believes that more systematic and formal reports would help the Federal Secretariat and Department target areas that require intervention.
3.2. Status of Required Resources
Certain participants in our study said they believe VANOC had sufficient resources to meet the requirements of the Agreement and to present Games that reflect Canada’s linguistic duality. A larger number of VANOC representatives interviewed, however, said their organization would have difficulty meeting these requirements—and even more so exceeding them—unless it obtained additional resources, particularly with respect to translation and interpretation into French. VANOC had not fully grasped the scope of all that must be done to achieve this goal, particularly in terms of the required resources. Initial estimates of the number of bilingual volunteers and of translation and interpretation requirements were, for example, far too low. As we will consider the issue of volunteers (recruitment, accommodation, transportation and management) as a critical resource element later in the report, we will focus here on translation, interpretation and human resources issues in the Official Languages Function.
3.2.1. Translation and interpretation
Initial estimates of translation and interpretation costs were largely based on expenses incurred at the 2006 Turin Games. However, such estimates did not take into account the considerable increase in public communications planned for the 2010 Games because of a move towards a more interactive technological model. The requirements of the 2006 Turin Games were also less demanding than VANOC’s current obligations.
For the Beijing Summer Olympics, the OIF signed an agreement for the promotion of the French language at the 29th Olympiad with BOCOG. This agreement aimed to support BOCOG’s efforts to encourage the use and presence of French during the Games and their preparations. The agreement therefore proposed various measures, such as making Francophone interns readily available for the translation of the Games’ Internet site and BOCOG’s main publications (including the Spectator Guide) and recruiting translators and interpreters for the duration of the Games.
Officials of the 2010 Games hoped to translate a large number of documents intended for more specific audiences (athletes, technical officials, national delegations, etc.). A preliminary estimate indicated that some 200 to 300 publications would have to be translated before the start of the Games. An increasingly large volume of news releases and Web content must also be translated. VANOC would like to translate the biographies (that will be submitted
to it in English just days before the start of the Games) of the several thousand athletes. These biographies will be used by the media and sports commentators as a source of information to be broadcasted to the public.
VANOC also wants to provide simultaneous interpretation services at a larger number of events than in the past, for example, at press briefings of medal winners and at press conferences during the Paralympic Games.
While VANOC’s internal translation service has been able to meet the organization’s needs to date with reasonable turnaround by drawing on its two translators, plus freelancers when required, rising demand for translation is leading to an urgent need for resources during the last two years before the Games (the Sport, Paralympic Games and Venue Management Division alone anticipates that its requirements will climb between five- and ten-fold from current levels). Although the translation service will have two more translators, it needs at least three more full-time translators (or the equivalent of at least $250,000) to meet VANOC’s growing needs between now and the Games, as well as 42 additional translators (minimum of $750,000) during the Games themselves. These other resources will serve to ensure that Info 2010, the information system that will be used by various clients during the Games, can provide information simultaneously in both languages. This issue was a weak point in past Games.19
In addition to these requirements, the International Client Services Unit will require significant human resources and equipment so it can provide interpretation services at each Games venue, services that represent a minimum total investment of $500,000 for the Olympic Games
and $300,000 for the Paralympic Games.
VANOC has considered certain options for meeting increased translation and interpretation demands, including contract workers, volunteers, students and interns from university translation programs or assistance from the translation departments of the governments of Canada, Quebec and New Brunswick. However, these options have their limits. Contract workers and students or interns are a possibility (VANOC does in fact already use these groups for longer documents), but their work requires greater supervision and revision. Quebec’s translation department specializes in French-to-English work, while VANOC’s need is from English to French. New Brunswick’s translation department has limited resources. Translators and interpreters may agree to work as volunteers, but the number who do will certainly be limited by the fact that most would prefer being hired as contract workers. Volunteers, furthermore, cannot spontaneously improvise as translators or interpreters.
