SITUATIONAL ANALYSIS
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RESEARCH REVIEW – MAJOR FINDINGS AND ANALYSIS
A comprehensive review of prominent reports and publications* was conducted to identify factors and issues driving interests in, and opinions about French language and culture in Canada and Saskatchewan.
The review was particularly helpful in understanding the scope of the research problem; it resulted in the identification of research gaps that were further analysed in Phase II Qualitative Research. Stakeholder interviews were also conducted with selected professionals involved in the field of official languages in Canada.
The detailed research review report submitted to Office of the Commissioner of Official Languages at the end of Phase I provided a snapshot of the factors affecting French language and culture on the Canadian and the Saskatchewan scene. Some highlights follow:
The Canadian Scene – A National Environment That Encourages Diversity and Bilingualism
The positive general Canadian outlook toward French and bilingualism provides a de facto national platform that can be helpful in positively influencing the opinions and attitudes of Saskatchewan residents toward French language and culture.
2001 Census, Statistics Canada
- 9.2 million Canadians are able to conduct a conversation in French (31%).
- 6.8 million Canadians have French as their mother tongue (23%).
- Between 1951 and 2001, the number of Francophones rose from 4.1 million to 6.8 million, but the proportion of Francophones in the population fell from 29% to 23%.
Association for Canadian Studies (ACS), the Environics/Focus Canada survey of 2002
- A majority of Canadians believe that it is important to know a second language (approximately 75% of respondents).
- Approximately two out of three Canadians feel that some French-language education should be mandatory in English elementary and high schools in Canada, and 40% strongly agree.
- Only 29% of respondents from Western Canada strongly agree that French-language education should be mandatory.
Languages in Canada 2001: Census by Louise Marmen and Jean-Pierre Corbeil
- Factors impacting on the evolution of language groups in Canada: language transmission, age structure, immigration, interprovincial migration, language transfer and exogamy, and use of mother tongue at work.
Canada vs. Saskatchewan Scene—CRIC Survey of Official Languages, 2003
The Survey of Official Languages conducted by CRIC in December 2003, with a sample of 2,002 Canadians, provides a good snapshot of French language and culture in Canada. The results were compared across provinces and various sample categories. It shows evidence of high optimism among Canadians when it comes to bilingualism and second-language learning. However, when the results in Saskatchewan were compared to other provinces, there seemed to be relatively less optimism for French.
- When a series of statements were read to respondents regarding the value of bilingualism, including learning French as a second language and learning French as a first language, Saskatchewan residents showed relatively less optimism than respondents from other provinces. For example, when asked to agree or disagree with the statement “In Canada, English is the only language you need to know in order to be successful,” only 39% of Saskatchewan-based respondents disagreed, representing the lowest level of disagreement across the provinces. This implies that Saskatchewan respondents attach the least importance to learning other languages and valuing French as a language compared to residents of other provinces.
- When the respondents were asked to agree or disagree with the statement “I wish I could speak French,” the level of disagreement was highest in Saskatchewan respondents (33%). The national average of disagreement is 16% including Quebec, and 21% excluding Quebec. The implication is that motivation for their children to learn French is relatively low among Saskatchewan residents.
- The respondents were asked, “If [your children/children in your community] were to learn to speak another language, which language other than English would be most important for them to learn?” Although French was as a winner across Canada as well as in Saskatchewan, it is important to note that Cree emerged as an important language for Saskatchewan respondents. The implication is that the Aboriginal population in Saskatchewan is a core population unit, and it understandably has affinity toward its own language as compared to other languages. This can create a challenge for efforts to promote French as a second language to the Aboriginal community in Saskatchewan.
* Please see Bibliography for the list of reports and publications reviewed in the Research Review
The Alberta Example – Moving Toward a Mandatory Second-Language Policy
The Alberta mandatory second-language policy initiative could be a policy role model and help conceptualize, benchmark and direct a similar policy in Saskatchewan.
According to the information published on the Alberta Education website, the Enhancing Second Language Learning Project was initiated in the spring of 2000 in response to the decreasing province-wide enrolment in second-language classes and programs. An extensive review of the capacity of Alberta's learning system was conducted.