The large majority of people who were interviewed within VANOC emphasized the need for specialized translators, because specific terminology is used in certain sectors, such as anti-doping controls, medical services and various technical sports, such as the biathlon. The Office québécois de la langue française has, however, translated a number of technical terms and included them in Le grand dictionnaire terminologique pursuant to the framework agreement with the Quebec government.20
The issue of translation and interpretation has become a major challenge for VANOC officials, and one that could partially compromise the Games’ success with respect to official languages. Some people envision such alternatives as providing French-language synopses of certain documents or publications if additional resources cannot be obtained in a timely manner. These kinds of solutions cannot, however, be considered acceptable, because they run counter to VANOC’s commitment and the requirements of the Multiparty Agreement. The OIF, which signed an agreement with the BOCOG for the promotion of the French language at the 2008 Beijing Olympics, could work with VANOC in resolving the problem.
In its response to the draft report, VANOC indicated it had entered into discussions with officials at Canadian Heritage, Public Works and Government Services Canada and the Translation Bureau regarding the possibility of having access to their expertise. VANOC reported that Canadian Heritage is aware of VANOC’s translation and interpretation needs and discussions were held on the subject. VANOC plans to begin formal discussions on this topic with the two above-mentioned organizations in the coming months.
VANOC might, however, obtain the necessary funding by applying for the Contributing Province/Territory Program or using contributions from sponsors. Some believe this would be a somewhat paradoxical approach, as it would amount to making the provinces and sponsors pay for fulfilling the responsibilities of a federal statute.
Translation and interpretation are crucial if linguistic duality is to be respected. Bilingual service greatly affects public and client group21 perceptions of Canada’s respect for linguistic duality in the context of the Games. Canadian Heritage officials have a responsibility to help VANOC find a solution to this situation. The Government of Canada has a world-renowned translation and interpretation department and could help VANOC in this regard. Formulas certainly exist that would permit VANOC to obtain such services at a reasonable cost.
| Recommendation 4 |
In its response to our draft report, VANOC indicated that it had obtained access to additional translation resources through formal sponsorship agreements in the private sector. The Commissioner recognizes that this is a significant step forward. However, ensuring the Games’ official languages success through adequate translation and interpretation services remains a challenge.
3.2.2. Official Languages Function
The Official Languages Function falls under the Human Resources, Sustainability and International Client Services Division. All participants who were interviewed in the course of this study spoke very highly of the efficiency and volume of work performed by the Official Languages Function. VANOC’s participants were pleased with the quality of advice and leadership provided by the Function, which has also made major contributions to a strong and harmonious relationship with the province’s Francophone community.
All of these parties agree, however, that the Function is overloaded with work.
Since official languages requirements are left to the units in each division and no officials within these divisions have been assigned to this issue, the Official Languages Function must spend much time providing guidance, offering advice, working closely with the divisions and performing numerous follow-ups. The Function also handles relations with Fondation Dialogue, the FFCB and other members of the Francophone communities.
In the spring of 2008, only 1.3 full-time equivalents were assigned to official languages; the Director also handles human resources.
Given the increasing workload involved in the tasks and challenges described in part in this report, and the decreasing timeframes to carry them out, the Function should immediately obtain additional human resources to effectively carry out all of the work that needs to be done between now and the Games. VANOC is responsible for deciding where resources should be allocated, but we believe that at least one more person is needed for the Official Languages Function.
In view of the substantial gap to be filled in terms of resources for translation, interpretation and the Official Languages Function, and given the urgency of resolving these problems, the Commissioner, in letters dated May 12, 2008, brought this matter to the attention of VANOC’s Chief Executive Officer, the Minister of Public Works and Government Services Canada, the Minister Responsible for Official Languages and the Minister of International Trade and Minister for the Pacific Gateway and the Vancouver–Whistler Olympics.
| Recommendation 5 |
In its response to our draft report, VANOC indicated that it had hired one additional full-time employee for the Official Languages Function. VANOC is also seeking a part-time consultant and considering a secondment candidate with previous official languages experience in a Games’ environment. VANOC also explained that, in the year leading up to the Games, the position of Director of Human Resources and Official Languages will be devoted entirely to the Official Languages Function. The Commissioner is pleased to learn that VANOC has already implemented this recommendation, which he considers important progress.
3.3. VANOC’s Bilingual Capacity
3.3.1. VANOC’s staff
3.3.1.1. Overall workforce
Various clauses describing the official languages requirements of the Multiparty Agreement pertain to the recruitment of Francophones from British Columbia and the rest of Canada, the presence of a sufficient number of bilingual individuals among VANOC’s employees and volunteers and the adequate distribution of such individuals at key points of contact with the public.22
Of VANOC’s approximately 800 employees (as of mid-March 2008), 16% are bilingual at an intermediate level and another 10% have some knowledge of French. Francophones make up approximately 10% of the staff. In view of the linguistic composition of Vancouver and the rest of British Columbia, these data demonstrate the serious efforts that have been made to recruit bilingual individuals, and particularly those whose first official language is French.
Bilingual capacity varies from one unit to the next. Thus, it is 40% or higher for the ceremonies, government relations, communications and international client services units. This capacity is about 25% in the Human Resources Unit. Representatives of these units said it was relatively easy to find bilingual staff, as long as recruitment efforts focused on Eastern Canada (particularly the National Capital Region and the province of Quebec). High bilingual capacity gives the units greater versatility in carrying out functions that require the use of both languages, such as relations with the Francophonie, the organization of cultural activities and participation in media events. Some individuals interviewed noted that their strong bilingual capacity allows them to produce documents in both languages, thus avoiding additional overloads on the translation service, which is only required to check quality in such cases.
3.3.1.2. Management
Despite our request, VANOC has not provided us with specific data on the representation of Anglophones and Francophones and their respective bilingual capacities at different levels of the management team (executive vice presidents, vice presidents and directors). VANOC said that “15% of VANOC’s management (director level and above) are either Francophone or Francophile with a level of French at intermediate or above,” which is a somewhat vague figure.
According to information provided by VANOC in the fall of 2008, two key management positions were recently filled by Francophones: the Media Relations Manager and the Sponsorship Manager.
Using information obtained during the interviews and thereafter in the fall of 2008, we developed a linguistic profile of the Management Team. Based on our estimates, this team includes few Francophones or fully bilingual Anglophones. Consequently, not one of the 10 members of the Management Team, made up of the executive vice presidents and the Chief Executive Officer, is fluent in French. However, according to VANOC, three of the 10 members have a basic knowledge of French and are working to improve it through private courses twice a week.
This situation can have adverse consequences. At the present moment, VANOC’s senior management cannot be described as bilingual. Communications between members of the senior management team and the public can take place in both languages through the use of an interpreter or by calling upon a bilingual person from a different level. However, apart from the occasional exception, members of the senior management team speak English when addressing the public, receiving dignitaries and chairing national and international committee meetings. They should be able to communicate in French more often, particularly during major events, even if to a lesser extent than in English, to present an image of a bilingual organization. Some members of the senior management team are making worthy efforts to learn French. It is important for them to persevere and for others to do likewise, so that Canada’s linguistic duality will be better reflected in VANOC’s senior management team.
Furthermore, representatives of the Francophone communities and other partners have noted that it would be easier and more natural to represent the Francophone aspect of the country if there were more bilingual Anglophones and native French speakers in senior posts.
Without detracting from senior management’s sincere desire and commitment to linguistic duality, it must be admitted that the reflex and capacity to represent the French-speaking community’s vision is proving more difficult. VANOC must have bilingual individuals at the senior management level who are experienced in working with the Francophone community and understand the challenges faced by official language minority communities. Few positions remain to be filled, but any existing opportunities should be used to bolster the Francophone community’s representation on the senior management team.
3.3.1.3. Future recruitment
Some 500 full-time positions at lower levels must be filled before the start of the Games. A large share of these positions, such as venue manager and activity coordinator, require contact with the public or with such client groups as athletes, technical officials, representatives of the Olympic Movement and the media. An adequate proportion of such employees should possess a good knowledge of skills in both languages to meet language requirements and, by doing so, augment VANOC’s bilingual capacity.