The Language Research Centre of the University of Calgary conducted a review of current literature on four aspects of second-language learning. This review reveals that:
- Exposure to a second language can enhance linguistic skills in the first language. It also can enhance other intellectual and attitudinal attributes.
- Second-language learning while learning subject content (content-based language teaching) is an efficient and effective way of promoting the development of general second-language skills.
- The focus of the literature regarding students with special needs is on strategies for assessing and delivering instruction. The literature indicates that students with special needs can learn a second language.
Alberta Education is developing new programs of study and support resources in several languages specifically for the Grade 4 entry point. Blackfoot, Cree, Chinese, French as a Second Language, German, Japanese, Punjabi, Spanish and Ukrainian will all be available as a nineyear course series beginning in September 2006.
Alberta Education has already developed a number of language programs that will fulfill the language-learning requirement. Resources for bilingual programs and programs with early entry points, such as Spanish Language Arts K-6, Ukrainian Language Arts K-12, and Cree and Blackfoot K-9, will continue to be offered as in previous years.
The province had originally planned to make second-language instruction mandatory for all Grade 4 students for the school year 2006–2007 and for all students in Grades 4 through 9 by 2011–2012. But according to a news story published in the Edmonton Journal on February 22, 2006, the Alberta Education Minister has delayed plans to bring in mandatory second-language courses for students in Grades 4 through 9 for at least another two years. This is due to the fact that 10 of Alberta's 62 school boards, mainly serving rural areas, are not ready to offer language programming at this stage.
As shown in the table below, the approximate course enrolments for the 2002–2003 school year indicates that French continues to be a leading second language of choice for Alberta students:
- French as a second language (K-12) 114,400
- French Immersion (K-12) 28,300
- Aboriginal and International Language and Culture Courses 16,000
- Bilingual International Language Programs 6,000
THE SASKATCHEWAN SCENE – FACTORS AFFECTING PERCEPTIONS OF FRENCH LANGUAGE AND CULTURE
A closer look at the Saskatchewan scene (research review and stakeholder interviews) reveals that there are numerous factors that are affecting opinions and attitudes toward French language and culture in Saskatchewan. To assist in understanding these factors and circumstances, they were grouped under three broad categories:
- demographic/socio-economic factors
- institutional factors
- public attitudinal factors
Each one of these three categories consists of a myriad of different elements that are discussed below and throughout the report.
Demographic and Socio-Economic Factors
The following demographic trends have been observed in the Francophone population in Saskatchewan:
- The population of French speakers (first language) in Saskatchewan has declined noticeably, most significantly in the 1960s, and continues to decline although at a slower rate in recent years. Currently, there are approximately 18,000 Francophones in Saskatchewan and about 50,000 Saskatchewan residents can converse in French.
- The percentage of Francophones making up the Saskatchewan population has declined from 4.4% in 1951 to about 2% at present.
- The French population consists largely of adults with the median age being 52 years.
Suggesting ways to improve these demographic trends is beyond the scope of this report. The purpose of the comments below are meant to provide a clear understanding of the demographic and socio-economic environment in Saskatchewan and, in particular, how it affects the opinions and attitudes of Saskatchewan residents toward French language and culture. Efforts and programs to change trends in the use of French in Saskatchewan must be designed and measured taking these demographic realities into account.
Population Shifts and Decline
Saskatchewan has undergone a period of population change that, for the most part, has not been positive. The overall population has declined and aged. As noted above, Francophones are not immune to this changing demographic trend. The ageing Francophone population is a concern as it negatively affects key issues such as the decline in number of school-age Francophone children, the priorities of Francophone communities and public policy issues surrounding these communities. Exogamous relationships between French and other linguistic groups, mainly Anglophones, are also affecting attitudes toward French in Saskatchewan homes and families. In the majority of cases, English seems to emerge as the language of the home/family in an Anglophone-Francophone exogamous relationship. Understandably, the fact that the mother tongue is English in some exogamous families may negatively affect crucial attitudes of parents toward French education for their children.