The meeting of all the heads of mission that is scheduled for February 2009 in Vancouver will be an excellent opportunity to determine whether VANOC has acquired the capacity it requires to function in both languages. VANOC is entirely responsible for organizing this meeting (in contrast with test events, which are usually arranged by sports federations), and everything must be in both languages (documents, presentations, discussions, signage, visitor services, etc.).
In its response to the preliminary report, VANOC noted that, while the Games’ management positions were already filled, it has always made the necessary efforts to recruit and hire bilingual staff. It added that it was continuing to identify and staff key positions with bilingual people. VANOC advertises on its Web site, in English and French, all positions to be filled (paid and volunteer), and indicates that knowledge of French is an asset. It also participates in bilingual job fairs and promotes employment opportunities with the help of its partners in the French-speaking community.
According to VANOC, the complexity of planning and the scope of the Olympic and Paralympic Games are such that specialized personnel with specific qualifications are often required, including experience in an Olympic or Paralympic environment, for many of the positions. According to VANOC, most of the senior management positions are already filled by people with specialized skills. While VANOC states that despite the challenges, it is continuing to identify and staff key positions with bilingual people, the Commissioner stresses that this is a major issue and VANOC should pursue its efforts in this regard.
The Commissioner also suggests that VANOC should not limit its search for bilingual people to the British Columbia labour market, where the number of French-speaking candidates is limited. Rather, VANOC should expand its search to recruit competent bilingual candidates from across the country.
| Recommendation 6 |
3.3.1.4. Language training
VANOC plans to offer language instruction to boost its bilingual capacity. The organization strongly encourages employees to take its on-site French courses. In March 2008, some 100 individuals participated in these courses, demonstrating the staff’s obvious interest in learning French. As the final year prior to the opening of the Olympic Games will prove very busy for employees, every possible effort should be devoted to targeted language training between now and late 2009. The Official Languages Function is planning new ways, such as online courses, to provide training during the final year.
3.3.2. Workplace
While neither the Official Languages Act nor the Multiparty Agreement sets out obligations for VANOC with respect to its language of work, the organization has adopted certain measures on its own initiative to promote the use of French in the workplace. In so doing, the organization seeks to enhance staff awareness about using French so that those who are capable of doing so develop the reflex to use French in their communications with a Francophone audience.
The measures implemented include French-language training programs, French-speaking days in certain sectors, lunches that take place in French, official displays in both languages and activities pertaining to the French-speaking community, such as a presentation organized by the Official Languages Function on the history of Franco-Columbians.
Despite these commendable initiatives, the organization’s predominant language of work is English. The use of French is limited to informal discussions between Francophones and discussions during meetings among Francophones and fully bilingual Anglophones. Evidently, we invite VANOC to pursue the implementation of measures to encourage its employees to use French.
3.3.3. Volunteers
3.3.3.1. Assessment of needs
Volunteers now represent a major component of the Olympic and Paralympic Games, given the magnitude of these international sports events. A very large share of these volunteers will be providing services to the general public and to other key client groups, such as athletes, the media and members of the Olympic Movement.
Several members of VANOC and other partners interviewed emphasized that bilingual volunteer recruitment will be a key challenge for the organization. Francophone communities and sports organizations have said that this aspect will be an important touchstone of VANOC’s ability to organize Games that fully reflect Canada’s linguistic duality.
Based on its own estimates, VANOC will require 25,000 volunteers, 3,000 (12%) of whom are bilingual. At the time of our study in March 2008, VANOC’s divisions were developing a more specific estimate of the number of volunteers required. Using a guide prepared by the Official Languages Function that determines bilingualism criteria, the divisions were working on specifying which positions would require knowledge of both official languages. In late April 2008, VANOC said it was seeking to recruit as many bilingual individuals as possible, without giving a specific figure. At the same time, the organization reported that nearly 14,000 applicants indicated they knew some French (about 2,600 Francophones and 11,350 Anglophones with varying degrees of knowledge of French). In its response to the Office of the Commissioner’s preliminary report, VANOC specified that more than 9,000 applicants from across the country indicated having a conversational or better level of French.
We are pleased to see that VANOC wants to recruit a sufficient number of bilingual individuals, but it must determine the number of bilingual volunteer positions requiring knowledge of both official languages as soon as possible. Certain divisions and units have indicated they need a high proportion of bilingual volunteers. This is particularly true at the Corporate Strategy and Government Relations Division, which estimated that nearly all of its positions require bilingual skills. It is also true with respect to the International Client Services Unit, which calculated that 300 of its 800 volunteers must be bilingual. The Sport, Paralympic Games and Venue Management Division and the Service Operations and Ceremonies Division, which will enlist the greatest number of volunteers, anticipated that between 25% and 50% of this group (depending on the area of activity) must have knowledge of both official languages.
Moreover, according to what the venue managers told us, travel arrangements for competition venues will require bilingual volunteers (plus the VANOC employees concerned) to be present at numerous points of service. There are, for example, separate entrances for spectators, athletes, technical officials and media representatives at the Richmond Oval, where many speed skating competitions will be held. Given the venue’s extended operating hours, plans should be made to ensure that a large number of bilingual individuals will be present. The athletes’ villages (one in Vancouver and the other in Whistler) will also require the presence of a large number of bilingual volunteers for the accreditation process, residences, information services, food services and the lounge areas. Separate entrances are, once again, planned for athletes, technical officials and dignitaries.
Although VANOC is seeking to recruit an adequate number of bilingual volunteers, the number of candidates who are sufficiently bilingual may be inadequate to meet needs. Those who are interested must pass an initial pre-selection interview by telephone and a second in-person interview prior to being chosen as a volunteer, a process which will eliminate a certain proportion. As of late April 2008, 46% (6,419 out of 13,963) of applicants who said they were bilingual had only a basic knowledge of French.23 Although some may be selected by assigning them to positions that require little French or by pairing them with someone who has a good knowledge of the language, we believe the number of positions to which such individuals could be assigned will remain limited. Therefore, VANOC must carefully determine how many bilingual individuals are needed and the corresponding degrees of bilingualism required. VANOC must also consider that a large proportion of the positions will require applicants to be “fluent/advanced,” in view of the responsibilities they entail. This requirement would apply to volunteers assigned to security, to medical and emergency services and to relations with the media and members of the Olympic Movement.
In its response to our preliminary report, VANOC indicated that it had revised the initial list of volunteer positions and evaluated the level of bilingualism required in each according to the degree and nature of contact with key client groups, such as the public, athletes, media and VIPs. VANOC provided a copy of this document to the Commissioner. VANOC indicated it will continue to evaluate linguistic needs as the list of bilingual positions becomes more detailed.
In filling volunteer positions, VANOC normally gives priority to applicants who have or who are able to find accommodation in Vancouver on their own, so as to minimize the burden of obtaining housing for those arriving from other regions. In a May 1, 2008 news release entitled “Call to all volunteers—phone screening begins,” VANOC announced that it was particularly interested in volunteers from British Columbia who live in the Sea-to-Sky corridor.
Because VANOC has only slightly more than 2,600 applicants from British Columbia with an intermediate or better knowledge of French24 and it is not certain that all of them will be selected, the organization must turn to other provinces and in particular to Quebec, Ontario, and New Brunswick, to find a sufficient number of bilingual individuals with the necessary level of language skills. More than 4,000 (53%) of some 7,500 applicants who have an intermediate or better knowledge of French are from Quebec and Ontario.
VANOC’s representatives have indicated that, depending on the outcome of the different phases of the selection process, they will conduct targeted campaigns to attract more applicants to meet specific needs, such as individuals with experience in medical services.
The representatives plan to take the same approach if the number of bilingual individuals who are selected seems too low. They also mentioned the possibility of additional assistance from Fondation Dialogue and the FFCB. VANOC should also seek help from Anglophone community associations that promote French-language learning, such as Canadian Parents for French.