There is a noticeable trend of people moving from rural areas to larger metropolitan ones. This is not a negative thing in itself but, as shown below, it does have a negative ripple effect as core demographic units of Francophones erode from historically rural clusters.
Statistics indicate that Francophones in Saskatchewan reside predominantly in rural areas. Declining population growth in rural areas has had a negative impact on educational resources. This has adversely affected opportunities for French-language learning in schools, and may also have had an effect on the opinions and attitudes of school boards and government policy makers. A declining Francophone population leads to a declining client base for French programs, and to openings in policy development and investment for languages and cultures of ethnic and Aboriginal communities.
Aboriginal Population Growth
The aboriginal population in Saskatchewan represents the fastest growing segment of the province’s population. Consequently, school-age Aboriginal children are an increasingly significant percentage of the total school-age population.
This raises two clear challenges when it comes to affecting opinions and attitudes toward French language and culture in Saskatchewan. The first is that this segment of school-age children is clearly not embracing French as a second language. Aboriginal children are encouraged to learn a second language, with French and their own native language offered as competing options. This creates pressures on education resources which negatively affect the provision of Frenchlanguage resources.
The second way in which the growth of the Aboriginal population affects the opinions and attitudes toward French in Saskatchewan is at the provincial policy and resource allocation level. Promotion of the aboriginal culture is an increasing priority of government and, to a degree, businesses in the province. As the literature and some stakeholders suggest, this emphasis more often than not comes at the expense of other cultural activities. The promotion of French culture in Saskatchewan takes place in an increasingly “crowded” environment. This affects the general public’s opinion, as they may not find French a priority issue.
Continued cultural promotion of French in Saskatchewan must take into account that there are other major ongoing promotional activities related to aboriginal cultures. In light of this, it is important that French cultural communication efforts be reviewed to ensure they are adequately targeted, and that messages associated with these activities are effective from a public communication standpoint. Future research may be helpful in fine-tuning the cultural communication messages to ensure that they have the desired impact on the general public.
Institutions and their policies are windows that help shape language and culture in the communities, and, ultimately, public impressions. Therefore, they are important elements that need to be examined closely.
Two major types of institutional factors were identified: education system and government factors. The main findings from the research review and stakeholder discussions as they relate to institutional factors are summarized below.
In the research review, there were numerous references to operational, policy or funding concerns that negatively affect learning French in school or the promotion of French culture in the population at large.
From a research perspective, many of these issues do not necessarily call for additional research; however, with a view to the future, many are important public policy areas that should be altered over time to positively affect the opinions and attitudes of Saskatchewan residents toward French language and culture.
Education System Factors
The education system plays an important role in forming public opinion about the literary, intellectual and economic importance of learning French. In some respects, the education system can be likened to a window through which people view and subsequently formulate impressions about the language.
The Saskatchewan’s English School System receives mixed reviews from the literature and some key stakeholders for its efforts to create an environment that promotes learning French in school—either through Core French or French Immersion.
Some positive initiatives in the education system in Saskatchewan include: no cap on enrolment or transportation levels related to French as a second language in school; no extra fee charged for French second-language programs; and the measures in place to recognize Immersion students with special designations upon graduation.
However, the research review and stakeholder interviews revealed several significant challenges within the Saskatchewan English School System. A prominent one is the general perception that learning French is not given equal status to other disciplines in the school. Teachers and particularly guidance counsellors appear unprepared or unwilling to promote French-language learning.
Currently, the entry points for French Immersion programs occur mostly in Kindergarten and Grade One, although it would be possible to allow entry at later elementary grades. Consequently, it would be beneficial to communicate this flexibility in entry points through targeted information campaigns.
A growing concern regarding the shortage of qualified French-language teachers in Saskatchewan also affects the two previous points. Current literature and many stakeholders raise this issue as a growing challenge to expanding French-language learning in the province’s schools.
Anecdotal evidence provided by stakeholders indicates that the quality of French-language teachers is not sufficiently high, which discourages students from enrolling in French courses (especially Core French), as they do not perceive them to be interesting. This situation, if valid, would indicate a need for increased monitoring of front-line staff and professional development resources to address French-teacher quality issues.