In view of the high goals that VANOC has set for itself and the equally high requirements that this will entail with respect to bilingual resources, the organization must act promptly in this regard. Therefore, VANOC should have used its May 1, 2008 news release to announce it was also seeking applications from bilingual volunteers.
| Recommendation 7 7.1 Rigorously and promptly complete its process of identifying volunteer positions that require knowledge of both official languages, as well as the necessary degree of bilingualism, in consideration of the very large number of points of contact with the public and the nature of communications with the public; 7.2 Promptly establish a targeted strategy for seeking applications from bilingual volunteers, by reaching out to groups, including the entire network of French-speaking communities and associations that promote French as a second language learning. |
According to information provided by VANOC in the fall of 2008, the Commissioner believes VANOC is on the right track because it is in the process of implementing this recommendation. VANOC adopted and is implementing a strategy to recruit bilingual volunteer candidates. It is working in cooperation with its partners, the FFCB and Fondation Dialogue and their members, as well as national networks that promote French-as-a-second-language learning, to find bilingual candidates. The Commissioner believes the strategy being implemented by VANOC is a step in the right direction.
However, the Commissioner reiterates that it is important for VANOC to complete as soon as possible the process of identifying volunteer positions that require knowledge of both official languages.
3.3.3.2 Selection and training
VANOC hired an online recruitment firm, Workopolis, among others, to help recruit volunteers. Workopolis has carried out a nationwide television advertising campaign and conducted recruitment sessions in a number of cities. VANOC is also using different approaches, such as job fairs, advertising and other recruitment agencies. Similarly, VANOC has asked Fondation Dialogue, the FFCB and other Francophone organizations to publicize its need for bilingual volunteers throughout their networks, and they have done so. Moreover, VANOC has also published volunteer recruitment ads in Francophone community newspapers. Under the agreement between VANOC and the Government of Quebec, Emploi-Québec has added a link to Workopolis on its own Web site.
The selection of volunteers is a two-stage process. Pre-selection is carried out through a telephone interview in which the selection team verifies basic applicant information (address, age, accommodation arrangements, etc.). The team also asks applicants why they want to participate in the Games, along with other questions regarding their strengths.
According to information obtained in March 2008, the telephone interviews, which will continue until late 2009, were to be conducted in English only. VANOC’s representatives adopted this practice to verify whether Francophone applicants have an adequate knowledge of English, since this language is essential within the Olympic Movement.
In letters dated May 12, 2008, to VANOC’s Chief Executive Officer and the Minister of International Trade and Minister for the Pacific Gateway and the Vancouver–Whistler Olympics, the Commissioner noted that this practice is unfair to Francophones. The Commissioner noted that Francophones should be able to explain their qualifications as volunteers in their own language, just as Anglophones do.
We are pleased to note that, since June 2008, telephone interviews have been conducted in the candidates’ official language of choice. Bilingual interviewers now ask all applicants who indicated having intermediate or advanced knowledge of French their preferred official language for the interview. The candidates’ language skills in their second official language are also evaluated during the interview to determine their level of bilingualism. The Commissioner notes that this is a major improvement.
The second phase of the selection process will involve an in-person interview with each pre-selected applicant. At the time this report was written, VANOC was setting its plan for this second phase, which was to involve interviews in different cities across Canada, with the assistance of one or more employment agencies, and possibly the government, for human and material resources. In the Commissioner’s opinion, clauses should be included in agreements with these sponsors and suppliers to ensure that they communicate with applicants in their preferred language.
VANOC is in the process of developing its volunteer training program. The organization has not yet decided if this program will be offered to all volunteers in Vancouver, or if it will be held in different locations nationwide.
| Recommendation 8 8.1 Promptly modify its practices regarding telephone interviews to ensure that Francophone applicants have the same opportunity to demonstrate their language abilities as their Anglophone counterparts do; 8.2 Ensure that in-person interviews are conducted in the applicant’s preferred language by providing for language clauses to that effect in agreements with any third parties conducting such interviews; 8.3 Ensure that the volunteers who are selected receive training in their language of choice. |
The Commissioner is pleased to learn that VANOC has already modified its practice regarding telephone interviews with volunteer candidates. This is commendable progress.