If this is indeed the case, there is a need to address the shortage of qualified French-language teachers. Research may be valuable in assisting with this.
Another concern expressed in both the existing literature and from some stakeholders is a view that education administrators—school boards, trustees, etc.—are not as helpful as they could be when it comes to promoting French-language learning. Concerns in this area range from administrators viewing French as a cost burden to be managed, or as “second tier” curriculum item compared to other subjects.
Again, there are numerous courses of action that school administrators can take to help the growth of French in Saskatchewan schools.
In general, the French school system in Saskatchewan can be viewed as a positive institutional factor that helps in creating a setting where French can be learned in an exclusively French environment. This provides an alternative to the English School System, but is intended for fully or partly Francophone families only. The French School System provides limited openings for non-Francophone Saskatchewan families motivated to seek a French learning environment for their children, thereby missing an opportunity to enlarge enrolment. During the research review, it was observed that a number of factors can affect parental choice of the French School System, such as the number of schools per community, distance, open enrolment for non-Francophone families, etc. Understandably, parents would have an additional motive to send their children to a Francophone school if it were within comfortable commuting distance.
It is important to remember that the French School System in Saskatchewan has been the subject of several intense localized debates, which has created tensions in these communities.
In sum, existing research shows parents and students want a high school education that provides the key to financial and career success. The lower priority given to French-language education could affect public opinion of French as an important language for future success. In addition, the economic importance of bilingualism is not visible in Saskatchewan. According to the Association for Canadian Studies, the income benefits of bilingualism that are visible in other parts of Canada fade away on the Prairies. This means that the perceived value of French in terms of economic benefits and career advancement appears to be declining in Saskatchewan.
Government Factors
There are several areas where both the literature and some stakeholders note shortcomings in the provincial government’s approach to French-language education. Most of these shortcomings can be summarized as the priority given to the promotion of French-language education in the province. It is recognized from the research review that:
- The French Education and Languages Branch monitors French language programs, but is under-staffed and under-funded; and
- Provincial policies are in place, but need further development through rigorous research.
Like the education system, the provincial government and its activities can be viewed as being a window through which the general population expresses opinions on various cultures and languages. If government is not taking enough initiatives, then it is likely that the issue is not a priority for a majority of Saskatchewan residents. However, if the provincial government starts a promotion campaign and devotes resources to French, this could initiate discussions in communities about the French language and culture across Saskatchewan.
When students and their parents choose an education program, economic benefits are one of the major motivators. If students/parents do not see any clear economic benefits of French as a Second Language (FSL) or French as a First Language (FFL) courses, they will understandably lean toward other subjects. Some government initiatives toward creating, recognizing and promoting the economic benefits of learning French to Saskatchewan residents would certainly have a positive effect on the opinions and attitudes of residents regarding French.
Through literature review and stakeholder interviews, it was suggested that to change the current French-language educational dynamic significantly, Saskatchewan should follow Alberta’s approach in implementing a mandatory second-language policy. It is highly likely that such a change would increase student selection of French as a second language.
Probably the greatest gap in the existing literature is reliable data on the attitudes and preferences of Saskatchewan residents related to learning French and supporting French culture. There are many hypotheses about what affects the views of the general public on this question; however, there is little verifiable data to support many of these views.
As mentioned earlier, there is some existing data from the CRIC Survey of Official Languages conducted in December 2003 with a sample of 2,002 Canadians. This survey does solicit and compare attitudinal data of Saskatchewan residents with the residents of other provinces in Canada but, due to a small provincial sample quota and resulting increase in margin of error, there is need for a larger similar study in Saskatchewan.
With this in mind, this most recent national study (CRIC 2003) does provide some illustrative data when considering public attitudes toward French in Saskatchewan. In a number of areas, Saskatchewan residents show lower support for the value of second-language learning in general and French in particular. These findings need to be explored further, in a qualitative and quantitative sense.
This section will be broken into a review of three population groups, obviously not entirely unique, but each with its own specific importance to the overall research question.
Province-Wide Saskatchewan Population
The first area where there is a need for research and understanding is the attitudes and preferences of Saskatchewan residents.
It goes without saying that the general public’s opinions of French language and culture are critical when considering the development and implementation of strategies in this area. Ultimately, communication activities to build support for French language and culture could focus on all Saskatchewan residents. Therefore, it is important to understand their impressions on key questions including, but not limited to, official bilingualism, the importance of second-language learning and perceived barriers to learning a second language.
Understanding the general public’s perceptions will allow for more focused and more effective communication activities for the promotion of French language and culture in Saskatchewan.
Parents
Parents are key decision-makers or influencers who have a direct bearing on enrolment in French-language courses. There is literature that supports the notion that parents are most interested in doing whatever they can to provide opportunities for their children. The question which remains, however, is how second-language learning is perceived in terms of providing this opportunity. Declining or stagnant enrolment levels in French-second-language courses suggest that there is a gap in perception and/or understanding on this point.
Students
For obvious reasons, students are a key population when it comes to expanding French-language learning in Saskatchewan and increasing appreciation for French culture. Students in most cases are the decision-makers, or at least influencers.
RESEARCH REVIEW – GAPS AND SUGGESTIONS FOR FURTHER RESEARCH
Based upon the findings of the research review, the following suggestions for further research were made:
- Previous research and stakeholder views suggest cultural reasons for Aboriginal languages and culture competing with French language and culture. However, it is recommended that research efforts be made with the Saskatchewan Aboriginal community to understand their attitudes to second-language learning in general and French in particular.
- Further research may be helpful in understanding the motivations of the front-line educators (decision influencers) when promoting the learning of a second language or French in school.
- It would be helpful to interview French-language teachers currently working in the Saskatchewan education system, to understand their perceptions of the work environment and gather their opinions as to why fewer people are choosing to teach French. Data should also be gathered from new teachers who decided not to pursue French-language teaching even though they could have.
- It would be important to learn how parents rank second-language learning in comparison to other subjects such as mathematics or science. What are the perceived opportunities of learning a second language, and how realistic are these opportunities in Saskatchewan? How do parents respond to existing messages promoting secondlanguage learning and what additional or alternative approaches should be considered? What role do parents play when it comes to education choices for their children?
- Many of the questions outlined with parents are also relevant for students. In addition, it would be useful to understand how their opinions take shape when it comes to secondlanguage learning. What role do teachers, peers and parents play in this development?
There is a need for a comprehensive public opinion study into the attitudes and preferences of Saskatchewan residents. There are numerous areas for study, but a few that should be included are:
- General impressions of French culture (impact of external negatives such as the separatist movement);
- Attitudes toward bilingualism;
- Attitudes to learning French as a first and second language;
- Benefits of and barriers to learning a second language;
- Public perception of what the government should do to promote second-language learning; and
- Messages to promote second-language learning (generally, and specifically French as a second language).
The information gathered from a study of this nature would not only help in understanding the perceptions and attitudes of Saskatchewan residents toward French language and culture, but it might also be instructive for education and government decision-makers on how to manage this issue.
QUALITATIVE RESEARCH – MAJOR FINDINGS AND ANALYSIS
Six focus groups were conducted in three locations across Saskatchewan: Regina, Saskatoon and Swift Current. All participants were non-Francophone parents of school- or pre-school-age children. In addition, the groups were broadly divided into two attitudinal segments: individuals “open” to second-language learning and those “closed” to this path of education.
The primary research question was: What is influencing or driving public impressions and interests in Saskatchewan when it comes to French culture and learning French?
Focus groups are a qualitative research method, where a moderator leads participants through a discussion. Participants are encouraged to provide open-ended and detailed responses to questions that probe their inner thoughts and feelings.
During the discussions, the moderator did not attempt to “educate” participants on aspects or policies related to French culture or language. The moderator probed with specific questions or put forward ideas to determine how deeply held perceptions or misconceptions were, but did not try to enlighten the groups as to what was actually the case. A key goal of these discussions was to fully explore participants’ current understanding of the topic areas, not to educate each group.