In its response to the draft report, VANOC explained that, to reduce candidates’ travel costs, it planned to travel to major Canadian cities to finalize the recruitment process and conduct interviews in person. The cities in question will be determined shortly, and VANOC plans to conduct in-person interviews in both official languages.
In terms of volunteer training, VANOC indicated in fall 2008 that orientation session documents for volunteers were translated and offered in both official languages. Orientation sessions in Vancouver will be offered in French at least once a month and training is planned in both official languages across the country.
3.3.3.3. Accommodation and transportation
As previously indicated, VANOC is seeking to recruit a maximum number of volunteers who have accommodation in Vancouver. Applicants are expected to pay for their own transportation costs. VANOC is, however, aware that it must recruit volunteers, and in particular bilingual individuals, who will not be able to find local accommodation on their own. The organization has begun setting up an accommodation program that provides for the rental of condominiums and homes, and will call upon such public institutions as universities and schools, as well as Vancouver residents, to help meet the need for accommodation. VANOC had, at the time of our interviews, advised the school system and the Francophone community that it planned to ask for their assistance in this regard. The two groups indicated that they intend to fully cooperate in this effort. They did, however, underscore the importance of prompt communication by VANOC of its needs, particularly for the school system, which must plan its educational calendar in advance.
In the fall of 2008, we learned that VANOC and the Conseil scolaire francophone de la Colombie-Britannique had concluded an agreement in which certain schools would be closed during the Games to provide additional accommodation options for volunteers from French-speaking communities.
Another possibility for accommodation that VANOC might explore is the French as a second language learning network in British Columbia. Studying French is very popular in the province and the provincial chapter of Canadian Parents for French could certainly find families willing to host French-speaking volunteers.
| Recommendation 9 |
In the fall of 2008, VANOC informed us that it was refining its Homestay billeting program, to which all interested volunteers would have access. This program and VANOC’s agreement with the Conseil scolaire francophone de la Colombie-Britannique are successful initiatives worthy of mention.
However, transportation remains another key factor in attracting bilingual volunteers from outside British Columbia, and in particular from Eastern Canada. Volunteers must usually pay for their own transportation costs, which could discourage many people in Eastern Canada (home to the greatest concentration of French speakers) from volunteering. VANOC should make all possible efforts to ensure that travel costs are not an obstacle, and might explore the possibility of making volunteers’ transportation costs to Vancouver as affordable as possible through partnerships with such carriers as Air Canada,25 VIA Rail and Greyhound Canada.
Notes
17. See Appendix 3 for a definition of “sponsor” and “government partner.”
18. Standing Senate Committee on Official Languages, Reflecting Canada’s Linguistic Duality at the 2010 Olympic and Paralympic Winter Games: A Golden Opportunity, Ottawa,
February 2007, p. 5.
19. H. Bourges, Les jeux olympiques : une vitrine mondiale pour la langue française, Report to Abdou Diouf, Secretary General of the Organisation internationale de la Francophonie on the
place and use of the French language at the 2004 Olympics in Athens, Paris, Organisation internationale de la Francophonie, 2004 and L. Bissonnette, La place et l’usage de la langue française aux Jeux olympiques d’hiver de Turin 2006, Report by the Grand Témoin de la Francophonie, Paris, Organisation internationale de la Francophonie, 2006.
20. See Le grand dictionnaire terminologique of the Office québécois de la langue française at www.olf.gouv.qc.ca/ressources/gdt.html
.
21. Client groups include athletes and their escort teams, technical officials, representatives of the media and of the Olympic Movement as a whole (such as representatives
of the IOC and national and international sports federations), dignitaries and representatives of various Canadian government entities and other countries.
22. See clauses 1.a), c) and n).
23. VANOC separates bilingual individuals into three categories: basic/beginner—able to communicate at basic levels in predictable situations and pertaining to familiar topics;
conversational/intermediate—able to easily communicate socially and in the workplace about familiar situations; and fluent/advanced—able to communicate effectively in
social situations and in the workplace.
24. This figure comprises Anglophones with an “intermediate” or “fluent” level of French, plus native French speakers.
25. Air Canada is a sponsor of the Games.