Perceptions of French Culture in Saskatchewan
From these sessions, it appears that Quebec—and any attributes associated with it—has a significant influence on public opinion of French culture in Saskatchewan. This is problematic in the sense that so much of what is read, heard and seen to be emanating from Quebec is focused on the issue of separation from Canada. This tends to fuel a negative initial impression of French culture. The French culture of Saskatchewan is therefore not distinguished from Quebec French culture.
In light of these misconceptions, it would be important to develop a strategy to re-orient the public’s attention toward Saskatchewan’s French culture and population, focusing on more positive features identified in the research, such as traditionalism, the historical role in building Canada and pride in its heritage. Local Saskatchewan French communities could help by raising their profile in the province. Currently, it appears they are not well known and are perceived as a close-knit group that is dispersed in small pockets throughout the province.
It emerges from this research that the impressions of the local Francophone community are more positive, albeit less immediate, than the overall impressions of Francophones from Quebec. Increasing awareness and exposure of the local French culture for mainstream Saskatchewan residents should be pursued.
French in Saskatchewan
There is a fundamental appreciation of the importance and value of learning a second language, particularly French. There is an unprompted acknowledgment that a second language can help in terms of:
- career development and employment options
- personal fulfilment and enrichment
- cultural enlightenment
- opening up travel opportunities
The above points are compelling reasons for parents when it comes to encouraging their children to learn a second language. It is also important to note that Canada’s linguistic duality is seen as a positive feature that provides an opportunity to learn a second language and be able to use it. Not all countries can claim this feature.
That said, there are several very strong public perceptions working against the expansion of second-language learning in the province. These are:
- The unilingual (English) nature of Saskatchewan and the lack of any “other” local critical language mass or proximity to other languages;
- The negative connotations associated with the Quebec political scene and the spillover effect on attitudes toward French culture;
- The official bilingualism policy and the perception that it is mandatory to learn French; and
- The belief that job opportunities because of the knowledge of a second language are mostly available in Eastern Canada and with government.
Many of the factors contributing to the negative perception of second-language learning are also captured in some of the positive aspects of learning another language. This suggests that it may be possible, by shifting existing communication approaches, to focus people’s attention on the positive elements of second-language learning. For example, having two official languages is generally considered as a very good thing for Canadians, yet the policy of official bilingualism is seen as forcing people to learn French and thus is poorly perceived.
Care should be taken to communicate information that stresses the range of benefits of second-language learning and letting individuals decide what language that should be. The evidence from this study and other jurisdictions where choice exists (Alberta) suggests that when given the choice, most individuals will gravitate to learning French for the aforementioned reasons (i.e. career potential and the ability to use the language in our country).
Barriers to Second-Language Learning (French Immersion)
The barriers parents face when it comes to actively pursuing second-language learning for their children (Immersion) can be grouped into two broad categories: practical concerns and perceptual concerns.
Practical barriers include:
- school location and the need for busing
- children leaving the neighbourhood and friends
- religious and non-religious school availability
These issues may be difficult to overcome, as they are primarily logistical in nature and a function of demand and funding. As it is not feasible to offer Immersion schooling at every school in Saskatchewan, the benefits of a French Immersion education must be sold or marketed to parents in order to overcome some of these practical barriers.
Perceptual barriers include:
- Parents fear that if they do not speak French they will be unable to help with homework and monitor the children’s progress—they will be left out of their children’s education.
- The children’s English-language skills will suffer.
- Children will be unprepared for university.
- Immersion is primarily intended for super bright children (elitist mentality).
These barriers, particularly the first two, appear to be significant issues for parents who consider enrolling their children in French Immersion. They are issues, however, where perception may not necessarily be reality and where it may be possible to communicate certain information more aggressively to allay these concerns. For example, is it a reality that Anglophone parents are completely unable to participate in their children’s education in an Immersion setting? It may be necessary to take additional steps to accommodate English-speaking parents with materials to assist their children with their homework (i.e. translated manuals).
In terms of marketing the learning of a second language, it may be helpful to focus on what parents want for their children’s future—their hopes and aspirations. Parents want personal fulfilment, economic security, intellectual stimulation and exposure to the world for their children. All of these goals can be easier to reach through the mastery of a second language.
